H. Pilko, K. Tepeš, T. Brezina: Policy and Programs for Cycling In The City of Zagreb – A Critical Review HRVOJE PILKO, Ph.D. Trafic Planning E-mail: hrvoje.pilko@fpz.hr Preliminary Communication University of Zagreb, Submitted: Dec. 8, 2014 Faculty of Transport and Trafic Sciences Approved: Oct. 6, 2015 Vukelićeva 4, 10000 Zagreb, Croatia KRUNOSLAV TEPEŠ, Ph.D. Candidate E-mail: krunoslav.tepes@zagreb.hr City of Zagreb, City Ofice for Physical Planning, Construction of the City, Utility Services and Transport, Department for Transport Trg Stjepana Radića 1, 10000 Zagreb, Croatia TADEJ BREZINA, M.Sc. E-mail: tadej.brezina@ivv.tuwien.ac.at Vienna University of Technology, Institute of Transportation Gußhausstraße 30/230-1, A-1040 Vienna, Austria POLICY AND PROGRAMS FOR CYCLING IN THE CITY OF ZAGREB – A CRITICAL REVIEW ABSTRACT of citizen mobility and city development. Cycling as a means of transport enables changes in planning, or- Studying cycling trafic issues in a beginner city – City ganisation and management of trafic demand, espe- of Zagreb, stems from unclear development policy, an in- cially in urban centres. Cycling is therefore considered crease in cycling volume, a large number of trafic acci- [2] as a vital measure in creating and choosing an op- dents, an inadequate infrastructure and legislation, a small timal trafic demand management strategy. number of high quality studies and published papers, and the question, did current cycling policy and programs ad- Certain cities have in the last ten years doubled or vance cycling? A comprehensive search of available liter- quadrupled the number of cycling trips while serious ature, including data from the Zagreb Trafic Department, cyclist injuries decreased by 10 to 40% [1]. Apart from was made. These data do not adequately address the direc- the registered demand, space availability and appro- tion of causality, such as whether current cycling policy and priate cycling infrastructure are basic prerequisites for programs advance cycling or whether cycling demand led to the development of cycling trafic. According to previ- increased levels of cycling. This review paper suggests that, ous studies [3,4], attributes which deine a quality cy- it is not yet possible to evaluate which pro-bicycle packages cling infrastructure are: a roadway’s physical, function- are the most effective and, development of cycling trafic requires a coordinated holistic planning strategy. Results al and operational characteristics (lane width, design could serve as a beacon light for similarly sized beginner speed, manoeuvring space, existence of sharp turns cities, especially those who are located in South-eastern and obstacles), motor vehicle speed, intersection and Eastern Europe. sight distance, presence of intersections and street trees (shading). Advantages, disadvantages, and ex- KEY WORDS periences of cities and countries under development, implementation and evaluation of cycling trafic policy cycling trafic; policy and programs; legislative regulations; and program measures are demonstrated in detail by sustainable urban mobility; City of Zagreb; Pucher et al. [1]. Thus, we orient our framework on Pu- cher et al. [1] to study the City of Zagreb (Zagreb). 1. INTRODUCTION An insuficiently clear development policy, a non-ex- isting systematic monitoring and analysis of the cur- Besides contributing to the health of its users, cy- rent state, an increase in cycling volume, a large num- cling also decreases air pollution, carbon emissions, ber of trafic accidents, inadequate infrastructure and congestion, noise and other harmful effects of car use legislation, a small number of high quality studies and [1]. Systematically developed cycling trafic is, along published papers and the question, if current cycling with an adequate public transportation, one of the policy and programs did advance cycling, are reasons most signiicant forms of achieving sustainable level to study the problems of cycling trafic in Zagreb. Promet – Trafic&Transportation, Vol. 27, 2015, No. 5, 405-415 405  H. Pilko, K. Tepeš, T. Brezina: Setting the Port Planning Parameters In Container Terminals through Bayesian Networks So, the main purposes of this paper are: (1) study, Considering a comprehensive search of work done describe and analyse the current state of cycling on cycling trafic in Zagreb, one can conclude that the trafic; (2) list and describe implemented policy and initial research was the critical analysis of the current program interventions to promote cycling; (3) show state. Study methodologies varied notably in type and on where and to what extent these interventions are quality. Thus, Kelčec-Suhovec [10] presents the pos- currently being implemented; and (4) assess the ac- sibilities, the general need for considering the devel- tual impacts of various interventions on the level of opment of cycling within the GPUZ, and the utilisation cycling in Zagreb. For this purpose, a comprehensive of the bicycle as a means of commuting. Also, Kelčec- search of relevant and available literature has been Suhovec and Matos et al. [11] state