Cycling Infrastructure in Cities: Bogotá’s Quinto Centenario Cycle Avenue
CREATING THE ENABLING ENVIRONMENT About the C40 Cities Finance Facility
The C40 Cities Finance Facility (CFF) facilitates access to finance for climate change mitigation and resilience projects in urban areas by providing technical assistance to develop cities’ sustainability priorities into bankable investment proposals.
The CFF aims to deliver project preparation and capacity development, and to widely share knowledge and establish partnerships between cities and financiers. Funded by the German Federal Ministry for Economic Cooperation and Development, the Government of the United Kingdom and the United States Agency for International Development, the initiative is implemented by Deutsche Gesellschaft für Internationale Zusammenarbeit (GIZ) GmbH together with the C40 Cities Climate Leadership Group. Bogotá, Mexico City and Durban are the first cities to receive technical assistance.
Disclaimer: This report is based on project documents, including update reports, presentations, and technical studies, for the Quinto Centenario project.
Please cite this publication as either:
• Moro, Aris, Andrew Eil, and Prajwal Baral (2018). “Cycling Infrastructure in Cities: Bogotá’s Quinto Centenario Cycle Avenue – Creating the Enabling Environment”.
• C40 Cities Finance Facility (2018). “Cycling Infrastructure in Cities: Bogotá’s Quinto Centenario Cycle Avenue – Creating the Enabling Environment”.
2 3 Contents
Executive Summary 6 1. Introduction 8 1.1 Planning Cycling Infrastructure 8 1.2 Financing Cycling Infrastructure 9 1.3 Benefits of Cycling Infrastructure 9 2. Bogotá, Colombia: A City (Re)Dedicating Itself to Cycling Infrastructure 10 2.1 The CicloRutas 10 2.2 Plan Bici 12 2.3 Key Characteristics of Cycling in Bogotá 13 3. Quinto Centenario (5C) – Preparing and Implementing Bogotá’s first ‘Cycling Avenue’ 14 3.1 Governance 16 3.2 Investment 17 3.3 Stakeholder Engagement 19 3.4 Political Leadership 20 3.5 Workplan Development 21 3.6 Remaining Challenges 22 4. Lessons Learned 20 5. Conclusion 21 Bibliography 22 Acknowledgements 23
4 5 Executive Summary
Cities are key to addressing climate What Bogotá has done, however, even at this early stage, has already yielded many lessons change. To mitigate and adapt to for other cities wishing to create an appropriate enabling environment for the development of it, however, large investments in cycling infrastructure: sustainable infrastructure are required • Citizens’ ownership and a supportive culture in sectors such as transport, energy, for cycling are essential to the success of cycling buildings and waste. Trillions in infrastructure projects, and to ensuring their legacy across different city administrations. infrastructure spending worldwide • To be successful, projects of this importance should are needed to meet demand, and, to be included in and supported by broader urban deliver these investments, cities face development and mobility strategies. the universal challenge of accessing • Support by high-level local government officials, finance, be it public or private, local, particularly the mayor or mayors of involved cities, is key to the success of ambitious infrastructure projects national or international. such as the Quinto Centenario project. • The creation and updating of an overarching New initiatives such as the C40 Cities Finance Facility (CFF) document that outlines the project’s progress is a are bridging the gap between cities and finance. The CFF crucial project management tool. facilitates access to finance for climate change mitigation and resilience projects in urban areas by providing technical • Cities interested in replicating projects such as the assistance to develop cities’ sustainability priorities into Quinto Centenario ought to carefully consider the bankable investment proposals. Bogotá is one of the cities objectives of any new institutional framework before receiving technical assistance during the CFF’s first phase. implementing one. The CFF’s goal is to support a cycling transformation in Bogotá through the development of new, high-quality Bogotá, through the Quinto Centenario project, cycling infrastructure. The city is building on its past is consolidating its role as a leader on cycling and efforts and is undertaking an ambitious plan to build new sustainable mobility in Latin America and in the world. infrastructure. The Quinto Centenario project, a planned, Upcoming reports on the project’s prefeasibility safe and fast cycling avenue, symbolises how Bogotá’s and feasibility stages and on its financing strategy cycling infrastructure will look in the near future. will provide a complete picture of how Bogotá has worked to implement the Quinto Centenario project The CFF’s assistance has so far helped Bogotá in developing throughout the project development phase. a governance system, scoping the mobilisation of potential financing sources, engaging key local stakeholders such as cycling groups and businesses, and creating a detailed workplan for the Quinto Centenario project. Mayoral leadership and support from the national government have proven crucial in ensuring continued focus. The city still faces a number of important challenges in implementing the Quinto Centenario project, such as inadequate security, competition for road space, limited resources, and may yet face resistance from negatively impacted stakeholders.
