Promoting

walking
and cycling
A toolkit of policy options
Promoting

walking
and cycling
A toolkit of policy options
Promoting walking and cycling: a toolkit of policy options
ISBN 978-92-4-010990-2 (electronic version)
ISBN 978-92-4-010991-9 (print version)

© World Health Organization 2025

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Contents

Acknowledgementsiv
Glossaryvi
Executive summary xi
Introduction1
Purpose of this toolkit 3
What does the toolkit provide? 3
Who is the toolkit for? 5
Section 1: Why increasing walking and cycling is important 7
1.1 Walking and cycling can help achieve the 2030 Sustainable Development Goals 9

1. Why
1.2 Walking and cycling improve physical and mental health 10
1.3 Walking and cycling improve road safety 12
1.4 Walking and cycling help create healthy urban environments 13

2. Policy action areas

1.5 Walking and cycling can help tackle inequalities 14
1.6 Walking and cycling can increase use of public transport systems 14
1.7 Walking and cycling make economic sense 15
Section 2: Policy action areas to increase walking and cycling 17
Policy action area 1: Integrate walking and cycling into all relevant policies 18
Policy action area 2: Provide safe and connected walking and cycling networks 22

3. Key enablers
Policy action area 3: Design inclusive and safe streets for all 25
Policy action area 4: Improve safe road user behaviour 29
Policy action area 5: Protect and prioritize walking and cycling 32
Policy action area 6: Facilitate integrated transport options  35
Policy action area 7: Promote and incentivize walking and cycling 37

4. Monitoring progress
Section 3: Key enablers for successful implementation 43
Governance and coordination 43
Community and civil society engagement 46
Knowledge, skills and capacity 46
Advocacy48
Legislation  51
Funding and financing mechanisms 53
5. Action

Section 4: Monitoring progress 57

Section 5: Putting the toolkit into action 61
References64
Annex 1: Development of this toolkit  70
Annex 2: WHO assessment tools 73
Annex 3: Global indicators and targets  74
Annex 4: Additional WHO resources related to policy options on walking and cycling 76

iii
Acknowledgements

This toolkit was developed by Fiona Bull, Mariken Leurs and Juana Willumsen
of the Physical Activity Unit, Department of Health Promotion at the World
Health Organization (WHO) headquarters, in collaboration with WHO’s Safety
and Mobility Unit, and the Public Health Law and Policies Unit, within the
Division of Universal Health Coverage and Healthier Populations.

Support for this work was received through the Global Regulatory
and Fiscal Capacity Building on Healthy Diets and Physical Activity
(Global RECAP) programme, a collaboration between WHO and the
International Development Law Organization, supported by the
Swiss Agency for Development and Cooperation, and implemented
in coordination with the International Development Research Centre.

WHO extends sincere thanks to the many people across multiple

organizations who have contributed to bringing this toolkit to fruition.
These include: Lucy Sanders and Margie Peden who helped to draft early
versions of the report; all participants of an initial WHO technical expert
meeting held in November 2019 for their input and subsequent reviews;
Bronwen Thornton and Jim Walker from WALK21; and representatives
from the United Nations (UN) Environment Programme; UN-Habitat;
FIA Foundation; Transport for London; International Road Assessment
Programme (iRAP); International Transport Forum; National Association of City
Transportation Officials (NACTO); Polis Network; Union Cyclist Internationale
(UCI); Urban Mobility Research; and the World Resources Institute (WRI)
Ross Center for Sustainable Cities.

Thanks also to the WHO regional offices whose contributions helped

ensure the relevance of this report at the global level.

iv Promoting walking and cycling: a toolkit of policy options

v
Glossary

Accessibility The ability to access places, services and/or destinations with ease. In the context of this
report, the term accessibility is used to refer to the proximity (or distance) of facilities, as well
as the absence of barriers to using walking and cycling networks. The term is also used in
some specific contexts to refer to the design of facilities to ensure and enable their use by
people of all ages and abilities (sometimes referred to as inclusive design).
Active travel, active Mode of travel in which the sustained physical exertion of the traveller directly contributes
transport or active to their motion, for example walking, running, or using a bicycle, handcycle, manual
mobility wheelchair, or skateboard. Electric-assisted forms of micromobility, such as e-bikes and
e-handcycles, can be considered active travel as they also require the user to contribute
to motion.
Bicycle, or cycle, or A human-powered or motor-powered pedal-driven, single-track vehicle, with two wheels
handcycle attached to a frame, one behind the other. Cycles that have one, three or four wheels can
also be referred to as cycles, with the latter two enabling people with balance problems to
cycle. A handcycle is a cycle designed for peddling using hands.
Bike lane or A lane restricted to cycles. Often scooters, skateboards and rollerblades are allowed on these
cycle lane lanes as well.

Congestion pricing A system of surcharging users of roads that are subject to congestion.

Cycling The act of riding any type of cycle (including an e-bike or power-assisted cycle) or
other non-electric form of wheeled transport such as a skateboard, a push-scooter
or a hand‑cycle.
Distracted driving Any activity that could divert a person’s attention away from the primary task of driving.
Includes activities such as texting or talking on a cell phone while driving.
E-bike Cycle of any type that is fully or partially electrically supported or power assisted.

Financing The provision of upfront capital in the form of debt or equity that primarily funds the capital
costs. Financing is paid back, in terms of interest, principal payments, dividends, and share
sales, among others, with funding sources. Financing mechanisms originate with public
entities, such as national governments or quasi-public development banks, or private banks,
equity funds, and/or project developers.
Funding The revenues or income that are generated by the project or other sources that are used,
directly or indirectly, to cover the project’s capital, operating, and maintenance costs.
Funding can come from different sources such as direct users (e.g. user fees); government
(through national or local tax revenues generated by particular land uses – e.g. commercial,
industrial etc.); other sources (e.g. land value capture); or from private and philanthropic
donors (e.g. carbon credits).
Inclusive design Walking and cycling infrastructure that ensures accessibility, safety, and usability for
people of all ages, abilities, and backgrounds. It considers diverse needs, including those of
individuals with disabilities, older adults, and children, to create equitable and barrier-free
environments.
Infrastructure The physical structures of transport networks, public spaces, and supporting amenities that
enable and promote walking and cycling, including roads, footpaths, cycle lanes, crossings,
lighting, and associated facilities.

vi Promoting walking and cycling: a toolkit of policy options

Kerb Raised pavement situated along the edge of a roadway.

Land-use planning The broad design and use of land or space for commercial, industrial, recreational, transport,
conservation, agricultural, or a mix of such purposes. Several strategies and policies are
used to ensure that the available land or space and resources in an urban or rural area
are used efficiently so that people’s needs are met, while safeguarding future resources.
Land-use planning is required at different levels, including local, subnational, national
and international.
Legislation Any document that is legally binding. It includes, for example, laws enacted by the
parliament (or legislative body); regulations or rules enacted by minister(s) or executive
bodies; and circulars, protocols and any other legally binding document issued by
authorized entities at international, national or subnational levels.
Mass transit See public transport.

Mobility The ability to reach a place, which may be enhanced by accessibility. In the context of this
report, mobility refers to the ability of individuals to move safely and efficiently through
urban environments using various transport modes, including walking and cycling.
Monitoring Systematic and continuous collection and analysis of data on activities of a programme or
intervention to determine if planned activities are implemented as planned, addressing any
implementation problems and identifying any adjustments or improvements needed in
order for the intended objectives to be achieved.
Multimodal Integration of various modes of transport, such as walking, cycling, private car use, and
transport planning public transport including trains, into transport planning.

Non-motorized Any transport mode that does not require a motor to generate energy. Included in this term
transport are walking, cycling, skateboarding, scootering (non-electric), manual wheelchair use and
using animal-drawn or human-drawn carts.
Public transport Systems of transport consisting of services and routes that are used for travel by the
general public as passengers as opposed to an individual. These group travel systems
are also referred to as mass-transit and high-capacity transit services in some countries.
The following are the public transport modes found in different countries: buses; commuter
trains; light rail; trams; subways; cable cars; taxis; streetcars and trolleys; passenger service
motorcycles and bicycles; van pool services; and ferries and water taxis.
Public education An evidence-based strategic approach to increase knowledge and change attitudes and
or communication behaviours in a large population or population segment using various mass-communication
campaigns strategies (e.g., TV, social media, billboards), with links to community-based programmes
and environmental improvements to enable and support behaviour change.
Road A thoroughfare, route, or way on land between two places that has been paved or
otherwise improved to allow travel by foot or some form of transport including a motor
vehicle, cart, bicycle, or horse.
Road safety Approaches, strategies and measures used to prevent people from being killed or seriously
injured in road traffic collisions.
Road traffic injuries Fatal or non-fatal injuries sustained as a result of a road traffic crash.

Road-user behaviour Actions exhibited by people who travel on the road that either increase or reduce the
risk of a road-traffic collision occurring. Examples of road- user behaviour associated with
increasing the likelihood of a road traffic collision are driving under the influence of alcohol,
and speeding. The focus of a behaviour-change approach is to influence determinants of
these behaviours to decrease the likelihood of a road-traffic collision occurring.

Glossary vii
Safe system A safe system approach integrates a range of measures designed to minimize risk and
approach reduce harm, recognizing that road transport operates as a complex system and emphasizes
the critical interaction between humans, vehicles, and road infrastructure, ensuring that
these elements work together to achieve the highest possible level of safety for all.
Sidewalk, footpath, A path for pedestrians often located alongside a road. Sidewalks or footpaths are mostly
footway, or paved, providing a smooth and durable surface for walking. Footpaths can also be unpaved
pavement and consist of natural materials like mulch, dirt or gravel.

Speed limit The maximum (or minimum in some cases) speed at which road vehicles may travel legally
on particular stretches of road.
Speed management A method or an approach used to keep speeds to appropriate levels relying on different and
complementary strategies, including establishing and enforcing speed limit laws; building
or modifying roads that calm traffic (e.g. speed humps and bumps); and requiring car
makers to install new technologies to help drivers keep to speed limits.
Stakeholders Actors (persons or organizations) with a vested interest in the policy being promoted.
These stakeholders, or “interested parties”, can usually be grouped into the following
categories: international/donors; national political actors (legislators, governors);
public actors (ministry of health, social security agency, ministry of finance etc.); labour
actors (unions, medical associations); commercial/private for-profit, nonprofit actors
(nongovernmental organizations – NGOs, foundations); civil society; and potential walkers,
cyclists and users of other active transport modes.
Star rating A system of measuring the safety performance of roads and road networks based on road-
(infrastructure) inspection data, which includes the assessment of built-in safety attributes for different
categories of road users (vehicle occupants, motorcyclists, cyclists and pedestrians).
One example is the iRAP star rating system with five stars corresponding to the highest level
of safety. For details on the full model for all road users and more urban and rural examples,
see https://irap.org/rap-tools/infrastructure-ratings/star-ratings.
Street A public thoroughfare in a built environment.

Sustainable The provision of services and infrastructure for the mobility of people and goods in a safe,
transport affordable, accessible, equitable, and resilient way, while minimizing carbon and other
emissions and environmental impacts. Sustainable transport mitigates climate change,
optimizes social and economic benefits, and enhances health outcomes.
Traffic calming Strategy aimed at significantly reducing vehicle speeds in an urban neighbourhood or on
an urban arterial road, in order to protect vulnerable road users and residents and improve
the quality of life of those living in the neighbourhood.
Vehicle Any power-driven vehicle that is normally used for carrying persons or goods by road.
(motor vehicle)

Walking The act of moving where a person travels on foot. It includes all forms of pedestrian
mobility, such as assisted walking with crutches and rollators. Using a wheelchair is
considered to be an assisted form of walking too. For the purpose of this document,
jogging and running are included under “walking” as the required infrastructure is similar.

This glossary of terms has been compiled from relevant source documents listed in the reference list and cited in the body of the text.
Some definitions have been adapted to ensure that all forms of movement or travel are reflected, including adapted forms used by people
with disability, older persons, to ensure inclusivity.

viii Promoting walking and cycling: a toolkit of policy options

Glossary ix
x Promoting walking and cycling: a toolkit of policy options
Executive summary

Walking and cycling are foundational modes of transport and physical activity with the power to transform
health, mobility, and the liveability of communities. This WHO toolkit presents a comprehensive policy
framework to help countries unlock the wide-ranging benefits of walking and cycling. Developed for
policy-makers and stakeholders across sectors – including health, transport, urban planning, environment,
and education – it offers evidence-based policy options and implementation guidance to promote safe,
accessible, and inclusive walking and cycling environments.

Why walking and cycling matter

Walking and cycling deliver substantial co-benefits across multiple policy agendas:

Health: Environment:
They are accessible forms of physical Replacing short, motorized trips with
activity that help reduce the risk of walking or cycling can significantly
noncommunicable diseases (NCDs), reduce urban emissions, improve air
support mental well-being. quality, and mitigate climate change.

Road safety: Economy:

Provision of well-designed safe Investment in active transport boosts
infrastructure can reduce and prevent local economies, creates jobs, reduces
road traffic injuries and death. health-care costs, and supports tourism.

