Putting walking first
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The mobility challenge for our cities and towns, a talk by Ciarán Cuffe at the Irish Transport Research Network 6th Annual Conference, Galway 27th-28th August 2015
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Putting walking first
- 1. Putting walking first The mobility challenge for our cities and towns Irish Transport Research Network Conference, Galway 28th August 2015
- 2. ITRN 2015 Ciarán Cuffe Dublin Institute of Technology Putting walking first: the mobility challenge for our cities and towns @ciarancuffe
- 7. Putting walking first • Setting the Scene • Impediments to Prioritising Walking • Opportunities to Improve Walking • Specific Measures to Favour Walking • The Challenge of Delivery • The Road Ahead
- 9. The straight line ... economic growth, past and future, the curved line the rise and fall of greenhouse-gas emissions. Christiana Figueras, UNFCCC economic growth time emissions
- 11. Putting walking first • Setting the Scene • Impediments to Prioritising Walking • Opportunities to Improve Walking • Specific Measures to Favour Walking • The Challenge of Delivery • The Road Ahead
- 17. Walkable Places • More walkable places perform better economically • Walkable places benefit from being near other walkable places. • Residents of more walkable places have lower transportation costs and higher transit access, but also higher housing costs. • Residents of places with poor walkability are generally less affluent and have lower educational attainment than places with good walkability. Brookings Institute, Leinberger & Alfonzo, 2012
- 18. DTI Final Report 1994 1,650 pedestrian survey • too much traffic • environmental pollution/fumes • insufficient pedestrian crossings • footpaths too crowded • traffic speeds too high for safe crossing • length of pedestrian crossing signal time too short • poor state of footpaths DTI, p. 27
- 19. Putting walking first • Setting the Scene • Impediments to Prioritising Walking • Opportunities to Improve Walking • Specific Measures to Favour Walking • The Challenge of Delivery • The Road Ahead
- 25. Putting walking first • Setting the Scene • Impediments to Prioritising Walking • Opportunities to Improve Walking • Specific Measures to Favour Walking • The Challenge of Delivery • The Road Ahead
- 38. Putting walking first • Setting the Scene • Impediments to Prioritising Walking • Opportunities to Improve Walking • Specific Measures to Favour Walking • The Challenge of Delivery • The Road Ahead
- 40. Dublin City NTA Funding, walking highlighted
- 41. Dublin City NTA Funding for walking €43,577,254.65 overall on capital projects €1,706,868.15 on ‘pedestrian’ projects Over five years Just under 4%
- 48. Putting walking first • Setting the Scene • Impediments to Prioritising Walking • Opportunities to Improve Walking • Specific Measures to Favour Walking • The Challenge of Delivery • The Road Ahead
Editor's Notes
- The question is whether sustainable transport and economic recovery are compatible. The answer is yes. However much depends on the type of economic recovery that is being sought.
- For Ireland the danger is that the green shoots of growth might branch into a return of urban generated rural development with a consequent unsustainable high demand for car transport. There are four clear opportunities for green growth in Ireland: sustainable transport, low energy construction, renewable energy and organic agriculture. Each of these four sectors can produce economic growth by reducing emissions, whether it be wind energy powering Dublin’s tram network, or the retrofitting of homes to slash heating costs. It can be a good news story. Environmental campaigners understand that saving the planet may not be top priority for cash-strapped households in 2015, but lower transport or heating costs are an attractive option.
- The gravity of the challenge is not in doubt. Climate change and biodiversity losses are real. As the earth warms, the migrant crisis in the Mediterranean foreshadows many more climate refugees from regions where crops fail and governments struggle. The United States National Oceanic and Atmospheric Administration has said that July 2015 was the hottest month for the planet ever recorded. The International Energy Agency tweets that transport accounts for around two thirds of oil demand. The centre cannot hold. It is therefore time to reappraise the transport choices that we make in Ireland, and to prioritise green or low carbon transport choices.
- Within the wide range of low carbon options the ‘active travel’ modes of walking and cycling can deliver significant modal shift at a low cost, and the broad range of benefits from walking deserve greater investment. While cycling has received increases in funding in recent years we now need to put walking front and centre in the transport hierarchy. Investment in walking is cost-effective and yields significant health, social and environmental benefits.