6 7 1. Introduction
Since the middle of the twentieth century, the world’s rapid urban growth has ushered in a dramatic rise in the use of 1.1 Planning Cycling 1.2 Financing Cycling 1.3 Benefits of Cycling private cars. Policies have tended to accommodate rather than limit this growth, resulting in urban sprawl and ever- Infrastructure Infrastructure Infrastructure increasing demand for private, motorised travel. However, car-centric urban transport has many negative social and environmental consequences, including air and noise There are a number of approaches to planning and Cycling is one of the most sustainable and cost-effective Although the financial costs of cycling infrastructure may be pollution, traffic accidents, high levels of traffic congestion – developing cycling infrastructure. One approach is the means to improving transport. Unlike roads or public transit hard to recoup, the social and economic benefits of cycling leading to lost time and productivity – high greenhouse gas ‘network/segregation approach’ that aims for cycling to systems that require extensive and expensive construction are enormous. In Amsterdam, for every dollar invested emissions, and increased social inequality. These challenges develop ‘separate, dedicated infrastructure, with its own projects, cycling infrastructure need not be large-scale to in improving cycling infrastructure, the city enjoyed USD are repeating themselves in developing country cities, which technical design norms. The basic assumption is that cycling succeed in improving mobility within the city and in reducing $1.50 in benefits (UN HABITAT, 2013). Similar calculations is where approximately 90 per cent of global population and road traffic are incompatible, so separate networks travel times. Cycling infrastructure entails lower capital and for Delhi, Bogotá, Mexico City and Houston estimated growth is expected to occur in the coming decades (UN are needed for safety and to serve the needs of both.’ operating costs, and often has the smallest construction the ratio of benefits to costs to be 20:1, 7:1, 6:1, and 2.38:1, DESA, 2014). The ‘holistic/mixing approach’ attempts to reclaim for footprint among all transport modes (UN HABITAT, 2013). respectively (C40 Cities, 2016; C40 Cities, 2017). In Mexico cycling the entire network of existing streets and roads. Cycling infrastructure also has low costs for users: only City and Houston, these benefits were found to be diverse These risks have been highlighted for decades, and so have This approach recognises the need to adapt existing urban energy is required – bicycle rental and parking fees, if and sometimes surprising: they include reduced traffic corresponding solutions. The issue has, however, seen environments into ‘high-quality urban public space, shared needed, are usually low-cost – and bicycles are usually and air pollution, improved public health outcomes due renewed interest in recent years. The New Climate Economy by all and open to various social uses’ (PRESTO, 2010). inexpensive (ibid.). to exercise and better air quality, increased commercial (2014) urges urban planners and designers to shift to A hybrid approach may employ mixed approaches and activity and jobs, lower crime, lower urban temperatures, compact, connected and coordinated urban development, ‘invisible’ cycling infrastructure (e.g. traffic calming, traffic Despite its relatively low costs, cycling infrastructure is sorely lower greenhouse gas emissions, and more affordable urban including integrated transport systems to connect mixed- reduction, junction treatments and speed management) lacking in many urban areas. This is primarily because urban mobility (C40 Cities, 2016; C40 Cities, 2017). use, employment, housing and commercial clusters. The (PRESTO, 2011; PRESTO 2010). planning and transportation policy has actively promoted international community has also introduced the concept