Equity: Mobility:
Active transport is often the only Walking and cycling enhance
affordable option in low-resource multimodal transport by providing
settings, highlighting the need for safe efficient first- and last-mile connectivity
infrastructure as a matter of social justice. to public transport systems.

Urgency for action

Despite their value, walking and cycling remain under-prioritized in policy and planning. Globally,
infrastructure is inadequate – only 0.2% of reported road length includes cycling lanes, and the majority
of roads are unsafe for pedestrians. Vulnerable groups, including women, children, older adults, and those
with disabilities, are disproportionately affected by poor infrastructure and unsafe streets.

Global goals such as the Sustainable Development Goals, the WHO Global Action Plan on Physical
Activity, and the Global Plan for the Decade of Action for Road Safety call for urgent, coordinated action
to promote walking and cycling as part of healthy, sustainable, and equitable transport systems.

xi
Purpose and scope of the toolkit
This toolkit is part of WHO’s technical support package to help countries develop or strengthen policies
that support walking and cycling for transport and recreation. It provides:

• a rationale for integrating walking and cycling across sectors;

• seven priority policy action areas;
• practical steps and real-world case studies;
• guidance on monitoring and evaluation.
The resource is adaptable to varying national and local contexts and emphasizes multisectoral
collaboration, inclusivity, and integration into broader health and sustainability goals.

Seven policy action areas

1. Integrate walking and cycling into all relevant policies
Embed walking and cycling objectives across transport, health, environment,
education, and tourism policies. Establish clear, measurable targets and cross-
government coordination mechanisms.
2. Provide safe and connected walking and cycling networks
Develop well-connected, well-maintained infrastructure that links homes to key
destinations (e.g. schools, transit, workplaces). Integrate green spaces and apply
inclusive and sustainable urban design principles.
3. Design inclusive and safe streets for all
Use human-centred design principles to create streets that accommodate all users,
including pedestrians and cyclists of all ages and abilities. Implement safe system
approach to improve road safety including best practice legislation to reduce speed
limits where necessary.
4. Improve safe road user behaviour
Enforce speed limits, tackle distracted and impaired driving, and promote safe use
by all road users.
5. Protect and prioritize walking and cycling
Create, maintain and protect allocation of road space to walking and cycling,
implement pedestrian zones, and enforce parking regulations.
6. Facilitate integrated transport options
Ensure walking and cycling are part of a seamless transport experience through
integration with public transport and shared mobility services.
7. Promote and incentivize walking and cycling
Create a culture of walking and cycling through communication campaigns, events,
financial incentives, and workplace and school programmes.

xii Promoting walking and cycling: a toolkit of policy options

 Integrate
walking and
cycling into
Promote and all relevant Provide
incentivize policies safe and
walking and connected
cycling 1 walking
and cycling
7 2 networks
Policy action
areas for
Facilitate
promoting
integrated 6 walking and 3 Design
transport
cycling inclusive and
options
safe streets
for all
5 4
Protect
and prioritize Improve safe
walking road user
and cycling behaviour

Creating an enabling environment

Implementation success depends on several key enablers including strong governance
and intersectoral coordination; community engagement and co-design; capacity building
and skills development; effective advocacy and communications; robust legislation and
regulatory frameworks; and sustainable funding and financing mechanisms.

Monitoring progress
The toolkit provides guidance for data collection, target setting, and tracking progress.
Countries are encouraged to use WHO tools to assess current policies, measure walking
and cycling levels, and evaluate the impact of interventions.

Conclusion
By investing in walking and cycling, governments can accelerate progress on multiple
fronts: healthier populations, more sustainable cities, equitable access, and climate
resilience. This toolkit provides the roadmap for translating commitment into action.
The time to act is now.

Executive summary xiii

xiv Promoting walking and cycling: a toolkit of policy options
Introduction

Walking and cycling are integral to most people’s of motor vehicles rather than pedestrians and cyclists,
daily lives. Nearly every journey begins and ends with and that the total length of reported cycle lanes equates
walking, and cycling is among the most efficient and to only around 0.2% of total reported road length (4).
sustainable forms of transport. Beyond their role in This infrastructure gap disproportionately affects less-
mobility, walking and cycling are also important and advantaged groups, even in high-income countries,
enjoyable forms of active recreation and exercise, and where poor conditions can make walking and cycling
popular ways for people to stay fit and healthy (1). hazardous, and may explain why, globally, pedestrians
Both activities are simple, cost-effective ways to achieve and cyclists account for over a quarter of all road traffic
recommended physical activity levels, reduce the risks fatalities and in some regions nearly 40%, highlighting
of noncommunicable diseases (NCDs) and improve the urgent need for safer infrastructure (4).
mental health (2).
A recent survey in 48 countries showed that most
Growing recognition of the role played by walking people see themselves as pedestrians at one time or
and cycling across policy domains can be seen in the other (5). Yet concerns about road safety, personal
numerous policy statements, guidelines, frameworks and security, and lack of connectivity often deter people
recommendations that reference walking and cycling, who might otherwise choose walking as an active
developed by many UN agencies (including WHO), mode of transport. With the global urban population
international organizations, and NGOs. Collectively, these expected to grow significantly, particularly in Africa and
resources provide valuable direction, support, and tools Asia, investing in sustainable transport options is critical
to advocate for walking and cycling to be prioritized for promoting health, social well-being, and economic
in policy decisions and funding allocations related to benefits (6).
urban health, climate change, air pollution, ageing, road
safety, health promotion. They also provide specific tools The good news is that change is possible and is already
designed to promote physical activity. happening. The COVID-19 pandemic demonstrated
how quickly urban policies and the behaviour of
Two of the key WHO frameworks in this set of tools individuals can adapt. Many cities responded to the
are the Global Action Plan on Physical Activity (GAPPA) crisis by reallocating road space to create more cycling
2018–2030, which provides a set of recommended policy lanes, resulting in a surge in walking and cycling (7).
actions to guide countries’ efforts to increase physical This shift shows that with the right infrastructure
activity, including through promoting walking and and policy support, walking and cycling can become
cycling (1) (Box 1); and the Global Plan for the Decade of safe, convenient, and preferred options for travel and
Action for Road Safety 2021–2030 (3), with which many recreation for many people.
of the GAPPA policy recommendations align (Box 2).
The Global Plan offers countries a set of policy actions The movement towards walking and cycling-friendly
to achieve healthier, safer and more environmentally environments is gaining momentum, showcasing
sustainable communities through the promotion of how cities worldwide can shift from vehicle-centric
walking and cycling. For example, replacing the use of to people-focused spaces. But more action is needed.
personal motor vehicles with increased levels of walking By prioritizing infrastructure and policies that support
and cycling can reduce traffic congestion and noise, walking and cycling, governments can address multiple
improve urban air quality, and promote physical and policy agendas, including urban health, NCD prevention,
mental well-being. road safety, and healthy ageing. Investing in these modes
of transport not only saves lives but also contributes to
Realizing these benefits requires the provision of safe, creating vibrant, healthy, and sustainable communities.
comfortable environments to enable and encourage
walking and cycling. However, research from countries
that audit their road networks shows that most roads
continue to be built to cater for the growing number

1
 Box 1. Global Action Plan on Physical Activity 2018–2030
The Global Action Plan on Physical Activity (GAPPA) These objectives emphasize the need for policy,
2018–2030 sets out a global vision and target to infrastructure, and programmes across key settings
achieve a 15% relative reduction in physical to make physical activity accessible, inclusive,
inactivity among adults and adolescents by 2030. and integral to daily life. Policy action to maintain
To reach this goal, the plan outlines 20 policy actions and increase current levels of walking and cycling
across four strategic objectives: for recreation and transport is a key approach
for many countries as they are among the
• ACTIVE SOCIETIES: Increase knowledge and shift
simplest, most accessible and sustainable ways to
social norms and attitudes towards physical activity.
increase physical activity. GAPPA underscores the
• ACTIVE ENVIRONMENTS: Create better places importance of policies that support safe walking
and spaces that enable all people to be physically and cycling as a choice for everyone, making them
active. an everyday activity and cornerstone of active and
• ACTIVE PEOPLE: Ensure provision of inclusive healthy lifestyles.
programmes and services that provide physical
Successful implementation of GAPPA’s policy
activity opportunities for people of all ages and
recommendations requires a multisectoral
abilities.
approach involving health, sport, education,
• ACTIVE SYSTEMS: Strengthen governance transport, urban design, civil society, academia,
and data systems to implement effective and the private sector. WHO supports country
and coordinated actions. implementation through its “ACTIVE” technical
package (of which this toolkit is a part), a series of
“how-to” toolkits that offer detailed guidance on
implementing policy recommendations across
different settings and throughout the life course
(see Annex 4).

Box 2. Global Plan for the Decade of Action for Road Safety 2021–2030
The Global Plan for the Decade of Action for Road reducing the global reliance on motorized vehicles.
Safety 2021–2030 sets the target to halve road A modal shift toward walking, cycling, and public
traffic deaths and injuries by 2030. It emphasizes transport is a cornerstone of achieving the plan’s
the urgent need for policies and infrastructure to road safety goals while simultaneously addressing
protect vulnerable road users (including pedestrians physical inactivity and environmental sustainability.
and cyclists), who account for more than half of all For this shift to occur, policy action must focus on
road traffic fatalities globally. The plan promotes a creating safe and accessible environments through
safe system approach, which puts people and safety investments in sidewalks, protected cycle lanes,
at the core of mobility systems to create safer road pedestrian crossings, and traffic-calming measures.
environments for all users by prioritizing safer roads, By strengthening the integration of walking and
vehicles, and road user behaviour, as well as enhanced cycling policies into broader road safety strategies and
post-crash care. climate mitigation strategies, governments can reduce
fatalities, encourage active transport, and improve the
Walking and cycling are not only sustainable and overall quality of life in communities worldwide.
healthy modes of transport but are also essential to

2 Promoting walking and cycling: a toolkit of policy options

Purpose of this toolkit What does the toolkit
This toolkit is part of a series developed by WHO to provide?
help countries implement policies and practices to
This toolkit presents a compendium of policy options
improve levels of physical activity, road safety, and
for walking and cycling, drawing on evidence and
urban health. In particular, countries can use this toolkit
recommendations from a variety of UN agencies,
to develop new policies and strategies to enable,
WHO guidelines, and other international documents.
promote and protect walking and cycling in cities
Annex 1 details the process undertaken to develop
and communities or to review and improve existing
this toolkit. By consolidating this information,
approaches. Implementing the policy options in this
the toolkit highlights the multiple benefits that
toolkit will help countries make a vital contribution to
promoting and enabling safe walking and cycling
achieving a healthier, more sustainable and more active
for recreation and transport can bring to individuals,
world (Box 3).
communities, the environment, and the economy.
Importantly, this resource aligns with the strategic
The toolkit outlines seven strategic policy options
objectives set out in the Global Action Plan on Physical
for countries to consider implementing. Collectively
Activity 2018–2030 (1) and the Global Action Plan
these policy options – flexible enough to adapt to all
for Road Safety 2021–2030 (3). These action plans
contexts – aim to enable safer walking and cycling
respectively aim to increase levels of physical activity and
for people of all ages and abilities, and to support
reduce road deaths and injuries. The toolkit also aligns
maintaining and/or increasing levels of walking and
with guidance provided by many other UN agencies
cycling either for transport or active recreation in
and international entities who share the common goal
countries worldwide. Case studies are included to
of raising levels of safe walking and cycling, whether for
showcase real-world examples of how these policy
transport or recreation.
options are being successfully put into practice.
While this resource is aimed at policy actions for both These have been selected to provide examples of
walking and cycling, it fully recognizes that walking and diversity both in terms of country income levels
cycling are distinctively different behaviours and that and geographic distribution. In addition, Section 4
the policy needs and actions for each can vary. However, provides guidance on data gathering to support
it was decided to provide a single resource addressing robust monitoring and evaluation of policy
these two activities together because of the many implementation.
overlapping policy options that can effectively support
them both.

Introduction 3
 Box 3. The benefits of walking and cycling for physical and mental health
The value of walking for health The value of cycling for health
Walking is the most common form of physical Cycling is an excellent form of physical activity and
activity across all ages and provides many of transport that can be adapted to different fitness
the physical, social and mental health benefits levels and ages. Like walking, cycling is accessible
associated with overall physical activity, even at and can be incorporated into daily routines, such
a moderate pace. It stands out for its accessibility – as commuting or short trips or for recreation and
it is free, requires no special skills or equipment exercise. It requires minimal equipment – a bike and
for most people, and is medically safe for almost a helmet – and offers the flexibility to be performed
everyone. Walking is particularly enjoyed by older at various intensities. Cycling is also beneficial for
adults as their preferred form of exercise. It is people with joint issues, as it places less stress on the
also accessible to many people with disabilities, joints compared to other physical activities and sports.
including those with sensory or intellectual Additionally, cycling can be adapted for people with
disabilities and those using crutches, walkers or disabilities, through options such as handcycles and
rollators. For wheelchair users, “wheeling” serves tricycles. It promotes independence (in particular for
as a valuable substitute for walking, especially for children and adolescents) and mobility while offering
those able to self-propel. an enjoyable way to explore the outdoors or to wind
down after work or school.