- Writing in the New Yorker recently Elizabeth Kolbert interviewed Christiana Figueres the Executive Secretary of the UN Framework Convention on Climate Change. In the course of an interview Figueres sketched out a diagram illustrating the path towards economic recovery and sustainable development. The diagram shows that as the economy recovers the emissions pathway must stabilise and fall.
- This is no easy task, however there are countries that have managed this. Kolbert states that Sweden has shown the way with a 23% reduction in emissions, and 55% growth over the last twenty five years. Interestingly the world economy grew by 3% last year without an increase in emissions. These are impressive figures. Cities and towns have a key role to play in this as more transport options are available and walking can make a significant contribution to achieving this.
- The problem is to communicate and understand the wider benefits around green transport. If implemented carefully green transport choices can reduce pollution, noise, and accident rates. They can also increase socialisation and tackle the sedentary behaviour of a generation under threat from obesity. However such changes can be disruptive. In recent months a pipeline has been proposed to connect Dublin’s air and sea ports. However concerns about this proposal for green transport infrastructure has been expressed by those fearing job losses in the haulage industry, as well as by residents concerned over pipeline safety. Elsewhere plans to prioritise public transport walking and cycling through Dublin City Centre have been opposed by car park owners and others. Measuring the benefits of walking can be harder to measure compared to other transport modes, and can fall between the cracks when modelling or using cost-benefit assessment.
- Charles Montgomery uses an intriguing graphic to compare the space needs of different transport modes.
- According to Transport Infrastructure Ireland the National Transport Model does not assign walking and cycling demand as to do so would require an excessive level of detail which would make model runtimes unsustainably high. The Greater Dublin Area transport model has modelled walking and cycling modes since 2004. However the National Transport Authority states that this model is limited in its ability to test policies that seek to increase trips by walking and cycling and cannot automatically capture the time savings and other user benefits accruing to pedestrians and cyclists as a result of priority and other network improvements that confer advantage on these modes. (NTA, p. 39). This is a cause for concern. The Appraisal Framework for Greater Dublin Area Draft Transport Strategy states that the user benefits are measured using only three criteria: journey time savings, user charges and vehicle operating costs. If the appraisal is this limited then social and health benefits of walking will simply not be measured. The benefits of walking are so obvious that it seems curious that walking strategies are not given greater priority in transport planning. The National Road Authority’s Project Appraisal Guidelines for Walking and Cycling Facilities admit their methodology’s deficiency stating that it only considers mortality and omits the benefits from improved health which don’t result in “lives saved”. This means that wider social costs such as treating obesity which is associated with lack of physical activity are not included. (NRA 2011a, p. 6). The NRA also states that their methodology was developed from evidence of the benefit to cyclists and that there is less evidence of the benefits to walkers.
- These guidelines contrast with the passion of the Irish Heart Foundation, the Health Services Executive, and other groups who have expressed concern at high rates of obesity, particularly amongst young people. To address this they have set up the www.GetIrelandWalking.ie website to encourage physical activity and have sought 30 kph speed zones in urban areas. Six years ago the Government published “Smarter Travel A Sustainable Transport Future”. This new transport policy for Ireland promised a National Walking Policy, wider footpaths and prioritising traffic signals to favour pedestrians instead of vehicles, reducing waiting times and crossing distances at junctions. Although laudable in aspiration, the target for 2020 of 55% travelling by walking cycling or public transport will be hard to realise without substantial redistributions of funding. Smarter Travel states that: “The Government is committed to creating a culture of walking in Ireland.” (Smarter Travel p. 44) but it focuses heavily on the tourism and recreational opportunities for walking rather than commuting, and the National Walking Policy that has yet to be published. We do know that 170,510 commuters walked to work, accounting for 10.5 per cent of all commuters in 2011 and that 69 per cent of commuters travelled to work by car. (CSO)
- Professor Helmut Holzapfel, a German civil engineer and transport scientist at the University has described the changing transport priorities with the advent of the car.
- He states “A transformation occurred. The original type of city , in which local relationships and activities on the direct vicinity of the house defined everyday life ... was transformed into a city where long-distance concerns and automobile transport were the dominant forces.” (Holzapfel, p. 35)
- In late twentieth century traffic planning the pedestrian was viewed simply as a means of transport, not as a person present in an urban space according the US Brookings Institute. It believes that there is now a demand for more walkable neighborhoods where housing, jobs and amenities intermix.