the importance made. Results and recommendations of Kljucaric et of city authorities in the development of cycling trafic. al. [5] were used as a basis for this study. Data from Later writings emphasised the advantages of cycling the departments of Urban Development and Trafic, for the environment and human health [12], and the which greatly contributed to the quality of the analysis, need to implement a PBSS [13]. were also used. Section number two enumerates known basic cy- 2.1 Volume cling data of Zagreb in terms of volumes and safety, while the pro-cycling policies and measures are de- For the purpose of a trafic study [14], irst oficial scribed in section three. Section four discusses this cycling volume data was recorded in spring 1998 with appraisal to lead to section ive where conclusions are the help of a household survey on 1.200 respondents. drawn. This research showed that only 0.7% of the daily trips were made by bicycle. It is interesting to note that 2. BASIC DATA ABOUT CYCLING TRAFFIC 51% of households claimed to have at least one bicy- IN ZAGREB cle. In the study performed by ISIP-MG [15], manual counting of cycling trafic was conducted at 16 loca- The administrative surface area of the City and tions on walkways with cycling lanes on the city’s bus- County of Zagreb covers 3,701 km2 (6.53% of the Re- iest trafic corridors. Measurements were conducted public of Croatia), and is inhabited by 1,107,623 resi- for one week in April 2010 from 11.00 a.m. to 1.00 dents, according to the census of 2011, or 25.84% of p.m. and from 3.00 to 5.00 p.m. (Figure 1.a). Weather Croatia’s population [6]. In 2013, there were 470,787 conditions were appropriate: it was mostly sunny with motor vehicles registered, constituting a motorization dry pavement, but data about air temperatures is not rate of 425 vehicles per 1,000 inhabitants [7]. Zagreb known. Based upon these limited measurements, it covers lat and hilly terrain of 641 km2. Of this area, can be assessed that there is a certain amount of in- 67% is lat terrain with slopes up to 8.8% and lowland crease in cycling trafic (Figure 1.a). Furthermore, the climate (average annual air temperature is 10.4 °C with Faculty of Transport and Trafic Sciences (FTTS) from average annual rainfall of 923.3 l/m2) [8,9]. Planning the University of Zagreb measured cycling trafic at of cycling trafic began in the 1980s when the irst Gen- certain locations for the needs of the project CiViTAS eral Plan for Urban Zoning (GPUZ) was passed. At that ELAN Zagreb [16]. Measurements were conducted for point, cycling trafic and provided infrastructure were one week in April 2008 and 2012 from 4.00 to 5.00 exclusively oriented toward recreational and sports pur- p.m. Both measurements [15,16] were performed poses (e.g. recreational and sports centre “Jarun”). manually. Weather conditions were appropriate: it was a) Hourly trafic at 16 locations b) Average number of cyclists at four locations 140 350 11 a.m. – 1 p.m. 3 p.m. – 5 p.m. 2008 2012 120 300 291 Number of cyclists in 2010 Average number of cyclists 273 100 250 241 80 200 155 60 150 97 40 100 71 20 50 43 36 0 0 CIVITAS ELAN Vukovar Avenue Hebrangova Gundulićeva Ba Du reet Av de nd ova nik Se a S t SR a S t em t Sq Stre čke Z He Av tza Kl ga II. t Vu eva eet on r Av t ue Za st nue I. v ee e Nj tree M ćev ree e Za re/ HB ue lsk tre Sl ova tre an nue eb bo sk en Info point Street Street A. reb Ha Gu er rov iće Str tić Str a M Ave ue St St en S ua et gr slo b e P. en va ar a (Savska Street) a Av tiće o ai br ul k u o g m av l Pa av isl m To Figure 1 – Cycling volume: a) hourly at 16 locations [15] and b) average number at four locations [16]. 406 Promet – Trafic&Transportation, Vol. 27, 2015, No. 5, 405-415  H. Pilko, K. Tepeš, T. Brezina: Setting the Port Planning Parameters In Container Terminals through Bayesian Networks Table 1 – Absolute and relative numbers and consequences of trafic accidents involving cyclists in the Republic of Croatia (CRO) and Zagreb (ZG) for 2011 and 2012 [7]. absolute numbers per 10,000 population of entity ZG per CRO CRO – Croatia [%] 2011 2012 2011 2012 ZG – Zagreb CRO ZG CRO ZG CRO ZG CRO ZG 2011 2012 participants 1,486 414 1,474 404 3.47 3.74 3.44 3.65 27.9 27.4 fatalities 29 7 23 2 0.07 0.06 0.05 0.02 24.1 8.7 injured 1,210 297 1,227 309 2.82 2.68 2.86 2.79 24.5 25.2 seriously injured 351 84 337 85 0.82 0.76 0.79 0.77 23.9 25.2 slightly injured 820 229 797 238 1.91 2.07 1.86 2.15 27.9 29.9 sunny with dry pavement and air temperatures were relation to 2011, Table 1 shows a signiicant reduction normal for this time of year in these areas (Figure 1.b). in the number of fatalities by as much as 250% and By comparing the results one can conclude that at the the total number of accidents by 2.5%. However, the observed locations a signiicant increase in cycling number of injured (seriously and slightly) increased trafic was recorded between 2008 and 2012, ranging by 3.9%. According to statistical reports [7], the most from 17.2% to even as much as 72.3%. frequent causes of trafic accidents involving cyclists In 2008 authors [17] conducted