of private motorised vehicles at the expense of sustainable sustainable urban mobility as a key development objective modes of transport such as cycling (ibid.). Additionally, in Sustainable Development Goal 11 (UN, 2015; see Box 1). Any cycling infrastructure, whether segregated cycling developing a financially sustainable business model to cover Ratio of benefits to costs The New Urban Agenda and the Brasilia Declaration on Road paths or integrated on existing roads, has six main capital and operating costs and deliver cycling infrastructure Safety have recently articulated this vision of transportation components and numerous sub-components (GIZ, 2011) is not straightforward. in cities, with the latter calling for ‘rethink[ing] transport With respect to capital costs, the lack of viable financing 20:1 Delhi policies in order to favour more sustainable modes of options has proved to be an obstacle. Financing for cycling transport’ (WHO, 2015). Cycle ways (primary infrastructure is usually limited to government funds (ibid.), network) with cycling often being completely ignored or allocated 7:1 Bogotá BOX 1 an insufficient budget. Financing through debt markets 1 2 3 or public-private partnerships to raise capital for up-front Sustainable Development Goal (SDG) 11: “Make cities inclusive, safe, resilient and sustainable.” One of the infrastructure investments is often essential, but has Intersections targets associated with SDG 11 relates to transport: proved elusive: cycling infrastructure does not generate 6:1 Mexico City “By 2030, provide access to safe, affordable, accessible revenue through fares or tolls, hence private investors and and sustainable transport systems for all, improving international lending agencies are often unwilling to provide Traffic management Meshed project-based financing due to fears of missed repayment. road safety, notably by expanding public transport, (e.g. electronic signals, network of 2.38:1 Houston with special attention to the needs of those in signs, on-pavement cycle paths To cover operating costs, cities may draw from revenues vulnerable situations, women, children, persons indicators, physical (secondary from advertising and corporate sponsorships (e.g. Barclays with disabilities and older persons.” UN, 2015. and painted lane network) Bank formerly and now Santander Bank for London’s UN HABITAT, 2013; C40, 2016; C40, 2017 dividers) bike-sharing system). However, this is often limited and is FIGURE 2 still not sufficient to cover operating costs – as is the case Increasing the sustainability of transport in cities requires 4 for most public transport infrastructure. A public subsidy is both old and new approaches. Walking and cycling have long Public transport often required. (symbiosis been the cornerstone of urban mobility, but, after decades between cycling of neglect, they are slowly making a comeback as viable Services and public transit transportation options. Cycling is the focus of this report. 5 (safety services, bicycle6 sharing and rental programs, bicycle repair services, cycle parking)
GIZ, 2011 FIGURE 1
8 9
2. Bogotá, Colombia: A City (Re)Dedicating X SEMA N A Mapa Red de CicloRutas D E L A
24 23 39 26 2 S E PTI E MBRE 24 - OCT UBRE 1 Itself to Cycling Infrastructure 27 28 6 7 La Aguas 5 34 40 9 4 32 29 8 3 25 33 31 10 21 22 30
Bicentenario 1 Alcalá 17 18 Portal 20 de Julio 38
41 Cycling has long been rooted in Colombian culture. In cities, Ricaurte 16
this tradition was largely lost as the country underwent a 15 Quinta Paredes 19 Population (2016): process of urbanisation in the twentieth century. In urban 20 areas, cycling has been, until very recently – and in many 7,980,001 45 circles remains – regarded primarily as a sport or as an Av. Rojas