- Over the last thirty years transport planners have struggled to fit the square peg of walking through the round hole of conventional transport models. Transport modelling and cost-benefit analysis must start with the active travel modes of walking and cycling and adapt that model to motorised travel, rather than wrestle with a model that struggles to cope with the multiple benefits of the more sustainable modes. Walking has always been the ugly duckling of transport policy. It has rarely been at the forefront of government funding or promotion, but given its contribution to civic life, environmental sustainability and human health, it surely deserves greater recognition in funding priorities.
- Prioritising walking ahead of other traffic modes can ensure the needs of pedestrians are recognised. However the differing function of streets and roads must be considered. At a simplified level they should allow for movement, economic activity and social interaction. All too often movement is prioritised , and especially motorised movement at the expense of the others. This needs to be reconsidered. The differing roles of those who shape the environment also must be considered.
- Civil engineers have strong skills in designing transport infrastructure, spatial planners’ strengths lie in allocating uses and architects specialise in designing buildings. The role of the urban designers who can bring all of these skills together deserves more recognition. Finally the general public, community groups and elected representatives are a strong source of local knowledge and insight. As the Design Manual for Urban Roads and Streets points out (DMURS, p. 125) a multidisciplinary approach is crucial. All too often practitioners are reluctant to step outside their professional silos of expertise. The good news is that pedestrian improvements are relatively inexpensive. As a first step the pedestrian needs to be more firmly recognised and encourages in plans, strategies and in communications.
- Local authority websites (including Dublin City Council) often fall into the trap of devoting most of their transport homepage towards the motorist. This needs to change so that active travel modes are normalised. The transport planning process needs to start with the most vulnerable users. Pedestrians top the chart, and in particular older people, children and those with disabilities. One of my favourite indicators is those who use roller shopping trolleys.
- They are useful indicators of healthy mobility patterns. They are generally older women, and if their needs are carefully considered, walkable neighbourhoods will happen. Their behaviour should be closely studied by those who intend making changes in street layouts. Their needs tend to be marginalised and ought to be mainstreamed. This can then concentrate the mind on kerb-dishing, length of pedestrian signals and desire-lines. Signalling changes can be low-cost and an additional second on a pedestrian phase can make the difference between an older person making the trip into town or not.
- Signage and road marking are relatively cheap and can make a huge difference. In Dublin contra-flow cycle lanes are being introduced on narrow streets: a few signs and arrows can allow cyclists legally avoid lengthy detours. Lower speed limits save lives and energy, civilise streets, and can allow traffic to flow more smoothly. Narrow road lanes can also slow down traffic, and narrower three metre lanes can calm traffic in urban areas. Ensuring that all traffic stops at less-trafficked crossroads reduces accidents and favours pedestrians. The American ‘four-way stop’ deserves to be used more in residential areas. Smaller signs with good graphics can slow down vehicular traffic and communicate information clearly. One way streets can be problematic: they can significantly reduce the social and economic function of streets. Multiple lane one way streets certainly decrease the attractiveness of urban areas. Zebra crossings afford priority to pedestrians and should be used in preference to signalised crossings, where possible.
- More such crossings are needed and it is also worth introducing the simplified crossing sign that is used on the continent.
- The Design Manual for Urban Roads and Streets (DMURS) is a seminal document that provides regulatory backing for putting the pedestrian first and it states unequivocally that the transport hierarchy must promote and prioritise sustainable forms of transportation. It is important that DMURS is not sidelined by the Design Manual for Roads and Bridges in urban areas and it is crucial that more continued professional development is given in the use of the Manual. It is also worth considering the ratio of pedestrian space to vehicular space. In her 2012 book ‘Town’ Orla Murphy said a defining characteristic is the amount of ground space allocated to the realm of the pedestrian compared to the car. When the amount of ground given to the car exceeds the ratio of about 1:1.5, the car becomes the dominant user of the street, and subsequently the pedestrian yields way.” (Murphy, p. 57) One could go further than a 1:1.5 split and perhaps allocate space equally between pedestrians and others. Splitting the cross-section of the street 50:50 between the two user groups is by no means radical.
- It was pioneered by the engineer and planner Ildefons Cerda in Barcelona one hundred and fifty years ago.