4 Promoting walking and cycling: a toolkit of policy options

Who is the toolkit for?
This toolkit is designed for policy-makers at the national, • Academic and research institutions/road safety
subnational and local levels, advocating a multisectoral bodies, including universities, research institutes,
approach to promoting safe walking and cycling. public health organizations and road safety
Governments, international agencies, civil society organizations who can use the toolkit for research,
organizations, the private sector, and other stakeholders advocacy, and policy development, providing
are all invited to use this toolkit as a guiding document evidence-based insights to support walking
for collaborating in planning, implementing, and and cycling initiatives.
evaluating efforts to enhance these active modes of • Government lawyers, including those working
transport and recreation. in or supporting the ministries, agencies and
Developed through a collaborative and consultative authorities listed above, and those engaged
process with contributions from experts across diverse in drafting legislation.
sectors, this toolkit is designed to inspire and be used • Civil society organizations, including groups
by the following: dedicated to promoting walking and cycling
and other organizations advocating for improved
• Government ministries, agencies and local
urban transport and public health.
authorities, including those responsible for roads
(road design and infrastructure, traffic management • UN agencies and international organizations,
and road safety) and transport, urban planning, who guide and support initiatives aimed at
health, environment, recreation, education and local enhancing safe walking and cycling worldwide,
or municipal infrastructure and services. The toolkit in line with broader health and environmental
is particularly useful for decision-makers responsible objectives.
for developing and implementing policies related • Advocacy groups, including organizations
to urban planning, transport and air quality/climate working to improve transport, air quality, and
mitigation, as well as for those integrating physical public health who can use this toolkit to inform
activity into their NCD-prevention and health their initiatives and contribute to a more integrated
promotion strategies and actions plans. It can also and sustainable approach to urban mobility.
help in setting national targets, monitoring progress,
and reporting outcomes.

Introduction 5
A note on terminology
Inclusiveness
Although the terms walking and cycling are used throughout this document, they are
intended to encompass alternative forms that incorporate wheeled mobility, particularly for
individuals living with disabilities. Therefore, in this toolkit, the terms walking and cycling
should be understood to include wheeling (e.g., using mobility aids) as well as other forms of
active transport, such as push-scooters and rollerblades. Policies and interventions proposed
in this toolkit to support walking and cycling are likely to benefit users of all forms of active
transport, especially individuals with disabilities. However, additional design considerations
may be necessary to ensure that facilities are inclusive and accessible for people with a wide
range of abilities. While the infrastructure needs for walking and cycling are related, they are
also distinct. Understanding the unique requirements for both forms of movement, within
the local context, is essential.

Active travel and active transport

Walking and cycling are distinct forms of mobility and are sustainable modes of transport
that incorporate sustained physical effort that contribute to overall levels of physical activity.
The terms “active travel” and “active transport” are increasingly used to collectively describe
these two behaviours. Walking and cycling are also referred to as “non-motorized” or “slow
modes” of transport. In this report, the term “active travel” is used to refer inclusively to all
forms of walking and cycling, as detailed in the glossary.

Streets and roads

The use of “streets” and “roads” varies across professional domains and reflects distinct
preferences. In the road transport and road safety sectors, the term “road” is predominantly
used. Conversely, within advocacy movements, “street” is favoured, as seen in phrases like
“streets for people” and “safe streets”. This toolkit employs both terms interchangeably,
selecting the one most appropriate to the context in which it is used.

Levels of governance
Many countries have multi-level governance systems that allow policy and decision-
making at national, regional (regions, provinces, departments, counties, etc.) and local
(such as municipal, city or town, district, borough, neighbourhood etc.) government level.
This document uses national, subnational and local to refer to different levels of government
and they should be interpreted by readers according to local context.

The glossary at the beginning of this toolkit provides descriptions and definitions
of other key terms.

6 Promoting walking and cycling: a toolkit of policy options

Section 1: Why
increasing walking

1. Why increasing walking and cycling is important

and cycling is important

Walking and cycling provide numerous benefits as Nevertheless, available data reveal notable trends.
sustainable transport options and forms of exercise and For instance, a study of 35 cities across 17 countries
active recreation (8, 9). However, despite their significant and six continents highlighted substantial differences
potential to contribute to health, well-being, and urban in cycling-mode share. In cities in the United States
mobility, they are often overlooked in transport strategies of America and the United Kingdom of Great Britain
and undervalued in policy decision-making and little and Northern Ireland, only around 2% of trips
internationally comparable data exist on the current shorter than 3 km were made by bicycle, compared
status of walking and cycling as active transport. This to 29% in the Netherlands (Kingdom of the), 11%
paradox underscores the urgent need to advocate and in Japan, and 9% in Germany (12). Similar patterns
implement policy actions to create environments that have been observed elsewhere (13). In Europe, the

2. Policy action areas

support active transport and equip policy-makers with combined contribution of walking and cycling as
compelling evidence to invest in these mobility modes. the primary mode of transport varies widely, ranging
from nearly 50% in Paris to below 5% in Athens
and Rome (8). The potential for increased uptake of
Walking and cycling walking and cycling is evident in many European
globally: a snapshot cities. For example, in Austria, over 40% of trips are
under 5 km, in Switzerland more than 60% of trips
Although it is well recognized that walking and cycling

3. Key enablers
are under 10 km, and in the United Kingdom of Great
patterns vary across cities and countries, accurately Britain and Northern Ireland, over 50% of trips range
assessing and comparing between countries remains a between 2–3 km – yet these journeys are frequently
challenge. Inconsistent data collection methods, limited made by car (8).
survey coverage, and non-comparable metrics hinder
the ability to make precise international comparisons. Another global study spanning 104 countries using
Furthermore, the use of different definitions and the WHO Global Physical Activity Questionnaire
4. Monitoring progress

measurement approaches further complicate efforts (GPAQ) found that walking and cycling for travel
to establish reliable estimates of walking and cycling accounted for approximately 35% of the total physical
prevalence. To date, much of the comparative research activity among adults who reported engaging in
on cycling behaviour using travel surveys has been some form of physical activity (14). The contribution
concentrated in Western Europe and North America (10) of walking and cycling (i.e. active travel) to overall
with international comparisons often limited to levels of physical activity was important but varied
prevalence estimates that provide little insight into substantially by country. Higher shares were observed
user demographics or trip characteristics (11). in Malawi and Uganda compared with in Mexico,
Sri Lanka, and the United States (14).
5. Action

7
In many African cities, walking is the predominant mode While there is a need for improved data to obtain a
of transport, with approximately 78% of people walking more comprehensive understanding of walking and
for travel every day (6). On average, individuals spend cycling trends, variations between countries, cities and
55 minutes per day walking, though infrastructure populations are likely influenced by multiple factors (16)
remains inadequate. Data from nine African countries including topographical and climatic conditions, policy
revealed that 74% of roads lack footpaths, 92% have no decisions affecting infrastructure, the provision of
crossings, and 48% are poorly signed and maintained supportive environments, and socio-cultural factors.
(6). Additionally, differences in walking and cycling Addressing these determinants through the evidence-
participation exist across gender, age groups, and based policy options outlined in the following sections
socio-economic backgrounds – for example, women of this report will enable all countries to maximize
engage in relatively more travel-related walking the health, environmental, and economic benefits of
activity than men (15). increased and safer walking and cycling (Fig. 1) (8).

Fig. 1. The multiple health, environment and transport benefits of walking and cycling

T H
EN Better
M quality of life

EA
Reduces carbon
N

LT
Healthy body weight
IRO

emissions

H
Lower risk of diabetes
ENV

Reduces air pollution

Good for mental health
Reduces noise pollution
Fitness and strength
Reduces ecosystem Increased life expectancy
and biodiversity loss
Better cardiovascular health
Reduces water
and soil pollution Lower risk of cancer

Low cost for use

Space efficiency,
congestion relief
Convenient for short trips
MOBILITY Accessibility and quality
of urban life
Resilience of transport systems
Infrastructure savings

Source: Adapted from Walking and cycling: latest evidence to support policy-making
and practice. Copenhagen: WHO Regional Office for Europe; 2022.

8 Promoting walking and cycling: a toolkit of policy options

1.1 Walking and cycling can help achieve the 2030
Sustainable Development Goals
As countries work towards achieving the Sustainable Development Goals (SDGs), it is crucial to invest in
effective, cross-cutting measures that deliver broad impacts across multiple targets. Promoting walking
and cycling is one such measure as it contributes to several SDGs, particularly:

• SDG 3.4: Reduce premature mortality from NCDs • SDG 13.2: Take urgent action to combat climate
by one-third through prevention, treatment, and change, including integrating climate change
the promotion of mental health and well-being. measures into national policies, strategies,

1. Why increasing walking and cycling is important

Regular walking and cycling can increase levels of and planning.
physical activity, contribute to the prevention of NCDs Prioritizing walking and cycling as preferred
and improve mental and physical health and well- modes of transport in national policies, strategies,
being – for more, see section 1.2. and planning supports sustainable, low-carbon
• SDG 3.6: Halve the number of global deaths and transport systems that can mitigate the impact of
injuries from road traffic accidents. climate change and reduce dependency on fossil
fuels – see section 1.4.
Pedestrians and cyclists are some of the most at-risk
road users, so implementing actions to improve road Creating safe, walkable, and cyclable
safety can reduce and prevent roads deaths and communities also indirectly support many
injuries – for more, see section 1.3. other SDGs by enhancing equitable access
• SDG 3.9: Substantially reduce deaths and illnesses to health care, education, employment, and
from hazardous chemicals and air, water, and soil essential services, particularly for vulnerable
pollution. groups. By prioritizing policies that promote
walking and cycling, national governments,
Walking and cycling are forms of clean mobility and

2. Policy action areas

cities, and local municipalities can meet a wide
when they replace motorized transport trips can
range of policy goals. Collaborative efforts
contribute to reducing air and noise pollution –
across disciplines and sectors are essential
for more, see section 1.4.
to maximize the impact of these actions,
• SDG 11.2: Provide access to safe, affordable, helping to create healthier, safer, and more
accessible, and sustainable transport systems for sustainable communities.
all, improving road safety, especially for those in
vulnerable situations, including women, children,

3. Key enablers
persons with disabilities, and older adults.
Prioritizing and promoting walking and cycling can
help ensure that everyone, regardless of income, can
reach essential health services, education and jobs,
and thereby contribute to reducing health, social, and
economic inequalities – see section 1.5.
4. Monitoring progress

• SDG 11.6: Reduce the adverse per capita

environmental impact of cities, focusing on air
quality and municipal waste management.
Walking and cycling can reduce car trips, cut carbon
emissions, improve air quality, and lower noise
pollution, thereby making cities cleaner, healthier and
more sustainable – see section 1.4.
5. Action

Section 1: Why increasing walking and cycling is important 9

1.2 Walking and cycling improve physical
and mental health
Walking and cycling are two of the most effective and In addition to physical health benefits, walking and
accessible forms of physical activity that can significantly cycling can have a profound impact on improving
improve both physical and mental health (Fig. 2) (8). mental health. They are known to reduce symptoms
Unlike more structured forms of exercise, walking and of anxiety and depression, improve mood, and boost
cycling can easily be incorporated into daily routines, cognitive function (2). Both activities promote general
making them practical options for people of all ages well-being and can be especially beneficial for
and abilities. Walking is almost no cost, requires no older adults by maintaining muscular strength and
special skills, and can be done alone or in groups, almost balance. The risk of falls and related injuries among
anywhere. Cycling can be low cost, requires only the skill older adults can be reduced by engaging in regular
to ride a bicycle, and can provide an enjoyable form of physical activity (19).
individual or group active recreation and exercise. These
attributes make walking and cycling ideal activities for Yet despite the numerous health benefits of walking,
promoting widespread physical activity. cycling, and regular physical activity, a third of
adults (20) and four-fifths of adolescents (21) do not
Regular physical activity, including walking and cycling, meet current physical activity guidelines. Women and
plays a critical role in preventing many of the leading girls are less active than men and boys in nearly all
causes of death, such as heart disease, stroke, cancer, and countries, further perpetuating health inequalities.
type 2 diabetes (2). Walking and cycling can be powerful Promoting walking and cycling as primary forms of
tools for reducing the growing mortality burden – physical activity can therefore help make a substantial
currently 41 million deaths per year – caused by impact on public health.
NCDs (17). Studies estimate that 3 to 5 million premature
deaths due to NCDs could be prevented each year if
more people engaged in regular physical activity such
as walking and cycling. Furthermore, recent analyses
suggest that up to 500 million new cases of NCDs and
mental health conditions could be prevented by 2030
through increased physical activity, potentially saving
global public health systems up to US$ 300 billion (18).

10 Promoting walking and cycling: a toolkit of policy options

Fig. 2. Health benefits of walking and cycling

WALKING AND CYCLING IMPROVES:

cognitive function weight status

mental health muscular and cardio-

1. Why increasing walking and cycling is important

respiratory fitness

sleep quality bone and

functional health

REDUCES:

all-cause mortality hypertension cancers

feelings of anxiety
hip fractures metabolic syndrome
and depression

cardiovascular

2. Policy action areas

mortality type 2 diabetes risk of dementia

Source: Adapted from Walking and cycling: latest evidence to support policy-making and practice.
Copenhagen: WHO Regional Office for Europe; 2022.