a survey between are the following: failure to use cycling paths/lanes, students on ive faculties of the University of Zagreb riding on sidewalks, and no lights at night. It should be that are located in the central part of Zagreb and con- mentioned that during 2012 about two thirds of trafic cluded that less than 7% of the student population use accidents involving cyclists were caused by cyclists. bicycle as a means of transport regularly. In June of Based on the comparison of data in Table 1, we 2010, under the PRESTO project, a survey was con- can conclude for 2012 that the share of trafic acci- ducted using a sample of 600 students of the Univer- dents involving cyclists in Zagreb compared to Croatia sity of Zagreb [18]. The research showed that a third amounts to 27.4% of all accidents, 8.7% of all fatalities of the students use the bicycle to get to the University and 25.2% of all injuries, which is in line with popu- on a daily basis. lation distribution as Zagreb is about one quarter of The ELAN project [16] resulted in data on Modal Croatia’s total population. The per capita accident rate Split which was collected by carrying out a survey at issues Zagreb a better rating than the total country in the City level. For the population of 779,000 inhabi- terms of fatalities, injured and seriously injured. For tants (oficial number of citizens of Zagreb at 2009), slightly injured and participants, Zagreb has igures with an error margin of 5%, a conidence level of 95% slightly less favourable than the country. and a proportion of 0.5 the required sample size is 384. In 2009 501 correctly completed questionnaires 3. CYCLING POLICY AND PROGRAMS were obtained and in 2012 that number was 504. IN ZAGREB The statistical error in 2009 equals to 4.38%, while in 2012 the error is 4.36%. The sample was stratiied by The following section summarizes the develop- neighbourhoods and by age population. The share of ment and implementation of pro-cycling policies and cyclists in the modal split for 2009 was 2.96% and for measures in Zagreb, hence, in the earlier stage the 2012 it was 4.0% (Figure 3). presence of a Bottom Up approach (citizens, activists, In an attempt to form a better trafic database on associations), and more recently a Top Down approach the volume of individual modes of transport, the city (Mayor, Politicians, Municipal Departments). authorities plan to create the Trafic Strategy of Zagreb and the belonging trafic model in 2015. 3.1 Administrative framework 2.2 Safety Responsible for the planning, implementation and coordination of the cycling trafic program in the City The Zagreb Police Department (ZPD) is responsi- and County of Zagreb is the municipal “Trafic Section” ble for trafic safety monitoring in Zagreb and Zagreb department. In coordination with representatives of County. The data for 2011 and 2012 on the number the Cyclists Union and cycling associations they de- and consequences of trafic accidents involving cy- ine, in line with available inances and regulations, im- clists is shown in Table 1. Unfortunately, data com- plementation priorities for individual activities. Some piled by the ZPD for 2013 and previous years was not of these activities are: visiting disputed locations and available. In general, the number of trafic accidents suggesting measures that can therein be implement- involving cyclist with 409 per year is big. For 2012, in ed; taking part in the making of trafic solutions for Promet – Trafic&Transportation, Vol. 27, 2015, No. 5, 405-415 407  H. Pilko, K. Tepeš, T. Brezina: Setting the Port Planning Parameters In Container Terminals through Bayesian Networks the forthcoming reconstructions and building of public lanes in Southern part of Savska and Frankopanska trafic surfaces; and analysing the cycling safety lev- Street, where a two-way cycling lane, 1.8 m in width el. So, development of cycling policies in Zagreb is fo- and 2,500 m in length, is planned. In the next 15 to cused on interventions that can be deined as follows: 20 years, in alignment with the GPUZ, cycling paths the development of cycling infrastructure, implemen- are projected to be extended by 5 to 7 km per year. tation of a PBSS, amending legislation for cycling traf- The priority for expansion is to close gape in the route ic and various educational and marketing activities. network. Therefore, in collaboration with the cycling associations, a need to introduce a “cycling magistral” 3.2 Cycling infrastructure (Figure 2 – upper left corner) was identiied. This would enable an unobstructed connection from East to West. From 1995 to 2010, cycling paths have been grad- The “cycling magistral” is intended to be two-way and ually created and reconstructed to a inal extent of at least 2.5 m wide. 210 km. From 2010 to May 2014, an additional 21 Various technological measures are being taken km were added to this in the wider city area, as well to further develop cycling infrastructure: removing ur- as 138 km of recreational and sports cycling trails on ban-architectural barriers (lowering of curbs and bev- the Zagreb side of Medvednica Nature