- Pavement widening is one of the secret weapons in the transport planner’s arsenal, and can increase footfall and improve neighbourhoods. Curve radii at junctions can make the difference between livable spaces and traffic-dominated junctions. The smaller the curve radii, the easier it is for more vulnerable road users to move safely in the presence of more dangerous traffic. Perhaps the curve radii that we use should be standardised, as they are in Manhattan. One could imagine a menu of one, three and six metre curves. This may yield savings in spending.
- Running footpaths through junctions gives greater priority to pedestrians, and is by no means a modern concept.
- If this is unachievable, then kerb-dishing can improve the pedestrian experience, and again standard details are worth encouraging as specified in Josep Serra’s ‘Urban Elements’ manual for Barcelona.
- Mentioning roundabouts in the city of tribes is a thorny subject. Although roundabouts can reduce head-on vehicular impacts they dramatically favour motorised vehicles. For the pedestrian and the cyclist they represent huge challenges. If they have to be used, the smaller and less flared the intersections, the better. It is also worth mentioning that left-turn filter lanes favour vehicular traffic over pedestrians, and should be discouraged.
- A desire-line is one of the most poetic phrases encountered in considering traffic planning. At the other end of the spectrum ‘guard-rails’ must be on of the most prosaic. It is heartening that recent research in the UK and guidance both here and across the water is encouraging the removal of guard-rails and prioritising the desire-lines for those who walk. Anything that can be done to ensure that pedestrians are encouraged to travel on their desire-lines without being hemmed in behind ‘cattle-crush’ barriers on their journey must surely be welcomed. It is also worth stating that multiple phase pedestrian crossings should be avoided.
- n general pedestrians should at least have to wait less and have more generous time than motorised vehicles to travel through junctions. Imagine if vehicles were forced to endure two or three red lights in order to get through a junction. Another prosaic issue is that of loading bays. Providing loading bays in suitable locations can reduce the amount of illegally parked vehicles and obstacles that typically impair pedestrians and cyclists more than motorised vehicles. Footpath clutter is a growing concern, whether it be from parked vehicles, waste bins or redundant signage and in the current review of the Dublin City Development Plan Councillor Dermot Lacey is proposing that we set targets for the removal of such clutter from pavements over the lifetime of the Plan.
- I have also proposed that Dublin City Council follow the lead of Copenhagen and produce a stand-alone walking strategy for the City.
- There are several challenges though to realise these type of projects. Changing mindsets is no easy task. During my time as a Minister of State at the Department of Transport I had responsibility for Smarter Travel. Yet even there I noticed that a fit and active member of my civil service team drove from Leeson Street to Kildare Street each morning because they had a free car parking space available to them in the basement
- That’s me removing a sign from the railings outside the Department of Transport. Another challenge is that of competency. Training up a generation of designers to put themselves into the mind of an elderly or child pedestrian or wheelchair user can be a steep learning curve and can go against the grain of what was learnt in College. There is a knowledge gap that must be filled in local authorities and other agencies. Engineers Ireland are to be commended for providing continued professional development in using the new Design manual.
- Finance is a formidable challenge. Retrofitting homes is a sustainable economic growth initiative that works. Similar grants should be available to local communities to retrofit increased walkability. In Dublin much of the capital spend in transport is going into sustainable transport and travel. However the vast bulk of this is being directed at the Luas Cross City project.
- It appears that less than 5% of capital spend over the last few years has been directed directly towards pedestrian initiatives, though of course many other schemes provide benefits to those who walk. Retrofitting will be a game-changer over the next few years, whether it be upgrading buildings to a near-zero carbon standard, or creating more walkable communities. As a councillor, I am only too well aware that our discretionary funding is limited, but I can try and put pressure on decision-makers elsewhere. These are not the ‘grand projets’ favoured by political leaders such François Mitterrand in Paris in the 1980s. All too often the super projects get the limelight whether the be the Eastern Bypass in Dublin, the Galway Dublin cycle superhighway or the Galway City outer bypass. Getting the details right, whether it be loading bays, kerbs or crossing times can be a more uphill task.
- It is crucial that small neighbourhood level schemes are encouraged and recognised such as this simple crossroad improvement schemes from Hackney that prioritises pedestrians.