3. Key enablers
4. Monitoring progress
5. Action

Section 1: Why increasing walking and cycling is important 11

1.3 Walking and cycling improve road safety
Road traffic crashes result in around 1.2 million deaths non-motorized traffic (4). Enforcing road safety laws,
annually and injure up to 50 million people, making particularly those addressing distracted driving and
them the leading cause of death for young people driving under the influence of alcohol or drugs, is a
aged 5–29 years (4). In addition, road traffic deaths crucial element of this. Lower speed limits combined
impact people during their most productive years, with with traffic-calming measures, especially in areas where
approximately 66% of fatalities occurring among people pedestrians, cyclists, and vehicles share space, can
aged 18–59 years. Globally, pedestrians (which 95% of significantly reduce the severity of crashes, making
people identify as at one time or another) (5), cyclists, streets safer for everyone (23–25).
and powered two- and three-wheeler users together
account for approximately half of these fatalities (4). Safety concerns form one of the main barriers to people
Notwithstanding this, in dense, urban areas with cycling more often (26), so addressing them is vital.
well-designed streets that provide a safe and secure Creating safe infrastructure and supportive policies
infrastructure, trips made by walking, cycling, or public and programmes can lead to safer streets for all and
transport are significantly less likely to result in death promote walking and cycling as safe and normal ways
compared to those made by car or motorcycle (22). to travel. It can encourage more people to choose
active transport, including multi-modal trips combined
The key to improving road safety for all road users, and with public transport, thus reducing the number
specifically for pedestrians and cyclists, lies in using a and dominance of motor vehicles, as well as traffic
safe systems approach to create urban environments congestion. These benefits, in turn, can create a positive
where walking and cycling are safe and accessible (3). feedback loop: as more people walk and cycle, roads
This approach recognizes human error as inevitable and become safer as there are more cyclists and pedestrians
aims to design a mobility system that puts people and (often referred to as “safety in numbers”), and this can
safety at its core. Instead of solely focusing on individual increase the appeal and value of walking and cycling,
road user behaviour, a safe system approach ensures contributing to healthier, more sustainable, and safer
that the entire system – roads, vehicles, speed limits, communities.
and road users – works to minimize the risk of fatal and
serious injuries, preferably separating motorized and

Globally,
pedestrians
make up
21% of road
fatalities (4)

12 Promoting walking and cycling: a toolkit of policy options

1.4 Walking and cycling help create healthy
urban environments
Walking and cycling offer transformative environmental Air pollution is a major health threat worldwide,
and health benefits. Every step or cycle ride taken instead responsible for millions of premature deaths each
of a car journey can help reduce traffic congestion and year (29). As walking and cycling are zero-emission
carbon emissions, improve air quality and lower noise modes of transport, more use of these modes for
pollution. By implementing policy actions to enable transport can contribute to improving air quality
more people to walk and cycle more often, cities and (8, 30). Additionally, long-term exposure to traffic

1. Why increasing walking and cycling is important

communities can be cleaner, quieter, safer and more noise has been linked to negative health effects
sustainable, vibrant and liveable for all (27). (31, 32). Studies have shown that these unhealthy
environmental conditions can be mitigated by mode
The potential impact of walking and cycling on reducing shifts from motorized vehicles to walking and cycling
car trips is substantial. For example, in many cities, for short trips (33–35). For example in Delhi, India, up
despite 35–45% of all trips (by all modes) being within to 45% of air pollution was estimated to be caused
walking distance (around 2 km) or biking distance by transport, with private cars and motorcycles
(around 3–5 km) (12, 13) most of these short trips are accounting for most transport emissions (33).
nevertheless made by motorized vehicles. Replacing Encouraging more people to walk or cycle can make
even a portion of these trips with walking or cycling urban areas more liveable, healthier and safer.
could significantly reduce urban carbon emissions and
contribute to global efforts to combat climate change, While not all short trips can be made on foot or
given that nearly a quarter of all carbon emissions come by bike, the increasing availability of e-bikes and
from vehicular transport (28). deliveries by bike couriers is expanding the potential
to replace car trips with cycling. This is particularly
effective for the “last mile” of deliveries to homes

2. Policy action areas

and businesses, where e-bikes offer a practical and
sustainable alternative.

3. Key enablers
4. Monitoring progress
5. Action

Section 1: Why increasing walking and cycling is important 13

1.5 Walking and cycling can help tackle inequalities
Walking and cycling are often perceived as a matter of Moreover, residents have to crowd into inadequate
personal choice, particularly in high-income settings. housing closer to essential services, spend resources on
However, in many parts of the world, especially in transport and miss out on employment opportunities,
low-resource settings, personal motorized or public or miss out on health care services (38, 39). Conversely,
transport may not be affordable or available. For these well-planned communities that prioritize walking and
communities, walking and cycling are essential modes cycling can ensure that all residents, regardless of
of transport for reaching critical services and supplies income, have safe and convenient access to essential
such as water, fuel, food, health care, education, and services; economic and educational opportunities; and
workplaces. Providing necessary infrastructure and social connections contributing to improved health
enabling safe walking and cycling is therefore an outcomes, stronger social integration, and enhanced
equity issue. economic prospects (40, 41). By implementing policy
options outlined in this toolkit that aim to remove
In communities with a lack of safe access to walking barriers and address the specific needs of disadvantaged
and cycling networks, this can widen inequalities. For and marginalized communities, governments can reduce
example, in contexts where key services such as health, health, social, and economic inequalities.
education and employment are not accessible due to
distance and/or lack of safe footpaths and cycle lanes, This is particularly important given studies that show
residents face significant disadvantages, including urban infrastructure improvements may predominantly
being forced to risk their safety by walking or cycling on benefit socioeconomically advantaged groups (42). For
dangerous roads, enduring long distances, or relying on example, a recent study showed that people with higher
unreliable public transport services. These challenges education had better access to cycling infrastructure
can lead to adverse health, social, and economic and cycled more (43). As the burden of chronic diseases
outcomes (36, 37). For instance, school children can is higher in more deprived communities, implementing
suffer lower academic performance because of tiredness policy options to improve opportunities for walking
and absenteeism resulting from long and dangerous and cycling in marginalized neighbourhoods has great
commuting routes. potential to deliver health equity gains (44).

1.6 Walking and cycling can increase use of public

transport systems
Promoting walking and cycling alongside public Furthermore, combining active travel with public
transport creates a powerful synergy for sustainable transport can significantly reduce the environmental
mobility. Walking and cycling serve as key components impact of urban travel. Public transport, when paired
of almost every public transport journey and bridge with walking and cycling, has a much lower carbon
the “first mile” and “last mile”(45). By integrating these footprint compared to private car use. This helps to cut
modes, cities can enhance the efficiency and reach of carbon emissions, reduce air pollution, and contribute to
public transport systems, making them more convenient healthier, more sustainable cities (46).
and attractive for users while building a comprehensive,
sustainable transport network that improves public The availability of amenities such as secure bike parking,
health and urban liveability. rental bikes at transit stations, and low-cost, convenient
options to take bicycles on trains and buses can
Walking and cycling offer a flexible and cost-effective encourage more people to cycle as part of their journey.
way to access public transport. They extend the range This not only promotes physical activity but also makes
of public transport services by allowing people to public transport a more viable and flexible option for a
easily travel to and from transit stops and stations, broader range of people, including those who may need
even if they are not within immediate proximity. This to travel longer distances.
integration reduces the need for short car trips to reach
public transport hubs, decreasing traffic congestion and
lowering carbon emissions.

14 Promoting walking and cycling: a toolkit of policy options

1.7 Walking and cycling make economic sense
Promoting walking and cycling offers not only health Tourism is another sector in which walking and
and environmental advantages but also delivers cycling can generate significant economic benefits.
significant economic benefits. It can boost local The market for holiday destinations that offer
economies, create jobs, enhance tourism, and lead to good amenities for walking and cycling is growing,
long-term savings in public health systems. This makes attracting visitors who seek active travel experiences.
investing in walking and cycling a smart economic For instance, a study in Europe found that cycle
strategy for all communities. tourism generates €44 billion annually, revealing a
substantial economic impact (52). Another study in

1. Why increasing walking and cycling is important

When neighbourhoods are designed to support walking France reported cycle tourism generated €5.1 billion
and cycling, they attract cyclists and pedestrians and annually and had increased by 46% between 2010
draw more people to local shops, boosting small- and 2018, with even greater growth expected (53). In
business turnover and enhancing the vitality of local Scotland, investment in walking and cycling networks
communities (47). For example several studies have was estimated to generate £1.9 billion for the Scottish
shown that in areas with improved walking and cycling economy, as well as supporting around 27 500 jobs
infrastructure, retail sales increase – often contrary to the and averting an estimated 19.5 million car journeys
expectations of retailers who protested against measures and around 7.1 million kg of carbon emissions. (54)
aimed at restricting personal motorized vehicles (47).
However, one double-edged consequence of improving Reduced transport costs, reduced employee sick
the walkability of an area can be that residential homes leave (55, 56) and health-care savings are additional
and retail property values rise more steeply compared to economic benefits (57). When more people walk or
similar properties in less-walkable neighbourhoods (48, cycle, there is a decrease in the use of motorized
49). While this is often viewed as desirable, higher rent transport, leading to reduced congestion and lower
and house prices can reduce housing affordability and infrastructure maintenance costs.
may negatively impact current residents’ cost of living,

2. Policy action areas

and lead to some moving out of the area. Improvements In summary, investing in walking and cycling
to walking and cycling networks must therefore ensure infrastructure can have far-reaching economic
reducing inequity is a priority consideration. benefits. It can boost local economies, create jobs,
enhance tourism, and lead to long-term savings in
Investing in policy actions to support more walking transport and health-care costs, making it a smart
and cycling can also create jobs. A recent analysis economic strategy for communities. More details
by the European Cycling Federation found that over on available tools for calculating the cost-benefits
650 000 jobs in the EU-27 are directly linked to cycling, from increasing walking and cycling are provided in

3. Key enablers
with the potential to create an additional 400 000 jobs Section 3 of this toolkit.
if cycling rates were to double (50). The Institute for
Transport and Development Policy reported that bicycle
infrastructure projects can yield more direct jobs (as
opposed to indirect or induced jobs) than road projects,
citing a study from the United States of America,
4. Monitoring progress

which estimated 11 to 26 jobs at the state level could

be generated for every US$ 1 million in revenue from
bicycle-oriented businesses (51). Job creation extends
beyond infrastructure development to industries such as
bike manufacturing, maintenance, and tourism.
5. Action

Section 1: Why increasing walking and cycling is important 15

 Illustrative photo: pedestrian street in San Francisco de Campeche,
Campeche, Yucatán, Mexico, by Kamnacestach/Shutterstock

16 Promoting walking and cycling: a toolkit of policy options

 Policy action areas to
Section 2:

1. Why
increase walking and cycling

2. Policy action areas to increase walking and cycling

This toolkit outlines seven policy action areas to Moreover, successful development and
guide coordinated, cross-government action on implementation of many of these policies requires
enabling and increasing opportunities for safe collaboration across sectors beyond health,
walking and cycling for all. The seven action areas including civil society and community stakeholders.
provide a flexible framework for implementation Establishing partnerships and ensuring coordination
at national, subnational and local level, as policy and alignment of actions across sectors leads to
alignment across these levels is needed to ensure greater scale, resource sharing, policy coherence,
consistency and achieve the greatest impact. and effectiveness.

Each policy area contains a clearly stated policy The more these policy options are put into practice
objective, with a short rationale explaining why the the more effective the efforts will be in promoting
policy is necessary and how it supports walking and public health, environmental sustainability, economic
cycling. Each policy area is accompanied by a set of benefits, and social equity.
practical steps to achieve the objective, and some
actions are supportive of more than one policy. Case
studies in this toolkit provide real-world examples of

3. Key enablers
policy implementation and offer valuable insights.

Increasing walking and cycling requires a

comprehensive approach; no single intervention is
sufficient on its own. The seven policy actions are
interconnected and will have the most substantial
impact when implemented together. It is, therefore,
4. Monitoring progress

the responsibility of all levels of government to

identify and apply the combination of strategies
needed to support walking and cycling in their
local contexts.
5. Action

17
Policy action area 1: Government sectors that can benefit from walking
and cycling policy integration
Integrate walking • Transport and mobility: Integrating walking and
and cycling into cycling into urban planning, transport, and road safety/
all relevant policies mobility policies is crucial to ensure they are prioritized
over personalized, motorized transport and integrated
Objective within well-planned public transport systems. This
ensures political commitment, adequate resource
To integrate walking and cycling into all relevant
allocation, and strong accountability mechanisms.
policies across all levels of government, including
The absence of walking and cycling from these
securing walking and cycling as priority modes
policies often results in limited consideration and
of travel in transport policies as well as ensuring
inclusion in urban infrastructure and transport projects,
inclusion in policy across other related sectors such as
affecting resource mobilization through national
sustainability, urban planning, health, education, sport,
and international financing mechanisms.
tourism, environment, and economic development.
• Health and well-being: Walking and cycling
Rationale objectives should be included in health policies,
Strengthening the presence of walking and cycling in particularly those targeting NCDs, obesity prevention,
national and subnational policies enhances the visibility mental health, and healthy ageing. Increasing physical
of these activities, which is vital to secure prioritization activity through more walking and cycling can
and funding. Unfortunately, even in transport policies, contribute significantly to achieving multiple health
walking and cycling are often overshadowed by the policy objectives and support building healthier
dominant focus on planning and supporting motorized societies.
transport. This “car centric planning” has led to increasing • Sport, recreation and leisure: Walking and cycling
traffic congestion, pollution, and health issues. Securing are popular forms of leisure and are accessible to most
inclusion in all relevant policies, along with clear people of all ages and abilities, and as such they should
objectives and targets, is essential to shift government be core components within community sport, youth,
planning and policy from traditional mindsets (or leisure, and recreation policies. Setting objectives
“business as usual”) towards bold policy actions and targets for walking and cycling within these
favouring walking and cycling (see Fig. 3). policies will ensure visibility and support allocation
of resources.
Securing the integration of walking and cycling in
policies beyond transport is key to positioning walking • Social inclusion and gender equity: Walking
and cycling as a solution for multiple government and cycling are affordable and accessible modes
priorities. This in turn can encourage and develop a of transport and recreation. As such, government
cross-government agenda on walking and cycling policy objectives on inclusion and gender equity can
to achieve multiple government objectives (see case be supported directly and indirectly by improving
studies in Box A). access to and participation in walking and cycling.
Walking and cycling can also increase positive social
interactions, which can add to feelings of community
belonging and cohesion.