Park (Figure 2), elled ramps), adjusting/amending the signal equip- which sums up to approximately 370 km in total. ment on signalized intersections, marking cycling Over 90% of cycling routes have been arranged surfaces red, installing ixed/elastic posts and creat- as cycling lanes on the walkway of city roads separat- ing cycling lanes during the reconstruction of import- ed from the pedestrians by a yellow line. Only in the ant roads. city centre on one main longitudinal road a cycling Initially, bike racks were placed near public insti- lane was established in the pavement section of the tutions which covered 50 locations. However, project road spanning 1,300 m. Project ELAN [16] resulted ELAN [16] resulted in a signiicant improvement of the in developing blueprints for the introduction of cycling cycling infrastructure within the ELAN corridor (Figure 2) bicycle path/lane “bicycle magistral” ELAN corridor Figure 2 – Existing cycling network in Zagreb, July 2014 408 Promet – Trafic&Transportation, Vol. 27, 2015, No. 5, 405-415  H. Pilko, K. Tepeš, T. Brezina: Setting the Port Planning Parameters In Container Terminals through Bayesian Networks and outside of it as well. Thus, 150 parking spaces Sundays the service is not available. All the bicycles at 15 locations were introduced within the corridor, meet the requirements of current Croatian legislation. while 190 additional parking spaces were introduced The web portal is used to monitor bicycle depots in re- outside of it at different points-of-interest (in front of al-time in order to provide information about currently shops, theatres, largest concert hall, PT stations, un- available bicycles and depot occupancy online [20]. derground garages, on squares etc.). From October 2012 until October 2013, there were Among other measures worth mentioning is the 140 registered users who had rented the bicycle at “Bicycle to the Garage”. A bicycle rack offering 20 least once. 360 rentals in total were registered. In 60% parking spaces has been placed in the public garage of the total rentals, the duration of the rental was less in Martićeva Street, at the ground level. The parking than 30 min. The future development of the Studocikl spaces were free for the irst month and require a project is conceived to have the following: installation small fee now. of GPS-trackers (this would prevent possible bicycle Also, the project ELAN [16] resulted in developing thefts and provide the data for scientiic research), in- the Cycling Master Plan. It deines a vision, objectives troduction of smart phone application, full automation and general measures for improvement of cycling traf- of login/logout process, introduction of electric bicy- ic, but was not oficially accepted by the City Assembly. cles and expansion of the service to the entire Univer- sity of Zagreb. In addition, the project aims to promote 3.3 Public Bicycle Sharing Systems itself as well as the public awareness of cycling as a transport mode in general [20]. Establishing a PBSS in Zagreb is not expected to pose a notable inancial burden and has great poten- 3.4 Cycling trafic legislation tial to inluence the mobility habits of the citizens in terms of alternative modes [5]. A PBSS pilot project Existing cycling legislation consists of nation- led by a private partner nextbike was started in June al legislation: Law on the Safety of Road Trafic (NN 2013. At the moment 13 locations with 75 bicycles 158/13), Ordinance on Trafic Signs, Signalization and are in operation. Bicycle stations have been placed in Road Equipment (NN 14/11), Ordinance on Ensuring city locations with highest frequencies of pedestrians Accessibility of Buildings for Persons with Disabilities [19]. Registration is done in three ways: through a web (NN 78/13), Ordinance on Basic Conditions to Which page, a mobile phone application or directly at the bi- Public Roads Outside of Settlements Must Adhere cycle terminal. Activation of the account is made with from the Trafic Safety Aspect (NN 110/11), Ordinance a credit or debit card for a price of 79 Kuna (around on Technical Requirements for Vehicles in Road Trafic 10.4 Euros, also the fare for rent), or through certain (NN 51/10), and local legislation: Decision on Trafic Telecom companies (activation and further payments Regulation in the City of Zagreb (SGGZ 23/03), Deci- through SMS). The irst half hour is free, and after that sion of Adopting the GPUZ (SGGZ 7/13) and the Cy- every hour is 8 Kuna with a maximum rental period of cling Master Plan [16,21–27]. ive hours. In May 2014 already four thousand users The Law [21] deines: cycling areas (paths/lanes), were registered, with over 25 thousand rentals and 44 behaviour and movement of cyclists in/on trafic/ thousand kilometres covered [19]. roads exclusively for motor trafic, the movement of Within ELAN [16] the Studocikl pilot project was de- motor vehicles with regard to cycling, and the ability signed and initiated bringing a PBSS to the University to ride a bike according to age. Management of cycling of Zagreb’s Borongaj campus. The irst phase included trafic through