- An example of that challenge is the area along Liffey Quays in Dublin. Much recent commentary has focused on the Dublin City Centre Traffic Study and on the East-West cycle route between Heuston and the Docklands, but it is worth considering the bridges along the Liffey Quays from a pedestrian’s perspective.
- This graphic represents the River Liffey and the road crossings from Sean Heuston Bridge used by the red line Luas to cross the River Liffey at Heuston Station, and to the east the East-Link lifting road bridge. There are seventeen river crossings that can be used by pedestrian traffic the Loopline rail bridge is omitted. Within this zone there are 118 crossing legs, and less than half of these have signalised pedestrian signals that allow for crossing in one distinct phase. More than one third of the junction legs have no crossing point for pedestrians. It is hoped that the implementation of traffic changes in the city centre might allow for an increase in pedestrian facilities all along the Liffey Quays.
- Here’s a proposal to improve a junction at the East-Link bridge. Perhaps it could do more to favour pedestrian movements.
- Earlier this year I supervised Willy Simon a Dublin Institute of Technology student whose MSc dissertation was ‘Planning for Pedestrians’. He examined the footfall on a stretch of Dublin’s Dame Street, and stated: “Dame Street, is, in most places, beyond Transport For London’s minimum suggested Pedestrian Comfort Level. When this data was brought before the head of planning and engineering in DCC’s Roads and Traffic Department the response was that, although they recognise pedestrian crowding as a serious problem on Dame Street, and one that they would like to address, the demands for providing public transportation access trumps the demands for more comfortable footpaths.” This points towards a need to reallocate road space towards those who walk, and to ensure that pedestrian needs are further prioritised. I am pleased that Dublin City Council’s Corporate Plan now puts pedestrians first, as a result of pressure from councillors including myself. Currently I am working on line-by-line changes in the City’s next Development Plan that will reflect this.
- A first step is to normalise the pedestrian as a road user. That means rethinking their needs. All involved in the management of road space must understand each road users’ perspective. The pedestrian should get behind the wheel of a car, the cyclist should take the bus, and all should take to the streets and try walking through a busy junction.
- At an institutional level Transport Infrastructure Ireland is seeking to address the needs of pedestrians through traffic calming schemes, but given that its primary aim is the provision of rail and road infrastructure, the needs of pedestrians do not sit comfortably within this framework. The National Transport Authority in its 2003 Traffic Management Guidelines focussed on the traffic function of roads in its hierarchy within that document and failed to recognise the economic and social importance of roads. The use of guardrails was heavily emphasised within that document. This points towards the need to review the primary legislation - the Roads Act 1993 which focuses on roads and traffic rather than people and places. The Road Safety Authority places undue emphasis on high visibility vests for pedestrians and could do more to stress the importance of driving under the speed limit. The Dublin Transport Authority Act 2008 includes “increased recourse to cycling and walking as means of transport” amongst its functions, and the Public Transport Regulation Act in establishing the National Transport Authority allowed the NTA to provide for “traffic calming measures” including measures which facilitate the safe use of public roads by different classes of traffic … including pedestrians…” There is still a gap however between the modal split targets contained within ‘Smarter Travel’ and the funding available to deliver these by the NTA. In Ireland the establishment of an advocacy group for those who walk in urban areas could assist in making the case for pedestrians. A new organisation ‘Just Walk’ has been active in recent months, and a residents’ group from the Dublin suburb of Phibsboro residents from the ‘Reimagining Phibsborough’ group have made the case for prioritising walking at a recent meeting of Dublin City Council’s Transport Strategic Policy Committee which I chair. There is certainly a space to be filled for an organisation, not unlike the Automobile Association which could act as a pedestrian advocacy group at a national level. The presence of such a group could assist in delivering resources for walking. Perhaps the Department of Transport Tourism and Sport could consider walking as a separate unit from other sustainable transport modes. The late Gertie Shields from the Irish Mothers Against Drunk Driving who died earlier this month campaigned over many years for safer roads and Roseann Brennan from the Jake’s Legacy campaign has worked hard to seek lower speed limits of 30 kph and 20 kph in residential areas since her son Jake died tragically last year. This appears to have influenced the Minister for Transport Paschal Donohoe who recently published new guidelines for ‘slow zones’ across the country in urban areas. Sadly the Irish political system is often more open to personal lobbying than evidence-based research, but in this instance I am pleased with the outcome.