18 Promoting walking and cycling: a toolkit of policy options

• Crime prevention: Policy actions to prevent crime Key actions to take
are closely aligned to providing safe environments 1. Review and integrate walking and cycling in
for walking and cycling. Fear of crime, as well as all relevant policies: Update and or strengthen
road safety, are two of the most frequently reported the inclusion of walking and cycling in all relevant
barriers to walking and cycling, especially at night policy areas, and ensure there are clear policy
and by vulnerable road users. Crime prevention policy objectives related to supporting, enabling and
objectives can be supported by providing good protecting safe walking and cycling; prioritize
infrastructure that encourages more pedestrians and actions that favour increasing walking and cycling.
cyclists who provide additional street surveillance
2. Create a comprehensive understanding of the
(“eyes on the street”) that can help deter criminal
context (people and infrastructure): Gather as

1. Why
activity and report suspicious activities.
much data as possible to assess and understand
• Tourism: Walking and cycling tourism can provide current walking and cycling levels among different
economic, environmental and social benefits by groups, as well as the environmental, psychological
attracting visitors, reducing congestion, and promoting and social-cultural factors that influence these

2. Policy action areas to increase walking and cycling

sustainable travel. Tourism policies that are supported behaviours; use so-called “behavioural insights” to
by the development of well-connected walking and inform policy objectives.
cycling infrastructure and good links to the public
3. Establish clear targets: Policy objectives
transport network can deliver enhanced visitor
to increase walking and cycling need clear,
experience, making locations more attractive and
time-bound targets, with specific actions and
accessible to a wider range of tourists and increase
designated responsibilities. These measurable
local business revenue.
targets provide direction for the walking and
• Environmental and economic development: cycling policy agenda, offering transparency and
Walking and cycling can help achieve policy objectives benchmarks for communities and countries to
related to reduction in carbon emissions, as well as monitor and evaluate progress. Setting these
noise and air pollution. As such, targets to increase targets within all relevant government policies
walking and cycling should be included in climate empowers leaders and decision-makers to
adaptation policy, as well as transport and economic generate joint action, strengthen policy coherence,
development strategies and action plans. leverage regulatory approaches, and mobilize
• Education: Given the importance of developing financing mechanisms.
independent mobility, as well as knowledge around 4. Establish a cross-government coordination
road safety, education policy should include

3. Key enablers
mechanism and accountability framework:
curricular objectives related to teaching children With potential partners from different policy
about safe walking and cycling, and policy objectives areas, it is essential to seek common ground
to ensure that the areas directly around schools in amplifying the effects of individual policies
(i.e. the catchment area) provide safe, accessible through walking and cycling. This can result in
and well-connected walking and cycling routes to a specific standalone walking and cycling policy
their premises. or a consolidated national implementation or
4. Monitoring progress

action plan. The preferred option is to organize an

ongoing governmental coordination mechanism
based on a focused framework for cross-
government policy objectives related to walking
Globally only and cycling.
46 countries report 5. Ensure monitoring and research: If not yet

having a national in place, set up a monitoring system enabling

relevant and ongoing data collection on walking
walking and
5. Action

and cycling. Conduct research to address

cycling policy (58) knowledge gaps and increase understanding
of enablers and barriers.

Section 2: Policy action areas to increase walking and cycling 19

Fig. 3. Promoting sustainable mobility over motorized transport: a shift in mindset

Prioritizing healthy, green and sustainable mobility

from to

Source: Adapted from A handbook on sustainable urban mobility and spatial planning:
Promoting active mobility. Geneva: United Nations Economic Commission for Europe; 2020.

20 Promoting walking and cycling: a toolkit of policy options

 Box A: Integrating walking and cycling in all key policies, Viet Nam,
CASE STUDY Singapore, and Kenya
Livable Cities Project, Hoi An, Viet Nam The goal for 2030 is that 80% of households are
Working in partnership, the Livable Cities Project within a 10-minute walk of a train station. Results
(https://healthbridge.ca/projects/livable-cities- reported in 2018 showed that 64% of households
vietnam) focuses on making urban neighbour- in Singapore were reportedly within a 10-minute
hoods more livable and conducive to healthy life- walk from a train station, compared to 57% in
styles by promoting healthy transport, increasing 2012. The plan also aims that, by 2040, residents
the availability of parks and public spaces, and can reach their nearest neighbourhood centre
protecting and preserving local public markets. within 20 minutes and their workplace within
45 minutes (peak time) using walking, cycling or
Enabling more walking and cycling was

1. Why
public transport. The plan also aims to support
embedded as an objective in the 5-year Hoi An safer and cleaner transport, such as 100% of the
Public Spaces Master Plan, initiated in 2015. This public buses running on cleaner energy; adapting
was designed to encourage the development infrastructure for people with special needs such
of new parks, green spaces and pedestrian-

2. Policy action areas to increase walking and cycling

as creating more covered linkways where people
friendly areas with the aim of providing 1.5m2 per can stop and rest; and reducing traffic speeds
person of public space, located within a walking in the country from 40 km/h to 30 km/h in 50
distance of 300–800 m from homes (around designated “silver zones”.
5–10-minutes’ walking distance). The plan called
for dedicated cycling lanes and a bicycle sharing Non-motorized Transport policy,
programme to provide opportunities for safe and Nairobi, Kenya
convenient cycling. It also focused on creating In 2017, Nairobi adopted a non-motorized
safe routes to school to encourage more children transport (NMT) policy (https://wedocs.unep.
to walk to school on a regular basis. As a result, org/bitstream/handle/20.500.11822/25413/
public spaces expanded by 42%, and parks were NairobiCity_%20NonMotorizedTransportPolicy.
provided with better lighting to address issues pdf ) to promote walking and cycling as
of perceived safety and to increase people’s use primary modes of transport in the face of rapid
and enjoyment. urbanization, congestion, and pollution. Its
The Hoi An City government is now developing five objectives were to enhance mobility and
an active transport master plan to support and accessibility for all residents, improve road safety
encourage local residents to walk and cycle, in for pedestrians and cyclists, develop and maintain
collaboration with NGOs led by HealthBridge infrastructure such as sidewalks, pedestrian

3. Key enablers
and Action centre for the City (among others), crossings, and bike lanes; raise awareness and
prioritizing youth and other community groups improve the public perception of NMT, and
through a co-design approach. allocate sufficient funding for the development
Illustrative photo: pedestrian street in Hoi An, Viet Nam, by Romas_Photo/Shutterstock

and maintenance of non-motorized transport

Land Transport Master Plan 2040, infrastructure.
Singapore
To fund this work, the policy stated that at least
4. Monitoring progress

Singapore’s Land Transport Master Plan 2040 20% of Nairobi County’s existing and future
(www.lta.gov.sg/content/ltagov/en/who_ transport budgets should be allocated to non-
we_are/our_work/land_transport_master_ motorized and public transport. In addition, the
plan_2040.html) is an ambitious government policy set measurable targets: to increase walking
programme to provide a convenient, well- trips up to 5 km from 47% to 50% by 2025, and
connected and more integrated transport system increasing cycling from 2% to 10% for trips up to
that includes an expansion of the cycling path 15 km by 2015. Other targets included a reduction
network by 1000 km, and increased provision in pedestrian fatalities from 500 (in 2015) to 50 or
of bicycle parking spaces at metro stations
5. Action

less by 2025, and to reduce cyclist fatalities from

to promote the link between transport and 20 (in 2015) to five or fewer by 2025.
walking and cycling.

Section 2: Policy action areas to increase walking and cycling 21

Policy action area 2: Aspects of urban environments that can promote safe
and connected walking and cycling networks
Provide safe and connected
• Integrated networks: Urban planning and design
walking and cycling must prioritize walking and cycling networks that
networks connect residential areas with key destinations such
as commercial zones, public spaces, and health
Objective services. Concepts like “walkable cities” and “15-minute
To ensure that all communities have convenient access neighbourhoods” ensure essential services are easily
to safe, well-connected walking and cycling networks; accessible by walking or cycling, reducing reliance on
and to enable walking and cycling to be the preferred cars. This approach is consistent with “transit-oriented
choice for short trips as well as for active recreation development” and “smart growth” neighbourhoods
and exercise. aimed at environmentally sustainable development
and reducing urban sprawl.
Rationale
• Compact, mixed-use neighbourhoods: When key
Well-planned urban environments with high-quality destinations like shops, schools, or workplaces are
walking and cycling infrastructure encourage more not easily accessible by walking, cycling, or public
people to walk or cycle, thereby fostering healthier transport, people tend to rely on motor vehicles. This
lifestyles. A well-connected network of paths providing is often a result of land-use policies that separate
safe access and convenient distances to key destinations residential areas from essential services, contributing
used in daily living not only promotes increased physical to “urban sprawl”. The increased use of private vehicles
activity but also reduces dependency on personal in such areas leads to higher carbon emissions,
motor vehicles, helping to combat traffic congestion, traffic congestion, and poorer air quality. In contrast,
pollution, and urban sprawl (see case studies in Box B). compact, mixed-use neighbourhoods bring these
Yet research indicates that 80% of audited roads globally destinations closer, enabling more people to walk or
do not meet the recommended minimum 3-star rating cycle, which reduces environmental impacts, promotes
for pedestrian safety standards, and a mere 0.2% are sustainability, and supports healthier lifestyles.
equipped with cycle lanes, leaving these road users Compact planning can significantly lower carbon
dangerously exposed (4). This lack of essential features – footprints and enhance urban living.
such as sidewalks, safe crossings, and a dedicated and
• Improved access for all: Poor walking and cycling
well-connected cycling network – forces a substantial
infrastructure can disproportionately impact lower-
proportion of pedestrians and cyclists to navigate
income groups and people with disabilities, especially
hazardous conditions, often sharing poorly surfaced
when there is also limited access to private or
roads with high-speed traffic.
affordable public transport services. By improving
walking and cycling networks, cities can help address
social and economic inequalities and improve
access to essential services (e.g. education, health,
employment) for vulnerable populations.