43 Paredera General Santander activity for children, and not as a mode of transport. There is CONVENCIONES 14 CicloRutas existentes Marsella GDP (2014): 37 12 46 also a widespread belief that cycling is only for those who Portal Suba Vías principales 42 Portal 80 Troncales TransMilenio Portal El Dorado $159,850,000,000 cannot afford a motorcycle or a car instead. These views Mundo Aventura Mundo Aventura CicloParqueaderos con are starting to change as Colombian cities such as Bogotá, Sello de Calidad CicloParqueaderos 35 Medellín, Cali, Montería, Pasto, Manizales, among others, TransMilenio Banderas CicloParqueaderos en 36 Puntos de Encuentro have begun to embrace cycling and to provide cycling del IPES 13 11
infrastructure (Pattiasina & Pinzón, 2015). 44
Tintal
CicloParqueadero Dirección Portal Sur Portal Américas Following a campaign by activists, in 1974 Bogotá organised 1. BodyTech Auto Norte Auto. Norte # 166 - 56 C.C. Show Place Cll. 147 # 7 - 70 2. San Mateo its first ‘Ciclovía’ (Hidalgo, 2014). The Ciclovía, now a popular 3. C.C. Metro 127 Cll. 127 # 15A - 03 4. City Parking Cll. 109 Cll. 109 # 17 - 46 5. City Parking Cll. 95 Cll. 95 # 11A - 67 cycling event taking place from 7 a.m. until 2 p.m. every 6. City Parking Cra. 11A Cra. 11A # 88 - 49 7. City Parking Cll. 82 Cll. 82 # 10 - 69 Sunday and on holidays, involves the closure to vehicles of 8. BodyTech Chapinero Cra. 7 # 61 - 47 9. U. Manuela Beltrán Av. Circunvalar # 60 - 00 CicloParqueadero Dirección 10. Fonade Cra. 13 # 25 - 31 23. Fundación Santa Fe Cll. 116 # 7 - 02 120 kilometers of main roads to allow people to cycle, run 11. BodyTech Kennedy Tv. 78J # 41F - 05 Sur 24. Medical Center Cll. 119 # 7 - 14 FIGURE 4 12. Bazaar Alsacia Cll. 12 B # 71 D - 61 25. BodyTech Plaza Cra. 19 # 102 - 31 CicloParqueadero Dirección or walk without traffic; as many as 1.5 million cyclists and 13. C.C. Fiesta Fontibón Cra. 100 # 18 -59 26. Capital Tower Av. Cll. 100 # 7 - 33 14. BodyTech Normandía Av. Cra. 72 # 49 - 15 27. Edificio Pijao Cra. 11 # 98 - 07 37. World Business Center Cra. 86 # 51 - 66 15. Centro Cultural y Biblioteca Cll. 170 # 67 - 51 28. MegaTower Av. Cll. 100 # 13 - 21 38. C.C. Santafé Auto. Norte # 183 - 49 others take advantage of it every week (Cervero et al., 2009). Julio Mario Santodomingo 29. Torre Zimma Cra. 15 # 88 - 64 39. C.C. Palatino Cra. 7 # 138 - 33 16. BodyTech Colina Cll. 138 # 58 - 74 30. Body 83 Cra. 19B # 83 - 05 40. C.C. Andino Cra. 11 # 82 - 71 Bogotá’s initiatives to close roads to vehicular traffic have 17. C.C. Iserra 100 Tv. 55 # 98A - 66 31. Park 85 Cll. 85 # 16 - 07 41. C.C. San Rafael Cll. 134 # 55 - 30 18. Homi Av. Caracas # 1 - 13 32. Claustro de la Enseñanza Cll. 70A # 8 - 00 42. C.C. Plaza Imperial Cra. 104 # 148 -07 19. Sultana Cll. 12 Sur # 31 - 37 33. U. Católica de Colombia Cll. 47 con Cra. 13 43. C.C. Centro Suba Cll. 145 # 91 - 19 been replicated in several other cities across the world; cities 20. C.C. Titán Plaza Av. Boyacá # 80 - 94 34. Hotel Atton Cll. 93 # 12 - 41 44. C.C. Tintal Plaza Av. Ciudad de Cali con Av. de las Américas 21. City Parking Cra. 19 Cra. 19 # 125 - 17 35. Buro 26 Av. El Dorado # 102 - 20 45. C.C. Centro Mayor Av. NQS con Calle 38A Sur across Colombia have put in place Ciclovías, as have others 22. Santa Bárbara Drive Cra. 19 # 122 - 49 36. Cargo Port Av. El Dorado # 106 - 39 46. C.C. Plaza de las Américas Tv. 71D # 26 - 94 Sur in Latin America, such as Santiago, Quito, and Mexico City, Chicago (90-15) and even cities in the United States and India (Hidalgo, 2014). Boston (90-15) Bogotá also schedules the Día sin Carro every year, a car- Today, the CicloRutas in Bogotá cover 476 km and connect city – both artificial and natural features, including services, London (90-15) free day which began in 2001; in 2015, the city’s 15th annual citizens to major BRT routes, parks, and community centres amenities, hills and waterways – to create the best possible Total reported (Uniman, Duarte and Cruz, 2017; see figure 1). The design of flow and function (C40 Cities, 2011). Paris (91-10) GHG emissions