the light, vertical and horizontal trafic only the FTTS and the second phase is planned to in- signalization is deined in [22]. Width, clearance of cy- clude the remaining faculties located at the Borongaj cling paths and lanes are deined in the regulation [24] campus. The idea was to provide students and facul- as the conditions for setting cycling racks and design ty staff easier transportation between the two remote of demarcation of cycling paths/lanes from public area locations of the FTTS. The Borongaj campus currently is deined in [23]. Technical requirements and trafic consists of three faculties with a total of 4,500 stu- equipment that bicycles must meet for safe trafic are dents. The FTTS currently has about 1,450 full-time deined in the technical guidelines [27]. students, 710 part-time students and 179 members The local legislation [25,26] deines cycling areas, of staff. The Studocikl project has three basic features: depots, lowering of curbs and sidewalks, guidance and 20 blue bicycles with logos, two depots (headquarters marking of vertical and horizontal signalization, and of FTTS at Vukelićeva Street and at Borongaj campus) widths of cycling paths/lanes. Supervision of the legal for bike disposals and a web portal for login and lo- implementation is carried out by municipal and trafic gout. The service is free of charge for users, and main- marshals with a speciic area of supervision. However, tenance costs are covered by FTTS. The rentals and the differences between the documents are relected disposals can be done during workdays (8.00 a.m. – in the deinition of a minimum width of cycling paths/ 8.00 p.m.) and Saturdays (8.00 a.m. – 4.00 p.m.). At lanes. The Decision [25] deines the width of cycling Promet – Trafic&Transportation, Vol. 27, 2015, No. 5, 405-415 409  H. Pilko, K. Tepeš, T. Brezina: Setting the Port Planning Parameters In Container Terminals through Bayesian Networks path/lane up to 1.8/0.9 m and the Decision [26] up to cision-makers in making quality investments and im- 1.0/1.6 m. During 2014 it is planned to release a new provements in the trafic planning process. The project Decision on trafic regulation in the City which, among contributed to the Manual for Planning Cycling Trafic other things, would solve aforementioned differences. in Urban Centres, which is signiicant for physical plan- The Cycling Master Plan deines the vision, objec- ning, cycling infrastructure, services and possibilities tives and general measures for improvement of the of promotion in urban centres [28]. current state of cycling trafic on the City level [16]. As part of the European Mobility Week, every year expert conventions on trafic safety and sustainable 3.5 Promotional activities mobility in urban centres are held. The activities are The Department’s promotional activities consist of focused on educating citizens and children about traf- inancing various educational, and sports activities re- ic culture and to encourage the use of public trans- lated to cycling safety and different modes of transport portation, bicycles and walking. To promote the cycling (regulation checks, driving skills, creating of cycling culture by organizing targeted educational and pro- maps, manuals and others). motional activities, in 2012 the Cycling Information On the intersection of Streets Vukovara and Hr- Centre was opened. Also in the Centre, there is a Eu- vatske bratske zajednice, a irst counter/totem of bi- ropean Cyclists Federation (ECF) point where citizens cycles was installed. From the installation on the 30th can get current information about their activities and of May until the 31st of July 2014 there were around programs [29]. 90,000 bicycles registered which results to around 1,400 bicycles per day. This location in the city cen- Since 2012 Zagreb Cyclists Union has been orga- tre was chosen because of its visibility to cyclists and nizing the biannual cycling festival Pedalafest. Being motorists and serves to promote and educate partici- part conference part festival it aims to popularize the pants in trafic about the presence of cyclists. The in- bicycle as a means of transport in the city. The pro- stallation of two additional mobile bicycle counters in gram encompasses panels and workshops led by the western and eastern part of the city is planned. distinguished lecturers from abroad who present con- The mobile2020 project aims to encourage expert crete solutions for improving the conditions for the use knowledge exchange and long-term development of of bicycles as an sustainable and healthy means of cycling, as well as to strengthen city planners and de- transport [30]. Pedalafest also hosts a Critical Mass. 100 90 80 70 60 [%] 50 40 30 20 10 1 1 2 2 2 3 3 5 6 7 12 14 4 0 09 11 06 10 04 09 11 08 12 8 06 06 09 00 20 20 20 20 20 20 20 20 20 20 20 20 .2 fia o in eb lle e se in ich lle on ux g rin gn bl Re Rh ea ei Li ou So gr Ly un Du lo To s Za s- rd ul p. ar Co M Ba To Bo Ca M s el s bike walk car us PT Br Figure 3 – Comparison of Modal Splits for European cities sized between 0.8 and 1.3 million inhabitants from TEMS database. Zagreb igures are based on the CiViTAS ELAN study [16]. Bicycle shares are depicted in black and values are shown next of each column ordered by increasing cycling share [31]. 