22 Promoting walking and cycling: a toolkit of policy options

• Integrated green spaces: Designing streets with Key actions to take
greenery, linear parks, good lighting and access
1. Reform land use policies: Review and reform
to nature can also enhance the appeal of walking
land use laws and policies to ensure that
and cycling by providing shade, reducing urban
planned and existing land use plans and urban
heat, and creating more pleasant environments.
developments provide highly connected, safe
These green features also play a key role in climate
walking and cycling networks. This includes
mitigation by lowering carbon emissions and
minimizing distances between a diverse range
reducing noise pollution. Urban planning policies
of destinations to enhance accessibility and
must prioritize equitable access to parks, rivers,
convenience.
and coastal areas by integrating walking, cycling,

1. Why
and public transport options. Zoning and land- 2. Strengthen transport and mobility policies:
use legislation and policies should focus on fairly Evaluate and strengthen transport, mobility and
distributing green spaces to all communities, road safety laws and policies, as appropriate to
aligning with SDG 11, to ensure universal access context, to mandate the behaviourally informed
design and provision of walking and cycling

2. Policy action areas to increase walking and cycling

to public spaces, especially for vulnerable groups.
This approach supports healthier lifestyles while infrastructure. Ensure these infrastructures meet
promoting environmental sustainability and designated functions, road safety standards, and
reducing reliance on private vehicles. are suitable for the volume of vehicles on the road.
3. Improve network connectivity: Identify and
prioritize enhancements to walking and cycling
networks and end-of-trip amenities. Focus on
increasing walkability and cyclability around
key destinations and public facilities, such as
educational institutions, public offices, health
settings, and public open spaces.
4. Ensure equitable access to green spaces:
Review laws and policies (including, for example,
standards, orders and by-laws) related to the
provision, distribution, and access to public and
green open spaces by walking and cycling. Ensure
these spaces are equitably accessible and of high

3. Key enablers
quality for different communities and populations,
considering factors such as age, sex, ability, and
socio-economic status.
5. Show impact through demonstration projects:
Select communities to implement demonstration
projects aimed at creating more walkable and
4. Monitoring progress

cycle-able neighbourhoods. Engage communities

in co-design processes and conduct appropriate
evaluations. Use the findings from these projects
to inform policy changes and guide future
investments.
5. Action

Section 2: Policy action areas to increase walking and cycling 23

 Box B: Providing safe and connected walking and cycling networks,
CASE STUDY

France, the Netherlands (Kingdom of the), and Norway

Creating a “15-minute city”, Paris, France and public transport. The RijnWaalpad has led to a
Since taking office in 2014, Paris Mayor Anne significant increase in bicycle use in the Arnhem-
Hidalgo has worked towards making Paris Nijmegen region, with cycling volumes almost
a “15-minute city” (www.paris.fr/dossiers/ doubling after 5 years. An evaluation of 15 Dutch
paris-ville-du-quart-d-heure-ou-le-pari-de-la- cycle highways showed an increase in cycling
proximite-37), remodelling the city with the aim to work by 10% for trips that benefitted from
to provide all residents with access to their places the construction of a cycle highway. Beyond its
of work, education, shopping, health centres or transport benefits, the RijnWaalpad contributes to
recreation within 15 minutes their homes. The sustainability goals by reducing car dependency
city plans included creating “a bike lane in every and lowering CO₂ emissions.
street” and removing 60 000 parking spaces for
Fyllingsdalstunnelen – the world’s
private cars. Paris’ hosting of the 2024 Olympics
longest bike tunnel: Bergen, Norway
Games served as a catalyst for improvements
and extensions to the city’s walking and cycling The Fyllingsdalstunnelen in Bergen, Norway,
infrastructure. Some roads have been repurposed is an example of repurposing infrastructure to
to be used for pedestrians and cyclists only, and support active travel (www.vestlandfylke.no/
open spaces have been repurposed for multiple fylkesveg/fylkesvegprosjekt-i-vestland_ny/
users, for example school playgrounds becoming fyllingsdalstunellen). Originally designed as an
a sports facility for adults at night. By 2023, Paris escape tunnel for the light rail system, the tunnel
had over 1000 km of cycling routes, including has been transformed into a dedicated path for
separate bike lanes, painted paths and converted pedestrians and cyclists. The repurposed 2.9 km
bus lanes for cyclists. An old railway line was tunnel opened in April 2023 and features separate
transferred into a green walking path. Additionally, lanes for cyclists and pedestrians, with a 3.5-m

Illustrative photo: dual bicycle path and pedestrian path across a highway bridge, Poland, by Grand Warszawski/Shutterstock
the city expanded its bike-sharing programmes, wide cycle lane and a 2.5-m wide walking lane.
introducing 3000 more pay-as-you-go bicycles. The walking lane is covered with blue rubber
flooring to enhance comfort, while the cycling
Fast cycle route (RijnWaalpad), lane is made of white asphalt. The tunnel’s design
Arnhem-Nijmegen, the Netherlands includes art installations, colourful murals, and
(Kingdom of the) lighting features to create an inviting atmosphere.
The RijnWaalpad is one of several “fast cycle The tunnel is equipped with security cameras,
routes” contributing to lowering carbon emergency phones, and rest stops, ensuring
emissions by promoting a shift from driving to safety and convenience for users.
cycling in the Netherlands (Kingdom of the)
The bicycle tunnel provides better connection
(www.gelderland.nl/themas/bereikbaar/
for the Fyllingdalen neigbourhood to a new
fietsen/hoogwaardige-fietsroutes/netwerk-
residential area, a university campus and the
van-hoogwaardige-fietsroutes/rijnwaalpad).
university hospital – one of the largest employers
The 18 km path connects the cities Arnhem and
in the county. This initiative aims to encourage
Nijmegen with a 4.4 m wide cycle path allowing
more people to choose walking and cycling over
overtaking by cyclists travelling at different
driving, thereby reducing traffic congestion and
speeds. Opened in 2015, it was designed to
CO2 emissions. The project is part of a broader
maximize efficiency by providing a direct, safe,
effort to promote sustainable urban mobility
and comfortable commuting alternative to cars
in Bergen.

24 Promoting walking and cycling: a toolkit of policy options

Policy action area 3: Aspects of well-designed streets

Design inclusive and safe • Emphasis on road safety: Well-designed streets

contribute to reducing the speed of motorized
streets for all vehicles, a leading cause of road crashes,
Objective injuries, and deaths. Establishing and enforcing
street design guidelines is a core component
Ensure that all streets are designed to be safe, of implementing a safe system approach to
inclusive, and accessible, to encourage walking and improving road safety (Box 5) (59).
cycling by more people of all ages and all abilities.
• Inclusive design: Well-designed streets meet

1. Why
Rationale the needs of all users, thereby encouraging more
walking and cycling. Street design guidelines
Many urban areas have prioritized motor vehicle traffic
establish requirements that ensure inclusive access
over walking and cycling, making streets less safe and
and user safety while enhancing comfort and
accessible. Well-designed streets that cater to all modes
enjoyment for everyone. Design standards should

2. Policy action areas to increase walking and cycling

of transport can improve safety, reduce traffic accidents,
aim to minimize and, where possible, eliminate
and make walking and cycling more appealing (see case
hazards for pedestrians and cyclists, and include
studies in Box C). Street design guidance exists to enable
specific guidance on standards for the placement,
this. For example, the Global Designing Cities Initiative’s
maintenance and use of walking and cycling paths.
Global street design guide (Box 4), developed with input
from 72 cities in 42 countries, offers technical details to • Equity in access: Poor street design
inform street design that prioritizes pedestrians, cyclists, disproportionately affects access and mobility
and public transport users (59). It includes case studies for people living with disabilities, including
and practical examples. with sensory or mobility limitations (61). Poor
maintenance of footpaths and cycle lanes is a
Conducting regular assessments of streets is essential to particular deterrent for older adults, as it increases
ensure they are designed and maintained according to the risk of falls. Well-maintained infrastructure –
desired safety standards – such as the safety star rating such as clear paths and cycleways – enhances
system developed by the International Road Assessment access and ensures streets are perceived as safe,
Programme (iRAP) (60). A 3-star rating is widely accepted particularly for children, families, women, and
as the minimum acceptable rating for all users (4). older adults.
Despite this, data from iRAP show this standard is far
• Street amenities and environment: Provision of
from being met. For example, from an assessment of over

3. Key enablers
street features such as lighting, seating, greenery,
600 000 km across 88 countries, it was found that around
and cycle parking encourages more walking and
80% of roads do not meet the minimum recommended
cycling. Well-designed streets also foster social
3-star safety level for pedestrians or cyclists (53).
interaction and contribute to reducing the risk
of social isolation and loneliness, particularly for
older adults. Well-designed streets can also attract
people to neighbourhoods, which can revitalize
4. Monitoring progress

local economies.
5. Action

Section 2: Policy action areas to increase walking and cycling 25

 Box 4. Global Street Design Guides
The Global Street Design Guide (https:// • street lighting and other features that provide
globaldesigningcities.org/publication/global- safety and comfort;
street-design-guide/) sets out key principles of • traffic calming or other speed-control features;
good street design to ensure the safety and support
of all uses, including pedestrians and cyclists. • street furniture – such as seating, lighting, bus
The guide provides detailed specifications for the shelters, wayfinding signage and cycle racks; and
provisions necessary to enable and encourage • green infrastructure (e.g. trees and other
safe walking and cycling by all users. The guide natural vegetation) as natural barrier against
is available for countries to adapt for use in local moving vehicles.
contexts and provides specifications for: Building on the success of Global Street Design
• walking infrastructure – including footpath Guide, additional design guidance resources
location, width, kerb design, and other footpath include Design Streets for Kids (https://
design features; globaldesigningcities.org/publication/
designing-streets-for-kids/). This guide draws from
• cycling infrastructure – including width,
international best practice and cities around the
separation from motor vehicle traffic on streets
world to show how to design streets and public
with higher vehicle use and/or higher traffic
spaces for children of all ages and abilities that
speed limits, and other design features;
are safe, enjoyable, and inspirational for children
• safe intersections and pedestrian and and caregivers.
cycling crossings;

26 Promoting walking and cycling: a toolkit of policy options

 Box 5. Safe system approach
WHO recommends that countries adopt a safe system • motivates those who design and maintain the
approach, which puts people and safety at the core roads, manufacture vehicles, and administer safety
of mobility systems to create safer road environments programmes to share responsibility for safety with
for all users. This approach integrates a range of road users, so that when a crash occurs, remedies
measures designed to minimize risk and reduce harm, are sought throughout the system, rather than
recognizing that road transport operates as a complex solely blaming the driver or other road users;
system. By placing safety at its core, the safe system • pursues a commitment to proactive and continuous
approach – central to the Decade of Action for Road

1. Why
improvement of roads and vehicles so that the
Safety 2021–2030 – emphasizes the critical interaction entire system is made safe rather than just locations
between humans, vehicles, and road infrastructure, or situations where crashes last occurred; and
ensuring that these elements work together to
achieve the highest possible level of safety for all. • adheres to the underlying premise that the

2. Policy action areas to increase walking and cycling

A safe system therefore: transport system should produce zero deaths
or serious injuries and that safety should not be
• anticipates and accommodates human errors; compromised for the sake of other factors such as
• incorporates road and vehicle designs that limit cost or the desire for faster transport times.
crash forces to levels that are within human Source: (3)
tolerance to prevent death or serious injury;

Key actions to take

1. Develop or adopt street design standards: 4. Prioritize street improvements:
Develop or adopt best-practice street design Launch improvement programmes across
standards, tailored to local contexts, and ensure neighbourhoods and cities, focusing on areas
their use in planning systems at all levels. most in need of safer, more inclusive walking
2. Mandate compliance: Enforce compliance with and cycling infrastructure.
design standards through legal frameworks or as a 5. Encourage community involvement:
condition of planning/development approval. Include Engage communities in identifying existing

3. Key enablers
these standards as a condition for financial investment barriers as well as potential opportunities and
and procurement contracts. local needs for creating safer streets; encourage
3. Conduct regular street audits and assessments: their participation in co-design processes and
Establish and use a street assessment tool and consultations.
regularly audit existing and new (proposed)
streets to ensure compliance and identify areas for
4. Monitoring progress

improvement, modification and maintenance.

Nearly 80% of all

roads assessed do not
meet a minimum
3-star rating
5. Action

for pedestrian
and cycling
safety (60)

Section 2: Policy action areas to increase walking and cycling 27

 Box C: Designing inclusive and safe streets for all, Colombia
CASE STUDY

and the United Kingdom

Manual for Sidewalks (Cartilla de Andenes city has significantly improved the quality of its
de Bogotá), Bogotá, Colombia sidewalks and reduced the risk of accidents, while
making walking more enjoyable and accessible,
The City of Bogotá has undertaken multiple
including for people with disabilities.
initiatives to promote walking and cycling
as alternative modes of transport. In 2000, Healthy Streets: London, United Kingdom
led by the Secretary for Planning and a team of Great Britain and Northern Ireland
of urban planners and mobility experts,
the city adopted a street design decree to Healthy Streets sets out the Mayor of London’s
regulate the construction of sidewalks and approach to putting people and their health
public spaces in the city, and developed at the centre of decisions on the design,
the accompanying “Manual of Sidewalks” to management, and use of public spaces (https://
help implement the decree. Revisions were tfl.gov.uk/corporate/about-tfl/how-we-work/
made in 2007 and 2015 and a new regulation planning-for-the-future/healthy-streets). The
(www.alcaldiabogota.gov.co/sisjur/normas/ Healthy Streets approach was initiated as part
Norma1.jsp?dt=S&i=4543&utm) and manual of the Transport for London Transport Strategy
(http://www.sdp.gov.co/sites/default/files/ in 2018 with the aim making streets safe and
cartilla_andenes_modificacion_07-06-2018. welcoming for everyone, creating a healthier,
pdf ) were adopted in 2018. Together, the decree more inclusive city where people choose to
and the manual support the city’s broader efforts walk, cycle and use public transport while
improving air quality and reducing congestion.

