Framework Development

This Framework recognises the ongoing collaboration that will be made by a wide range of partners to deliver the identified actions. The document has been developed in close collaboration with Cycling Scotland, Sustrans, local authorities, regional transport partnerships, the Society of Chief Officers of Transport in Scotland (SCOTS) and the Convention of Scottish Local Authorities (COSLA), in recognition of the important roles that these and many other organisations play in its implementation.

Key stakeholders were consulted in the development of this Framework and their views are reflected in the document. The Delivery Plan distinguishes between actions that can be delivered in the short to medium term and aspirational actions for the longer-term. However, it is acknowledged that work is already underway to support many of these actions.

Active Travel Transformation Project

Work on the cycling framework commenced in 2019 and was put on hold due to Covid, which in itself has influenced our travel behaviours as mentioned previously. The delay also meant that we will be implementing this Framework in a different policy and funding position than 2019.

In the ‘Bute House Agreement’ between the Scottish National Party and the Scottish Green Party in 2021, it was agreed that at least £320m or 10% of the total transport budget will be allocated to Active Travel (AT) by 2024/25. There is consensus that existing AT delivery models will not be scalable, nor in many cases suitable to meet the ambition of this new budget.

An Active Travel Transformation Project (ATTP) has been set up to assess the current delivery model and inform and implement a new delivery model for the future of AT. The primary objective of the Project is to maximise the opportunities in AT delivery in the short-term (2022/23) and medium term (2023/24-2024/25), to deliver the most effective and efficient achievement of AT outcomes.

Working closely with AT delivery partners, the ATTP is being delivered in two phases. Phase one focuses on Evaluation and Evidence Gathering. This phase aims to assess the existing active travel delivery model by identifying constraints and opportunities. Phase two will use this evidence to Development and Prioritise proposals for changing the delivery model.

The ATTP will culminate in December 2022 with a report to the Minister for Active Travel which will provide evidenced proposals for holistic changes to AT delivery in Scotland.

The Cycling Framework will have cognisance of that report before final publication and will be updated accordingly if required.

Delivery Plan at a Glance

Strategic Themes

Six strategic themes for the Framework have been identified based on feedback from stakeholder consultation, taking account of the wider policy context and through review of good practice examples. These themes illustrate the overarching approach to cycling for transport in Scotland.

Safe Cycling Infrastructure

Deliver dedicated, high quality cycling infrastructure suitable for all
Embed cycling in the design and maintenance of our places and communities and prioritise user comfort and safety

Effective Resourcing

Provide long-term funding and resourcing for the delivery of infrastructure and supporting behaviour change programmes, informed by local transport strategies
Promote and support innovation across the sector

Fair Access

Increase equity of access to cycles and cycling opportunities
Ensure modal integration across the transport network including adapted and non-standard cycles, e-cycles, cargo cycles and cycleshare

Training & Education

Ensure new infrastructure is supported by inclusive promotional programmes, cycling training and other complementary initiatives
Provide opportunities for all to learn to cycle from an early age into adulthood

Network Planning

Prioritise investment based on local transport strategies
Map existing and planned networks to identify gaps and improve consistency of quality and implementation

Monitoring

Expand monitoring networks and align monitoring at local and national levels
Embed learning in future investment decisions

Strategic Theme 1 – Safe Cycling Infrastructure

It is clear from UK and international evidence that the provision of appropriate, safe cycling networks in both urban and rural areas is key to increasing rates of cycling for transport. This is consistent with the findings of Cycling Scotland’s 2015 International Comparator Study of what has brought about change in cycling in other European cities and countries. To achieve this, we will work with local authorities on creating active travel strategies to prioritise investment in the creation of a dense, coherent network of connected cycling infrastructure in every town and city that is segregated from traffic and integrated with public transport.

We know from stakeholder feedback that it is often difficult for local authorities to build new cycling infrastructure quickly so we will remove barriers to the fast implementation of cycling infrastructure, including through changes to the TRO process, and support the use of temporary and trial schemes

Segregated cycling infrastructure is not possible or desirable on every road and, in some locations such as residential streets, segregated infrastructure is not feasible due to available space, cost and other factors. As a result, it will be necessary to implement a combination of different measures, particularly in rural areas, that may include bespoke infrastructure, a network of segregated routes and lower speed limits. And cycling infrastructure isn’t just about building cycle lanes, so we will ensure that we maximise the opportunities to surround routes with green space and improve place making and bio diversity.

To ensure that roads authorities have the flexibility they need when it comes to designing schemes we will provide ongoing development and governance of co-produced design guidance, including on the need to future proof infrastructure for emerging technologies such as e cycles and cargo cycles, and develop a national approach to the creation of quiet road/cycle friendly roads in rural areas with everyday journeys prioritised.

