Making urban cycling a safer and more attractive transport choice is now a NZ Transport Agency (‘the Transport Agency’) strategic priority, in growing recognition of the health, environmental and congestion benefits of cycling. However, unless a safer system for cyclists is developed, it is likely there will be an increase in cyclist road trauma with increased investment and promotion. The purpose of this research was to a) identify key cycle safety interventions through the development and application of a cycling safety system model (Part A); and b) develop a cycling competency system model and provide guidance on how best to prepare New Zealanders for riding on the network (Part B). This research was carried out from October 2015 to June 2016. There are now several studies that estimate transport cycling risks and describe cycling casualties; commonly cited risk factors are intersections, older people, males, heavy vehicles, high-speed roads, drivers failing to notice cyclists and cyclist errors. However, the NZ Cycling Safety Panel’s recommendations in Safer Journeys for people who cycle explain, in addition to immediate situational factors such as road users, the environment and vehicles, broader system elements distal to immediate crash situations need consideration within a safe system approach. Moving beyond describing the characteristics of cycling casualties, there is an emerging research emphasis on applying ‘systems thinking’ models and methods to the road safety domain. Incident analysis methods such as the Haddon Matrix, Human Factors Analysis Classification System, AcciMaps and STAMP have been used to analyse adverse events in other safety critical domains, and have recently been applied to road safety. In this study, the most relevant aspects of contemporary incident analysis methods were used to develop a cycling safety system model and analysis method. Road safety stakeholders provided comment on a draft model, which was subsequently revised. The model was then used to analyse three cycling fatality crash types (cyclist turns into the path of vehicle, cyclist hit from behind and cyclist hit by car door and falls under truck), derived from 30 actual fatal cases. The 30 cases were matched with earlier descriptions of cycling casualties that have happened in New Zealand between 2006 and 2015. Fatal crash information, expert workshops and document review were then combined to create ‘causation pathway analyses’ which showed how aspects of the system had failed for each crash type. Related current and proposed mitigating initiatives were also identified. Examples of key areas for improvement include: • a clearer story about the benefits of cycling in New Zealand’s future mobility system • better integration of walking and cycling requirements into speed management initiatives • identifiable and user friendly rural cycling routes • designing infrastructure and training to address cyclist speed • more involvement by the cycling industry in cycling safety • a range of initiatives to address cycling/heavy vehicle interactions • well understood ‘standard operating procedures’ for motorists and cyclists within an improved cycling skills training system • addressing road infrastructure that affords unsafe road user behaviour and cycling crashes in the way it is designed. With some modification, application of contemporary incident analysis methods to cycling fatalities has proven useful in moving beyond describing the characteristics of crashes, to obtaining a deeper and broader understanding of causal factors. Many factors within all levels of the cycling safety system have been identified as problematic by the sector and this information could help prioritise effort. Building on the methods explored within this study, a key recommendation is to develop crash analysis methodologies that take a broader view of causal factors across the road safety sector. Safe system interventions at all levels can then be planned, dovetailing with the Transport Agency’s investment selection processes. The Transport Agency required guidance on a best practice ‘cycle skills training system’ which results in: confident, skilled and courteous bike riders, who know the road rules and use techniques to keep themselves and others safe; and significantly increased numbers of people cycling to school (under 18 component); and, increased numbers of people cycling for utility purposes (18+ component). While investment in infrastructure that supports cycling is of upmost priority, strengthening the approach to cycle training and education, in conjunction with other measures is also warranted under the ‘Safe road use’ pillar. A literature review was undertaken focusing on: the rationale for cycle training; the skills, knowledge and attitudes needed to ride on the network (including on facilities such as shared paths); the effectiveness of cycle training; and the current reach and approach to cycle training in New Zealand. Semi-structured interviews were undertaken with 44 stakeholders and end users (cycle training funders and providers, road safety professionals, schools, parents/caregivers, school students and other adults). The interviews were complemented by an online survey for people who rode a bike or who were interested in doing so. Key findings from the literature review and qualitative research were combined to form of a cycling competency system model, as well as accompanying critical success factors and