Illustrative photo: cyclists on the Carrera Séptima cycling path alongside pedestrians in Bogota, Colombia, by OI Franck Camhi/Shutterstock
to promote sustainable urban mobility, reduce
reliance on motorized transport and improve To help implement Healthy Streets, resources
public open spaces. were developed to provide guidance across
The Manual for Sidewalks is a comprehensive the process, from initial street assessments,
resource with specifications on the design, through to implementation and evaluation.
construction and maintenance of sidewalks These include a Guide to the Healthy Streets
to enhance safe and separated pedestrian Indicators and the Healthy Streets Check for
use, including technical guidance on sidewalk Designers. A Healthy Streets Survey is available
widths, surface materials, kerb ramps and street to help planners capture the experience,
furniture. It also emphasizes the importance perceptions and expectations of people and
of integrating public green spaces and support engagement with local communities
ensuring proper lighting to enhance the overall (all available using the link above). Collectively
pedestrian experience. these tools can help measure the performance
of streets across locations and over time.
Today, every modification of public spaces A Healthy Streets NGO was established to
for pedestrians in Bogotá must be developed support implementation and provide additional
in accordance with the guidelines and resources and training.
specifications of the manual. By doing so the

28 Promoting walking and cycling: a toolkit of policy options

Policy action area 4: • Prevent distracted driving: Distracted driving and
cycling, such as driving while using a mobile phone,
Improve safe road user impairs drivers’ abilities and poses a risk comparable
behaviour to that of driving under the influence of alcohol (63).
Extending legislation to address this issue is essential
Objective to road safety.
To reduce the real and perceived risk of traffic • Good road design: Road infrastructure is a key
collisions, road deaths, and injuries among determinant of safety, and roads should be designed
pedestrians, cyclists, and other vulnerable road users and operated to eliminate or reduce risks for all
by improving road user behaviour. road users. Street design and engineering standards

1. Why
provide guidance on effective and safe solutions
Rationale
to improve road user behaviour. Many examples
Safety is the key factor influencing people’s decisions of design solutions are available and adaptable
to walk or cycle. More than half of global road fatalities for different contexts (64).

2. Policy action areas to increase walking and cycling

involve vulnerable road users such as pedestrians and Legislation and enforcement
cyclists, with road traffic injuries being the leading cause
of death for young people aged 5–29 years (1, 3, 8). Legislation and enforcement are vital tools for
Parents, children, young people, women, and older adults improving road safety and thereby encouraging
are particularly affected by safety concerns. Enacting and walking and cycling – including legislation on cycle
enforcing laws that govern road user behaviour is critical helmets (Box 6). The Decade of Action for Road Safety
for increasing road safety and encouraging more people 2021–2030 emphasizes a safe system approach (see
to walk and cycle. Ensuring children and adults have the Box 5), which integrates a range of measures designed
opportunity to learn cycling skills, as well as about traffic to minimize risk and reduce harm. These include
rules and road safety, is also key to a comprehensive legislation and public awareness/education to improve
approach to improving safe road user behaviour road safety through safe road user behaviour. Effective
(see case study, Box D). and efficient policing of road user behaviour is crucial,
especially in low- and middle-income countries where
Key contributors to safer road use more than 90% of all traffic deaths occur (4), along
• Reduce speeding: Speed is the leading cause of road with efforts to improve public perception of traffic
deaths, presenting a significant risk to all road users, police forces.
particularly pedestrians and cyclists (4). The risk of
Key actions to take

3. Key enablers
serious injury and death increases with speed, and
the chance of survival is minimal in collisions involving 1. Strengthen legislation affecting road safety:
vehicles travelling over 50 km/h. Despite this, progress Introduce or reform legislation for safe road use
in enacting laws that meet WHO best practice criteria – (at national or subnational level, depending on
that is the national speed limit includes an urban legislative mandates), prioritizing legislation on
speed limit of 50 km/h or lower and the ability of local speed limits, alcohol and drug consumption, and
authorities to adapt speed limits to local context – has mobile phone use. Aim to meet WHO best practice
4. Monitoring progress

been limited. In 2023, of the 163 countries reporting criteria (4), which include setting a maximum speed
laws on speeding, only 57 meet WHO best practice limit of 50 km/h in urban settings and enabling local
criteria (4). authorities to further lower this limit where there
is potential conflict with pedestrians and cyclists,
• Eliminate driving under the influence: Driving under such as around schools, in residential areas, and
the influence of alcohol or drugs significantly increases urban centres.
the risk of collisions (62). Recent estimates suggest that
10% of road traffic deaths are related to drink-driving. 2. Empower local authorities: Enable and support
Of the 166 countries with specific legislation on drink- local authorities to adjust or recommend speed
limits where needed, prioritize walking and cycling
5. Action

driving, 48 already meet WHO best practice criteria.

Legislation addressing these behaviours is crucial for when redesigning streets and restrict or ban
improving road safety (1). motorized traffic in specified areas (e.g. city centres)
to enhance safety for pedestrians and cyclists.

Section 2: Policy action areas to increase walking and cycling 29

3. Strengthen enforcement: Enhance the enforcement 5. Review and strengthen penalties: Evaluate
of road safety legislation, and thereby safer user and, if necessary, adjust penalties for violations
behaviours, through increased use of technologies of road safety laws to ensure they are meaningful
such as automated speed cameras and manual checks and effective. Use a range of penalties, such as
(e.g. random breath testing, sobriety checkpoints, and administrative driver’s licence suspension or
roadside checks). revocation, fines, and demerit points, tailored
4. Equip enforcement authorities: Ensure authorities to the country context and culture.
have the appropriate legal powers, functions, and
training to enforce road safety rules effectively,
allowing them to prosecute violations through
meaningful penalties.

Box 6. Helmet legislation for cyclists

A country’s decision to mandate helmet use for Ensuring effective helmet use requires measures such
non-powered bicycles is influenced by safety as developing and passing helmet-use legislation,
considerations and public health objectives. public education, and active law enforcement (66).
Evidence shows that wearing a cycle helmet Many countries that have introduced mandatory
significantly reduces the risk of severe head injuries helmet laws for cyclists cite safety data as a key factor,
in cycling accidents, which can lead to reducing the particularly for children. For example, Australia was
chances of disability or death (65). But the availability among the first to introduce nationwide helmet
of affordable helmets and the requirement for use regulations in the early 1990s. Canada and Argentina
may act as a barrier to cycling for some people. enforce helmet use for cyclists in certain regions and
As a consequence, this could reduce the public the Netherlands (Kingdom of the) requires helmet use
health impact of active transport – indeed, available only for e-bikes that exceed the speed limit of 25 km.
data on the benefits versus the disadvantages of These policies are typically part of broader road safety
promoting cycling in the absence of non-powered strategies aimed at reducing traffic-related injuries.
bicycle helmet legislation present a mixed picture.
For users of powered two- and three-wheelers, Opposition to such legislation includes concerns that
WHO recommendations implementing a universal helmet laws are often poorly enforced, barriers such as
helmet law, applicable to all drivers and passengers, hot weather, as well as preferences for other headwear
as head injuries are the main cause of death in most (e.g. turbans). Misinformation can also contribute to
motorcycle crashes. Quality helmets reduce the risk non-use, such as myths that helmets are unsafe for
of death by over six times, and reduce the risk of children. More research is needed to inform policy
brain injury by up to 74%. decisions on this type of legislation and therefore,
at this time, decisions to regulate helmet use depend
on balancing available evidence, individual freedoms,
and the public health benefits of cycling as a
recreation and sustainable mode of transport (67).

30 Promoting walking and cycling: a toolkit of policy options

 Box D: Improving safe road-user behaviour: road safety campaign
CASE STUDY

benefits walking and cycling, Thailand

Since 2015, Thailand’s road safety campaign Visible improvements in road safety, such as
has made significant strides in reducing road better lighting and safer intersections, have
traffic fatalities and injuries. The initiative reinforced public trust in these initiatives.
focuses on improving road infrastructure, By creating safer pedestrian pathways and
reducing speed limits, enhancing law dedicated cycling lanes, the road safety
enforcement, and conducting mass media initiative has encouraged more people to
campaigns to raise awareness about road walk and cycle in Bangkok. The campaign,

1. Why
safety. Ongoing monitoring and data undertaken in collaboration with Bloomberg
collection enable targeting of interventions Philanthropies has led to a reduction in
and tracking progress. Over 450 specialists road traffic deaths and serious injuries from
have been trained, and safety assessments of implementing a comprehensive municipal

2. Policy action areas to increase walking and cycling

over 1 000 km of high-risk roads have led to approach to road safety (www.who.int/docs/
targeted improvements. default-source/documents/the-power-
Illustrative photo: bike parking on the pavement alongside pedestrians, Bangkok, Thailand, by AlivePhoto/Shutterstock

of-cities/bangkok-case-study-final.pdf). In
Mass media campaigns have played a Thailand, road crash fatalities are reported
pivotal role in changing public perception, to have decreased by approximately 6% per
Highlighting the dangers of speeding, drink– year between 2016 and 2021.
driving, and the importance of helmet use
has increased awareness and compliance.

3. Key enablers
4. Monitoring progress

Speed matters
Set speed limits to 30 km/h
5. Action

in areas where pedestrians,

cyclists, and vehicles
frequently mix (68)

Section 2: Policy action areas to increase walking and cycling 31

Policy action area 5: Ways to optimize streets for the benefit of walking
and cycling
Protect and prioritize • Prioritize walking and cycling: Legislation that
walking and cycling limits vehicle access and creates environments where
walking and cycling are prioritized over motorized
Objective vehicles can make streets safer and more welcoming
To optimize street use in ways that encourage for those on foot or bicycle. Legislative measures
more people to walk and cycle by creating can set clear priorities for pedestrians and cyclists,
safe, accessible, and attractive environments especially in busy urban centres and areas around key
for all users while reducing the dominance of destinations.
motorized vehicles. • Maintain safe and accessible pathways: Wide,
Rationale smooth, and unobstructed paths are essential for
safe walking and cycling. Activities like street vending
For many years, streets have been designed primarily and outdoor cafés should be regulated to avoid
to facilitate motor vehicle traffic, often neglecting obstructing these pathways. For example, legislation
the needs of pedestrians and cyclists. This has made should ensure that outdoor seating maintains enough
urban areas less inviting, less safe and less accessible space for pedestrians, including those using mobility
for non-motorized travel. Properly designed streets, aids, to pass safely. In addition, construction sites
supported by legislation and public communications, should be required to maintain the provision of
can reverse these trends, creating “people-friendly” adequate, safe cycling and walking facilities.
spaces that encourage walking and cycling. Social
• Regulate parking and reducing vehicle traffic:
movements and communities increasingly advocate
Enforcing parking legislation, including the incursion
for such changes (see case studies, Box E).
of vehicles on pedestrian footpaths or cycle lanes,
and reducing vehicle traffic through pricing measures
or congestion charges helps preserve space for
pedestrians and cyclists while reducing air pollution
and noise. Additionally, providing safe, easy, accessible
bicycle parking near key destinations and public
transport hubs can increase use for the “first” and “last”
mile connectivity, and further reduce car use (69, 70).
• Implement access restrictions and car-free zones:
Restricting vehicle access, especially through
pedestrianization and car-free zones, promotes cleaner,
quieter streets and is an effective tool for encouraging
walking and cycling while discouraging short car
journeys. These measures can be tailored to limit
specific types of vehicles, based on criteria such as fuel
type or emissions levels, further improving the urban
environment by reducing air and noise pollution. The
most impactful strategies involve permanently closing
roads to motorized traffic and creating pedestrian-only
zones. These “car-free” areas are increasingly popular in
cities worldwide, as they create safer, more accessible
spaces for people, enhance public health, and
contribute to a more sustainable urban lifestyle.

32 Promoting walking and cycling: a toolkit of policy options

Key actions to take
Regulatory frameworks and access restrictions Maintenance and accessibility of footpaths
1. Review legislative frameworks: Assess, and where and cycleways
needed update, existing legislation, regulations and 5. Regulate activities on footpaths and cycleways:
local by-laws to introduce vehicle access restrictions. Ensure legislative measures prevent activities
These could include limits based on fuel types, such as street vending or encroachments from
emissions levels, or road-user charges for peak times, obstructing pedestrian and cycling paths. Properly
with the goal of reducing private vehicle access and manage these activities to maintain safe, clear
prioritizing walking, cycling, and public transport pathways.
options.

1. Why
6. Maintain street infrastructure: Regularly inspect
2. Strengthen parking legislation: Implement and maintain footpaths and cycleways to address
legislative measures and introduce or adjust parking surface issues, lighting, and any impediments
fees, penalties, and enforcement to reduce illegal or hazards. Ensure responsible authorities have
parking that obstructs walking and cycling paths. sufficient capacity and resources to carry out

2. Policy action areas to increase walking and cycling

Where possible, direct revenue from parking violations timely maintenance.
to improving pedestrian and cyclist infrastructure, 7. Implement garbage disposal and collection:
including secure bike parking. Implement effective systems for regular waste
3. Facilitate temporary street closures: Support disposal and cleaning in areas with heavy
community-driven, temporary street closures to create pedestrian or cycle traffic, especially in retail,
vehicle-free areas for activities such as active play, restaurant, and street-vending areas.
urban sports, community markets, or other events.
These closures could be one-off or regular, such as
weekend pedestrian zones or school-area restrictions.
Street design and infrastructure
4. Redesign street networks: Repurpose road space to
prioritize walking and cycling. Guided by established
street design standards this could include converting
traffic lanes into cycle lanes, widening footpaths,
adding street furniture, greenery and cycle parking,
and creating permanent car-free zones.

3. Key enablers
Ensuring accessibility:
Vendors and cafés with
outdoor presentation of
4. Monitoring progress

goods or seating should

maintain a minimum
width of footpaths to
ensure clear passage
for pedestrian traffic,
including those
5. Action

using mobility
aids.