Strategic Theme 2 – Effective Resourcing

The delivery of our ambitious vision for cycling for transport requires increased levels of investment and for this investment to be sustained over a period of time. International evidence suggests that sustained investment of £30-40 per head of population is needed to create the necessary change and ensure that dense well connected networks are produced. In response, we will increase the active travel budget to £320 million or 10% of the transport budget, whichever is greater, by 2024-25. This will equate to approximately £58 per head, which compares favourably with the rest of the United Kingdom and with our continental neighbours such as The Netherlands and Denmark.

We will ensure that our record levels of active travel investment are maintained but we know from stakeholder feedback that how that investment is provided can be a barrier to delivery. In response, we will review options for multi-year, long-term funding for infrastructure, access to bikes and behaviour change programmes so that, where appropriate, our delivery partners can have they assurance they need to move away from annual funding cycles.

Evidence suggests that alongside investment in infrastructure, having the capacity and capability available to deliver cycling networks is key. For example, Finland’s national strategy for walking and cycling includes a commitment to appropriate levels of financial and human resources, and stakeholder feedback highlighted the lack of funding certainty as a barrier.

Increased investment in active travel infrastructure therefore needs to consider the cost of people and skills and not just materials. Through this framework, we will ensure the appropriate level of resource is in place to develop and deliver active travel strategies and ensure that cycling for transport is prioritised appropriately.

Strategic Theme 3 – Fair Access

Enabling access to cycling by all was a key theme coming through the evidence review and stakeholder engagement. For example, Sydney’s Cycling Strategy and Action Plan commits to ensuring that its programmes and communications are inclusive and respond to the needs of its diverse community.

So whilst we know that to be successful we need to build much more cycling infrastructure much more quickly, we also need to ensure that everybody’s need are accounted for at the design stage so we will review funding criteria to ensure that fair access is appropriately weighted and improving accessibility is given an appropriate level of priority. And to ensure that new infrastructure can be used as widely as possible, we will expand access to cycles, including adaptive cycles, e-cycles and cycle share.

In Scotland, household access to bikes scales with income. Whilst 34% of all Scottish households have access to one or more bikes, this falls to just 16% for households with an annual income under £10,000. So it is fundamentally important that we continue to expand our access to bikes initiatives to help redress that balance.

Enabling inclusive access to cycling is crucial to protecting communities and groups whose incomes limit access to cars. We will provide a free bike for all children of school age who cannot afford one. This programme is currently being trialled in Scotland and we expect it will help to create more equitable access to cycling.

Strategic Theme 4 – Training and Education

Evidence suggests that Government support for active travel behaviour change remains a key component of developing cycling for transport. Finland’s National Strategy for Walking and Cycling acknowledges that a major shift in transport habits cannot be affected through new cycling routes alone. In Scotland, the Smarter Choices Smarter Places scheme has shown the benefits of supporting behaviour change. Through this framework we will provide a comprehensive cycle training offer for all life stages, including learning to ride in pre-school, learning to ride on-road through school Bikeability training, and for adults of all ages, including cycle awareness training.

The review of CAPS found that events to support cycling to schools and workplaces and promote cycling more generally were important to increase cycling levels, so alongside our training offer, we will develop a long-term communication plan that represents cycling as something that anyone can do, including with assistance/adaption and is a transport mode that brings many benefits to Scotland.

We need to take people with us on this journey of change. When delivering new cycling infrastructure, the process should empower people and not leave them feeling left behind. Stakeholder feedback consistently highlights the importance of good public engagement, communications and local political leadership, and international evidence backs up this conclusion. Under this framework, we expect local authorities to provide communities with the tools they need to engage effectively and shape their own local areas. To support this, we will provide local authorities with resources and guidance on communication and engagement and share examples of UK and International best practice.

Strategic Theme 5 – Network Planning

We need to ensure coherence and consistency in the planning and delivery of cycling networks across the country. In Ireland, the Government mandates that every local authority adopts a high-quality cycling policy, carries out an assessment of their roads network and develops cycle network plans. And in Wales, the Government requires local authorities to prepare detailed active travel network plans for every settlement which is linked to the provision of Government funding for active travel routes.

Through this framework, local authorities in Scotland will be required to produce active travel strategies for each local authority area, setting out plans to improve active travel networks and facilities to 2030. These strategies should include detailed mapping and use an evidence led approach to network planning.

We will use these active travel strategies to create a network blueprint for Scotland, so that everybody can see at a glance the current and planned network of cycling infrastructure in every local authority area, links to and from public transport interchanges and services where the carriage of bikes is included. This will be a crucial resource to help plug gaps in provision and aid regional coordination and cooperation.

Strategic Theme 6 – Monitoring

As our strategic cycling network grows and develops, it is vitally important that we are able to gather data on key metrics, such as usage, quality, distance and others. We already have a comprehensive monitoring network in place but through this framework we will expand and align monitoring and reporting of cycling levels at local, city, regional and national level.

And we will use our improved and expanded monitoring network to continuously monitor and evaluate the impact of active travel investment and embed learning in future investment decisions, enabling local authorities to act with the confidence that they are making the right interventions in the right places, supported by the best available evidence.

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