410 Promet – Trafic&Transportation, Vol. 27, 2015, No. 5, 405-415  H. Pilko, K. Tepeš, T. Brezina: Setting the Port Planning Parameters In Container Terminals through Bayesian Networks Table 2 – Absolute and relative numbers and consequences of trafic accidents involving cyclists in Austria and in Vienna for 2010 and 2011 [35,36]. absolute numbers per 10,000 population of entity VIE per AUT AUT – Austria [%] 2010 2011 2010 2011 VIE – Vienna AUT VIE AUT VIE AUT VIE AUT VIE 2010 2011 participants 4,847 526 5,787 639 5.79 3.10 6.89 3.73 10.85 11.04 fatalities 32 1 42 1 0.04 0.01 0.05 0.01 3.13 2.38 injured 4,835 525 5,745 638 5.78 3.09 6.84 3.73 10.86 11.11 seriously injured 1,010 69 1,229 98 1.21 0.41 1.46 0.57 6.83 7.97 slightly injured 3,317 456 3,885 540 3.96 2.68 4.63 3.16 13.75 13.90 4. DATA AND POLICY COMPARISON attracts a slightly above average accident rate and the accidents appear to be less harmful than in the na- Although the measurements of Zagreb cycling vol- tional average, as the rate of slightly injured cyclists is umes show a remarkable increase over the period of above the Croatian average and the rate of seriously four years, the lack of comprehensive time-series data injured ones is below. makes it impossible to profoundly identify a trend – When comparing the cycling related trafic accident data remains a quantitative lashlight. igures of Zagreb and Croatia (Table 1) with Vienna and How much cycling is there in other cities of simi- Austria (Table 2), the irst notable peculiarity is the lar size? Zagreb its in terms of size of population with per population rate between capital and total coun- other European cities from the TEMS database shown try. Whereas Table 1 shows Zagreb’s rates being big- in Figure 3. Besides cities with poor cycling Modal Split, ger than Croatian rates for accident participants and cities with exemplary cycling shares from 5% (Tou- slightly injured, Table 2 shows the population related louse) to 14% (Munich) are present in this size group. rate of accidents for Vienna not bigger than Austria. In A cycling share of 4.0% [16] allows us to conclude that terms of participants per population Vienna is about Zagreb has a foundation for further enhancement and the size of Zagreb. When the cities’ share of national development. Policies implemented there could serve igures is used for comparison, Vienna’s share in gen- Zagreb as beacon light for measures to implement. eral is smaller than Zagreb’s, while with fatalities and Another similar sized city is Belgrade (Serbia) seriously injured this relation is much more strongly where similar studies of trafic volume counts at 18 pronounced. At the city level, the Viennese rate of fa- locations were conducted for 1999 and 2003. Num- talities is distinctly smaller than Zagreb’s on the na- bers conirmed a slight increase in bicycle commuting tional level Austria is just slightly safer than Croatia. and that the “other modes of transport” (cycling share Austria, which in general shows higher levels of ev- being the most important among them) is between 3% eryday-purpose cycling than Croatia, in some catego- and 10% of the Modal Split [32]. Also, this allowed the ries has less favourable safety indicators. This is note- design of lexible-info systems for cyclist’s signalization worthy due to the notion that higher levels of cycling and could represent to Croatian local and national traf- are usually expected to lead to less risk for cycling, a ic authorities a good working example. phenomenon called safety in numbers [33,34]. The Bicycle count data in a time series provides an ex- debate is still ongoing, if with cycling levels as low as in cellent parameter for the evaluation of the success of Vienna or Zagreb, the safety in numbers effect is not measures taken. This is usually done using the AADTB yet in effect. The rate of accident participants per pop- parameter, the average daily bicycle trafic. Unfortu- ulation is higher for Austria than for Croatia. While the nately the existing data of Zagreb only covers (Figures rate of injured per population in Vienna is bigger than 1a and 1b) incoherent, random time intervals – one in Zagreb, for Austria it is much bigger than for Croatia. to two hours at off-peak (11.00 a.m.