recommendations. This approach provided the balance between evidence from the literature and the factors perceived as practically and contextually significant for New Zealand. Evidence for a causal link between cycle training and improved cycle safety or increased cycling participation is limited, and training programmes may not always have the expected positive outcomes. However, cycle training approaches can reduce individual cycling competence as a barrier to cycling, improve knowledge of key safety behaviours and be a channel for promoting the benefits and normalisation of utility cycling. Similarly, cycle training as part of a wider behaviour change approach, including development of cycling infrastructure, shows some promise. In fact, evidence is emerging that educational and promotional initiatives may be necessary to ‘activate’ use of cycling infrastructure. There are some well-established cycle training programmes in New Zealand that focus on developing the cycle skills of participants. There are also examples of more innovative approaches, which dually aim to develop skills and encourage cycling. However, the need for consistent, coordinated and more comprehensive approaches that are underpinned by pedagogical principles, the involvement of families, the need to provide more experience riding ‘on the network’ and the opportunity for all New Zealanders to ride from a young age, are examples of critical gaps. Similarly, while ‘formal’ cycle training is valued by some end users, there is a large proportion of the population, particularly adults, who may be unlikely to attend a cycle training course. Therefore, thinking about innovative ways to support the development of cycling competencies in this group is important. The cycling competency system model developed through this work presents the development of cycling competencies as a process, requiring multiple initiatives and channels to create touch points and the habitualisation of key safety behaviours. A focus on cycling ‘competency’ replaced the focus on cycle ‘skills’, as this more effectively represents the set of knowledge, skills and attitudes required to ride a bike for utility trips. The model describes how traditional cycle training may need to be combined with other formal and informal education approaches (eg supervised riding with parents), for individuals to reach the required level of competence. Similarly, the model presents how training initiatives may need to be combined with cycling infrastructure, cycling promotion, spaces to ride and positive community perceptions of cycling to ultimately contribute to cycling uptake. Going forward, there is a need to evaluate this more comprehensive approach, with greater consideration of the context in which training is delivered. Critical success factors and recommendations were developed in order to operationalise the cycling competency model, and align cycle training in New Zealand with good practice. Key recommendations are: • Consider the whole system of people, initiatives and places that could contribute to preparing New Zealanders to ride for transport and utilise the cycling competency system model to identify gaps and opportunities. • Develop cycle training and education initiatives in conjunction with other safe system measures. • Develop opportunities to ride a bike from a young age, in order to create a solid foundation of New Zealanders who can ride a bike and who enjoy riding a bike. • To be consistent with road safety education guidelines, cycle training approaches in schools need to be based on principles of effective teaching and learning. • Examine ways to improve parent and family engagement in formal training, as well as ways to encourage parents to ride with their children, ie supervised practice or informal training. • As part of the system, increase the proportion of ‘on-road’ or ‘on the network’ formal training. • Develop a nationally consistent and robust approach to evaluating cycle training and education initiatives, including quality assurance processes. • Re-examine the content in the current Cycle Skills Training Guidelines (or future iterations) related to: route-selection, the clarity of share the road and pathway messages; managing speed on a bike; reinforcement of head checks; and riding safely around heavy vehicles. • Consider different aims of cycle training depending on the context (eg initiatives as part of a behaviour change package to increase cycling, initiatives to prepare New Zealanders for transport cycling in the future, and initiatives targeted at high-risk cycling situations or groups). Cycle training and wider cycling education in isolation is unlikely to have a widespread effect on the safety or mode choice of New Zealanders; however, high-quality cycling education delivered as part of a package of safe system measures, and coordinated with other behaviour change approaches, may be a necessary piece of the overall puzzle. This research provides: an improved understanding of the root causes of cycling crashes; and a method for future application to cycling safety, and road safety more generally. Critical gaps in New Zealand’s current approach to cycle training are presented with recommendations for the development of a more comprehensive and coordinated approach. These two different, yet complementary pieces of work, are important elements of proactive approach to make cycling ‘safer and more attractive’. (Author/publisher)
Samenvatting