- The green shading appears to dominate this slide... These new Guidelines for Setting and Managing Speed limits will allow local authorities to implement a 30km per hour speed limit in residential areas if they deem it necessary. Perhaps speed limits of 20 kph or even 15 kph are worth considering in certain residential areas. The principle of ‘Strict Liability’ is also worth examining where the motorist is liable if they collide with vulnerable road users like pedestrians and cyclists. This change may focus the minds of car drivers more firmly on safety. Another initiative that can encourage walking is the use of Street Play Orders on an occasional basis. This can encourage people to realise the walkability of their neighbourhoods. The UK based NGO Healthy Places gives guidance on such schemes, and interestingly suggests that the Town Police Clauses Act 1847 can facilitate this. That act appears to be still in force in Ireland and allows for street closings to traffic at “...times of public processions, rejoicings, or illuminations, and in any case when the streets are thronged or liable to be obstructed...”
- In conclusion walking requires a boost at local and national level. -The National Walking Policy promised in Smarter Travel is long overdue. -Walking needs to be more carefully modelled in a way that fully includes health and social benefits. -Due to its inherent sustainability It deserves a greater share of transport funding. -Relatively low cost measures such as wider footpaths, lower speed limits and signalling priority can deliver results. -Local Authorities have a significant role in encouraging and providing for pedestrian movement, but need to be fully resourced in both funding and training to deliver.
- It is my view that the ultimate test of an area’s walkability is whether you can let go of a child’s hand in a public space or beside a public road. This surely determines whether we are truly catering for the needs of pedestrians.
- References DoTTS and DoEC&LG (2013) Design Manual for Urban Roads and Streets (DMURS) DoTTS . (2015) “Guidelines for Setting and Managing Speed limits in Ireland Including guidelines for the application of special speed limits.” Dublin. DOTTS. http://www.dttas.ie/sites/default/files/upload/general/Guide_Speed_Limits_Mar_2015.pdf Accessed 24Aug15 at 1700 Government of Ireland. (2003) “Traffic Management Guidelines”. Dublin. Stationery Office. http://www.nationaltransport.ie/downloads/archive/traffic_management_guidelines_2003.pdf Accessed 24Aug15 at 1700 Government of Ireland, (2009) “Smarter Travel A Sustainable Transport Future A New Transport policy for Ireland 2009-2020”. Dublin. Government of Ireland http://smartertravel.ie/sites/default/files/uploads/pdfs/NS1264_Smarter_Travel_english_PN_WEB.pdf Accessed 24Aug15 at 1700 Hass-Klau, C. (2015) “The Pedestrian and the City”. Oxford. Routledge. Holzapfel, H. (2015) “Urbanism and Transport -building blocks for architects and city and transport planners” London, Routledge Kolbert, E. New Yorker. (24th August 2015). “The Weight of the World Can Christiana Figueres persuade humanity to save itself?”. Condé Nast , New York http://www.newyorker.com/magazine/2015/08/24/the-weight-of-the-world Accessed 24Aug15 at 1700 Leinberger, C. B. and Alfonzo, M. (2012) “Walk this Way: The Economic Promise of Walkable Places in Metropolitan Washington D.C.”. Washington DC, USA. Brookings Institute. Ma Serra, J. (1996) Urban Elements: Furniture and Microarchitecture. Barcelona. Editorial Gustavo Gili. National Transport Authority. (2011a) “Project Appraisal Guidelines Unit 13.0 Walking and Cycling Facilities” http://www.tii.ie/tii-library/strategic-planning/project-appraisal-guidelines/Unit-13-Walking-and-Cycling-Facilities.pdf Accessed 24Aug15 at 1700 National Transport Authority. (2011b) “Transport Modelling Report Greater Dublin Area Draft Transport Strategy 2011-2030 2030 Vision”. NTA. Simon, W. (2015) “Planning for Pedestrians: A Case Study of Dame Street”. Dublin Institute of Technology, School of Transport Engineering, Environment and Planning Steer Davies Gleave. (1994) “Dublin Transportation Initiative Phase 2 Final report”. Dublin. Steer Davies Gleave. Murphy, M. (2012) “Town Origins, morphology and future”. Westport, Murphy.