-1.00 p.m.) and divergent afternoon peak periods (1.00-3.00 p.m. and 5. DISCUSSION 4.00-5.00 p.m.). The mobility census has yet been done only in two years. This enables only for limited Zagreb cycling data results do not adequately ad- comparisons within the given measurement frame- dress the direction of causality, such as whether cy- work – e.g. during two different years – but not for a cling infrastructure led to increased levels of cycling or standardised compatibility. whether cycling demand led to investments in cycling The available accident data as well lacks a longi- infrastructure. Further increase of the number of bicy- tudinal perspective to be useful for a comprehensive cle counters would achieve a precondition for system- appraisal. There appears to be the effect that Zagreb atic monitoring of cycling trafic in the City. Promet – Trafic&Transportation, Vol. 27, 2015, No. 5, 405-415 411  H. Pilko, K. Tepeš, T. Brezina: Setting the Port Planning Parameters In Container Terminals through Bayesian Networks Zagreb’s PBSS data from May 2014 could rep- sites of unfolding a mainstream cycling culture. It was resent a good addition to the development of public shown elsewhere that producing lots of debatable in- transportation and sustainability of trafic. But for inal frastructure alone is not prerequisite for cycling policy conclusions, these digitised data-sets are needed to success [41]. be available to study travel behaviour as was for exam- We need to stress, that the decision to increase ple done by Lathia et al. [37] and further sophisticated sustainability of transport in a city asks for a compre- usage characteristics as for example has been done hensive bouquet of measures beyond just cycling. Sus- by Beecham and Wood [38]. tainable transport policy is a matter of equal opportu- The look at the enumerated law regulations reveals nities and space allocation between urban uses and that these are not adapted the existing conditions and transport modes, as only 100% of modal share trips needs of cycling trafic in urban areas. They represent can be distributed among the population. So, if further only basic term deinitions and technical descriptions steps are taken to promote sustainable modes within with general legal requirements. So, a lack of cy- a “push & pull” framework [42], push measures with cling-friendly and cycling-related regulations is evident. non-sustainable modes need to be envisaged as well. Hence, the Law [21] needs to be amended and an ap- Instead of producing pedestrian-cyclist conlict situa- propriate ordinance or decision on the regulation of tions, an equal chances redistribution of urban space cycling trafic in cities as well as guidelines for the de- needs to be sought for. sign of cycling paths/lanes, PBSS, aprons and depots Indicators are signposts that help to describe the need to be created. Especially, concerning the number behaviour of complex systems and thus also help to of lats and ofices in residential buildings. Regulations act ethically within these systems [43–45]. If incom- are needed for: marking of cycle paths/lanes with red/ plete or wrong data is gathered, this will likely lead to yellow colour, setting the speed limit, sizing, position- an incomplete representation of the system’s status ing and guiding cycling paths/lanes within the proile and thus likely to wrong measures. Transport systems of the road and across the intersection considering are represented by data measured from people’s mo- the volume of cycling and other trafic; designing the bility behaviour, (1) in Figure 4. Data produce a depic- signal plans; supplementing the signalling equipment tion of behaviour and with this representation in mind according to the needs of cycling trafic; general rules planners shape structures. But until recently the col- on the movement of cyclists and other participants in lection of data focused on car trafic and therefore trafic on cycling paths, lanes, intersections and mo- measures have focused on car trafic – suppressing tor trafic roads where cycling paths/lanes are not yet the remaining transport modes. For comprehensively constructed; ability and training for cycling and road- improving this incomplete framework two extensions worthiness in city trafic. need to be adopted in Zagreb. As the Cycling Master Plan was not oficially accept- Firstly, Zagreb’s data collection needs to include ed, it may serve as a basis for future development of all transport modes to draw a representative picture cycling trafic because it deines the vision, objectives that will enable planners to take improved measures. and general measures for improvement. Furthermore, Secondly, planners need to systematically understand the upcoming Ordinance on Cycling Trafic by the fed- that people’s mobility behaviour is the result of mo- eral Ministry of Maritime, Transportation and Infra- bility structures (Figure 4, (2)). Herein structures are structure is planned to be aligned with the current to be understood in a holistic manner, encompassing guidelines and examples of good practice of leading elements of the built environment, inancial regulation cycling cities. It is essential that this new Ordinance in- and law as well [43]. As identiied by Frey [44] and de- cludes very intuitive and ubiquitous regulations which picted in Figure 4, structures are a result of planning are easily understood and enacted by all road users, (3). Therefore the feedback of mobility data on plan- e.g. yield rules [39]. ning procedures and planners’ education plays a vital Promotional and awareness programs like Pedalaf- role in this new concept. The lack of comprehensive est need to be supported by the municipality and be mobility data as well as the lack of a systematic under- relocated from special venues and