car-free day, Bogotá also kept the streets motorcycle-free for the first time (Rogala, 2015), and in 2017, 1.8 million bicycle the CicloRutas took into consideration the topography of the Buenos Aires (02-15) (2015): 12.4 Mt City leader: Mayor Chicago (90-15) trips were registered. Seattle (90-15) CO2e per year Enrique Peñalosa London (90-15) Santiago (01-12) FIGURE 3 Cycling Paris (91-10) Washington (90-15) in Bogotá grew San Francisco (90-15) Buenos Aires (02-15) from 0.6% of all daily trips in 1995 Vancouver (96-11) Santiago (01-12) to 6.0% in 2015, Minneapolis (90-15) a 9-fold increase spent annually on cycling infrastructure in that era (Hook, Washington (90-15) Bogota (95-16) 2.1 The CicloRutas 2004, in Cervero et al., 2009). Vienna (93-15) The rapid construction of over 400 km of protected cycle Portland (90-15) Building on the popularity of the Ciclovía, since the early tracks in the 1990s led to a cycling boom in the city. Since Portland (90-15) Sevilla (00-15) 1990s, and particularly during Enrique Peñalosa’s first term the construction of the CicloRutas, the share of daily trips Sevilla (00-15) as mayor (1998-2001), Bogotá invested heavily in cycling by bike has quintupled from under 1 percent in 1995 to an Berlin (92-13)
infrastructure, building a world-class network of cycle estimated 5 to 6 percent of all trips as of 2016. This figure Copenhagen (95-13) Munich (89-11)
lanes, known as ‘CicloRutas’. During the construction and has continued to increase throughout, even despite a lag in Copenhagen (95-13) implementation of the TransMilenio, Bogotá’s iconic Bus construction of new cycling routes and infrastructure since Amsterdam (90-13) Rapid Transit (BRT) system, cycle lanes were built alongside 2001: from 2005 to 2011, the cycling trips rose 57%, and from Amsterdam (90-13) the trunk lines, as well as through various city districts, 2011 to 2015, there was an increase of 30% of bicycle trips 03x6x9x 12x 15x providing a broad socioeconomic cross-section of the (Buis and Guzmán, 2017). Bogotá boasts one of the world’s largest and most rapid increases in cycling as a share of all population access to many destinations in the city. The FIGURE 5 US$180 million that the city spent on bikeways from 1990 to urban trips. Increase in cycling mode share in Europe and the Americas, ca 1990-2015. 2002 was about half the amount the entire United States Edited from Pucher & Buehler (2017).
10 11 2.2 Plan Bici 2.3 Key Characteristics
Re-elected for a second term in 2015, Mayor Peñalosa of Cycling in Bogotá has committed to invest in cycling and public transport infrastructure to make it the best in the developing world. In 2015, 635,000 daily bicycle trips were made in Bogotá His administration has set a long-term target to double the (Bogota D.C. Plan Bici, 2018); a large portion of these trips CicloRutas network in extent over the next twenty years. The are made in western, lower-income areas, such as Suba, 37% by bus goal, echoing a similar commitment made in Mayor Peñalosa’s Engativá, Kennedy and Bosa (Bogota D.C. Plan Bici, 2016). first administration (Peñalosa, 2002), is to promote cycling Corresponding to roughly 5% of all trips, the mode share over motorised travel in newly built neighbourhoods and of cycling compares with 37% of all trips being by bus to ingrain a ‘bicycle consciousness’ in the minds of younger (Transmilenio BRT and feeders), 32% by foot, 11% of trips by citizens (Bogotá D. C., Plan Bici, 2016). The administration has car, 4% by taxi, and 4% by motorbike (Héndez, 2016). a grand vision to be achieved by 2038 (the 500th anniversary of the city’s founding) of making Bogotá the ‘cycling capital of the world’ (ibid.), and having bicycle routes within 500 meters of every household in the city (ibid). 5% cycling mode share 4% by motorbike 4% by taxi 32% by foot
Héndez, 2016 Transport method of daily 11% by car FIGURE 7 o e s e n o e s trips in Bogotá