target audiences standing such incomplete data reduce the capability to open urban spaces for increased perception by the of policy impact evaluation. general public. Although Zagreb has approximately The cycling infrastructure provided in Zagreb is 370 km of cycling network in total, the priority for fu- still fragmentary and not at the state of the art. The ture expansion is on closing existing gaps. Continuity collected data, albeit being very fragmented and in- is of essential importance in the design of cycling in- comprehensive, hint at a behaviour below the city’s frastructure. Various authors [4,40] have shown that potential (see Figure 3). Comprehensive mobility data suficiency and continuity of quality parameters such – including all modes, not only cars – is neither avail- as organizational logic, applied design rules, types of able area-wide nor in a time-series. If Zagreb’s irst compatible dedicated infrastructure, surface quality, sustainable mobility initiatives are expected to pro- radii, design speeds and lane widths are prerequi- duce enduring valuable results, the continuous mea- 412 Promet – Trafic&Transportation, Vol. 27, 2015, No. 5, 405-415  H. Pilko, K. Tepeš, T. Brezina: Setting the Port Planning Parameters In Container Terminals through Bayesian Networks surement of comprehensive mobility data needs to be Studying cycling in Zagreb reveals that one of the established in numerous locations. When planners, most pressing problems remains the cycling network’s the general public and transport politicians will be- discontinuity, i.e. the lack of wholeness, connectedness come aware of “the bicycle picture”, a qualitative pub- and compactness. As far as sustainable urban mobili- lic discourse on general planning paradigms or quality ty is concerned, cycling trafic in Zagreb is a relatively will be able to arise. new area of action. The examined policies indicate that competence building among planners and executives was only started recently. This poses a complex chal- 1 Data lenge. It is therefore necessary to adopt an appropri- ate integrated program for cycling trafic development. Such an integrated program utilises elements that we Behaviour have outlined in chapter 5 and ranges from stakehold- er education to improved planning procedures. Results may serve as a basis for the creation of a 2 coordinate and holistic planning strategy for develop- Structures ment of cycling trafic in Zagreb. Also, they could serve as a beacon light for similar size beginner cities, es- 3 Planning pecially those that are located in South-eastern and Eastern part of the Europe. The need for further research implies the imple- Figure 4 – The classic elements of transport planning (1) mentation of: systematic measurement and analysis and the extension (2, 3) for a comprehensive approach; of volume, structure and movement of cycling trafic; modiied after [44]. more extensive expert studies; improving and extend- ing the existing cycling network; connecting the cycling Cities with a strong cycling presence such as Co- network with the near-by cities and Eurovelo corridors penhagen, Graz and Salzburg in Austria, or Freiburg in [46]; upgrading PBSS and integration of its payment Germany have shown irst ways of implementing such system with other city services (public transportation, a line of comprehensive planning philosophy. If Zagreb parking etc.), and preventive activities. Also, the exist- is bound to take its own transport policy goals serious- ing inadequate cycling-related legislation should be ex- ly, a comprehensive transport policy from planning via tensively complemented, according to local character- education to data collection needs to be applied. If istics and aligned with lessons learned from European one wants to improve cycling, one needs to improve best cases. data on cycling, i.e. start counting them and change the behaviour-evoking structures. We therefore ar- ACKNOWLEDGEMENTS gue to establish a holistic planning strategy in Zagreb along the lines of Figure 4. The authors would like to thank the City of Zagreb, City Ofice for Physical Planning, Construction of the 6. CONCLUSION City, Utility Services and Transport, Department for Transport and Roads for enabling access to the da- To achieve preconditions favourable for a sustain- ta-sets, supporting research questions and discussing able development of trafic in Zagreb, it is necessary research indings. The authors thank the editor and re- to encourage different modes of transportation, i.e. viewers for their valuable comments and suggestions cycling [2,14,16,28]. that helped to shape the inal version. This review sums up the available evidence of a wide variety of cycling policy measures in the beginner city Zagreb. Sections 2 and especially 3 show that a lot of policies have been introduced. Nevertheless, the crucial limitation is that there is an insuficient body of data and before/after research. This is especially true for data on the volume, structure and movement of cyclists on paths/lanes and the state of trafic safety. 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