Section 2: Policy action areas to increase walking and cycling 33

 Box E: Protect and prioritize walking and cycling, Brazil and Spain
CASE STUDY

City of People (Cidade da Gente), (www.bloomberg.org/public-health/

Fortaleza, Brazil improving-road-safety/#progress) and NACTO’s
Global Designing Cities and the Streets for Kids
The city of Fortaleza, Brazil, initiated the “City
Initiative (https://globaldesigningcities.org/
of People” initiative to enhance road safety and
streets-for-kids).
promote walking and cycling by reclaiming
public spaces from motor vehicles. Launched Restricting cars in the city centre for
in 2017 with the “Cidade 2000” project, the 20 years, Pontevedra, Spain
programme started with the temporary
repurposing of underused streets and parking The city of Pontevedra, northwest Spain,
areas, using low-cost materials such as paint, transformed from a congested and polluted
cones and benches. Many initial interventions, area into a pedestrian-friendly environment
such as reduced speed limits to 30 km/h in some by restricting vehicle access to essential
zones, kerb extensions, redesigned intersections, services and residents’ vehicles only, and
and expanded pedestrian zones have since decreasing speed limits. Around 3 km of car-
become permanent. free space around the historic city centre and
other key areas has significantly enhanced
Between 2012 and 2023, Fortaleza’s cycling the walkability and liveability of the city
network expanded five-fold, from approximately (www.politico.eu/article/pontevedra-city-
70 km to more than 400 km, with 40% of pioneer-europe-car-free-future).
residents living within 300 m of a cycle path.
Pedestrian activity has surged, with walking Pedestrianization was complemented by
increasing by 109% in redesigned areas. widening the sidewalks and creating pedestrian
Children’s outdoor play more than doubled in plazas to enhance walkability. One of the key
some locations, reinforcing the social benefits enablers of the city’s car-free strategy was
of safer streets. These impacts have been encourage the public to view cars as “guests on
achieved in collaboration with Bloomberg the streets” rather than vehicles to which the
Philanthropies Initiative for Global Road Safety streets belong.

Illustrative photo: bicycles parked in Fortaleza, Brazil, by Windwalk/Shutterstock

34 Promoting walking and cycling: a toolkit of policy options

Policy action area 6: Key actions to take
1. Enhance public transport services: Review public
Facilitate integrated transport services to ensure they offer a competitive
transport options alternative to private motorized vehicles. Focus on
safety, cleanliness, efficiency and affordability to
Objective encourage more usage. Introduce priority lanes
To provide equitable, safe, and efficient public for public transport and align action and funding
transport options that integrate cycling, promoting to contribute to achieving SDG 11, which calls for
multi-modal travel for sustainable mobility. making cities and human settlements inclusive, safe,
resilient and sustainable.

1. Why
Rationale
2. Introduce incentives for public transport use:
Most public transport journeys involve some walking, but Explore potential incentives to encourage public
by adding bike-friendly infrastructure – such as parking transport use, such as free travel for children and older
and bicycle rentals at stations or allowing bicycles on adults, free travel to sporting or cultural events, or

2. Policy action areas to increase walking and cycling

buses and trains – cycling can be incorporated into free travel on certain days (e.g., weekends). Pilot these
long-distance trips. Integrating walking and cycling with incentive schemes to assess their effectiveness
public transport offers a flexible solution for trips that before wider implementation.
are too long for these modes alone (6). This approach
3. Implement bike-share schemes: Assess the need
encourages greater public transport use by making
and opportunities for introducing bike-share or
stations and stops more accessible without the need for
bike-hire schemes in designated areas to provide
private vehicles. However, it is estimated that only about
efficient, affordable, and user-friendly services. This
half of the world’s population have access to public
can encourage cycling for short trips and support
transport, though there are wide regional variations (71).
integrated multi-modal transport (72, 73).
Facilitating multi-modal transport promotes equitable 4. Improve intermodal integration: Evaluate the level
mobility, especially for those without access to cars, of support for integration between all public transport
while reducing traffic, pollution, and carbon emissions. modes, including bike-share schemes where available.
A seamless connection between walking, cycling and Aim to provide seamless connectivity, such as through
public transport ensures reliable and active transport integrated ticketing systems, to make multi-modal
options for more people. The walking and cycling travel more convenient.
distance to the transport hubs – the “catchment area” –
5. Facilitate carriage of bicycles on public transport:
strongly influences frequency of public transport use.

3. Key enablers
Review current provisions for allowing bicycles to be
SDG 11 recognizes the importance of public transport,
carried on trains, buses, and trams. Assess relevant
aiming to provide universal access to safe, affordable, and
legislation, space availability at peak times, pricing,
sustainable systems, particularly benefiting vulnerable
and ease of use. Also, review end-of-trip facilities,
populations.
such as bike storage and bike rentals, at public
High-quality, comprehensive public transport services, transport hubs.
particularly those with trains or dedicated bus lanes, can
4. Monitoring progress

6. Improve access to public transport services:

shift travel preferences away from private cars. Indeed, Assess the “walkability” and “cycleability” of access to
the quality of public transport, including travel times public transport services to identify opportunities for
and the frequency of services, is a key driver of its use. improving “first” and “last mile” connectivity. Evaluate
Travel time differences between public transport versus walking and cycling catchment areas 1 to public
private vehicles are particularly important for those who transport hubs and ensure the availability of secure
have a choice. For those dependent on public transport, cycle parking, in line with the principles of transit-
improving frequency and reducing travel time are oriented development. Improving access to public
essential to access education, jobs, and improve quality transport must also consider access for people
5. Action

of life (see case study, Box F). living with disability, older people, or those with
mobility issues.

1 Geographic zones around transit stations or stops that can be conveniently accessed on foot or by bicycle within a reasonable time or distance.
These areas define the potential user base of a transport hub and are typically measured as 400-800 m radius for walking and 2–5 km radius for cycling.

Section 2: Policy action areas to increase walking and cycling 35

 Box F: Walking and cycling integrated with public transport,
CASE STUDY

Dar es Salaam, United Republic of Tanzania

To enhance urban mobility, the city of Dar International Road Assessment Programme
es Salaam, United Republic of Tanzania, has (iRAP) under the Bloomberg Initiative for
strengthened the integration of public transport Global Road Safety, undertook “star rating”
with walking and cycling as part of the Bus assessments of existing roads prior to the BRT’s
Rapid Transit (BRT) system. The new corridors construction to provide baseline data and
are designed with parallel, well-connected bike inform development (https://irap.org/2024/02/
lanes and improved wide sidewalks, ensuring tanzanias-brt-transformation-celebrated/).
safe and convenient access for pedestrians This assessment showed that existing roads
and cyclists. Phase 1 opened in 2016, with 29 were rated 2-stars or worse for 92% of
buses and five terminals. Since opening, the pedestrians and 66% of bicyclists – aligning
BRT has reduced travel times and improved with recorded crash data showing pedestrian
safety for commuters, cutting a 20 km, 3-hour fatalities represent almost 60% of all road
journey to around 45 minutes and reducing user fatalities.
car use and emissions by providing affordable,

Illustrative photo: pedestrians and public transport near the Ilala central business district in Dar es Salaam, United Republic of Tanzania, by Andy Soloman/Shutterstock
inclusive and safe travel for the city’s more Safer Roads Investment Plans were developed
than 8 million residents. to further enhance safety with prioritized and
cost-effective counter-measures to prevent
In addition, the United Republic of Tanzania, fatalities and serious injuries over the 20-year
in collaboration with the World Bank and the life of the infrastructure.

36 Promoting walking and cycling: a toolkit of policy options

Policy action area 7: Schools and workplaces are ideal for promoting
walking and cycling and integrating it into daily
Promote and incentivize routines, fostering lifelong habits, especially
walking and cycling in children and their caregivers. Well-planned
campaigns and initiatives in these key settings can
Objective encourage active travel and should be developed
To inspire individuals and foster a cultural shift with community engagement and linked to wider
towards walking and cycling by promoting the health, local, city-wide and national initiatives.
environmental, and community benefits of these
Promotional events, such as “car-free” days, give
activities, and addressing barriers.
people the chance to experience walking and cycling

1. Why
Rationale in safe, enjoyable environments and can foster
confidence and inspire people to incorporate walking
Positive and encouraging community-wide public and cycling into their daily lives. Temporary street
education and awareness campaigns are a vital part closures also highlight the potential for alternative

2. Policy action areas to increase walking and cycling

of a comprehensive strategy to increase walking and uses of public spaces and help generate public
cycling as viable forms of transport, both as enjoyable support for policies and initiatives aimed at reducing
exercise and as active recreation (see case studies, vehicle traffic and making streets more inviting for
Box G). Campaigns can address perceived barriers as walking and cycling. Financial incentives, such as
well as benefits, be tailored to the target audience subsidies for bike purchases or tax incentives for
and link to local opportunities and programmes. active commuting can further encourage behaviour
Well-designed campaigns can build knowledge, address change and reduce car dependency.
misinformation, increase awareness and shift attitudes by
highlighting the benefits of regular walking and cycling
and building positive social norms. Using multiple
traditional and social media communications channels
can also effectively inform all road users about safe road
use behaviours and the penalties for non-compliance
with traffic rules, contributing to road safety. Campaigns
can also be used to build public support for policy
changes aimed at creating safer roads and investment
in walking and cycling infrastructure.

3. Key enablers
4. Monitoring progress
5. Action

Section 2: Policy action areas to increase walking and cycling 37

Key actions to take
Public education, knowledge and awareness School and workplace programmes
1. Generate behavioural insights: Inform the 6. Implement active travel plans in education
planning and design of campaign content with settings: Develop and implement travel plans that
good information on the psycho-social determinants encourage students and staff (role models) to walk or
of walking and cycling in the target audience and cycle all or part of the way, including those with limited
local context. This enables campaigns to effectively mobility. This may include initiatives like supervised
address any existing biases and knowledge gaps while “walking buses” or “cycle trains” and school-based
strengthening desired social norms. education to help children acquire safe walking and
2. Conduct regular campaigns: Conduct sustained cycling skills.
public education and awareness campaigns 7. Improve end-of-trip facilities: Provide sufficient
highlighting the mental, physical, environmental, and end-of-trip facilities at schools and workplaces,
economic benefits of walking and cycling. Educate including secure cycle parking, changing rooms and
the public about road safety, relevant legislation, and showers if required (depending on climate, distances
penalties for non-compliance, promoting a culture of etc.) to support and encourage cycling. Work with
health and safety for all road users. local authorities, neighbouring businesses, and other
3. Engage the media: Raise awareness of the benefits, partners to improve walking, cycling, and public
existing barriers and policy solutions to increasing safe transport to workplaces.
walking and cycling by briefing journalists, influencers, 8. Provide staff incentive programmes: Develop and
and community champions to effectively widen the promote programmes that subsidize access to bicycles
reach of messages. for short-distance business travel or offer discounted
4. Conduct community training programmes: cycle purchases, such as cycle-to-work programmes.
Assess the needs for cycle training of key population It is important to include local staff members in
groups, e.g. training children in safe cycling, and communication campaigns as local role models to
training cyclists and motorists on road rules and cyclist indicate that this is not only for people in other cities
and pedestrian safety. or areas, but it also for (senior) leadership within their
own organization.
Community events and initiatives
5. Organize promotional days: Organize promotional
events such as “car-free” days and “open streets” to
encourage walking and cycling, helping residents
explore alternative travel arrangements and shifting
mindsets away from regular motorized transport use.

38 Promoting walking and cycling: a toolkit of policy options

Road safety Incentivize active travel
9. Conduct road safety campaigns: Conduct public 10. Assess financial incentives: Assess opportunities
communication campaigns and community for implementing financial incentives such as
engagement strategies to raise awareness of subsidies for purchasing bicycles, tax breaks for
the primary causes of road deaths and injuries commuters who walk or cycle, reimbursements
and increase understanding of safe road user for cycling equipment, or financial rewards for
behaviour. Ensure these campaigns support road meeting walking- or cycling-trip goals. Consider
safety legislation, highlight enforcement measures, testing and evaluating their impact through
and foster community compliance. implementation across government authorities as

1. Why
well as encouraging private sector organizations
to support more active transport on the part of
employees and within their supply chains.

2. Policy action areas to increase walking and cycling

3. Key enablers
4. Monitoring progress
5. Action

Illustrative photo: a young woman sits on her bicycle to read

a book at sunset surrounded by trees near Nairobi, Kenya,
by Mwivanda Gloria/Shutterstock

Section 2: Policy action areas to increase walking and cycling 39

 Box G: Promote and incentivize walking and cycling, Austria,
CASE STUDY

Colombia, India, and Saudi Arabia

The Year of Walking, Vienna, Austria walking and cycling and other active recreation,
including dance and fitness classes (such as
In 2014, the City of Vienna set a goal that
yoga, pilates and zumba) in the more than 20
by 2025 at least 80% of journeys in the city
parks linked by the Ciclovía. Free bike rental
would be made by public transport, or walking
encourages participation by people of all ages,
and cycling. To help kickstart this ambition,
while local vendors (often from low-income
Vienna declared the 2015 the “Year of Walking”,
populations) take the opportunity to trade
dedicating the year to promoting the initiative,
along the Ciclovía, benefitting economically.
raising awareness and providing behaviour
Evaluations of the Ciclovía estimate an average
change opportunities to its citizens. Initiatives
of 1.5 million participants per day in Ciclovía
included mass distribution of maps of walking
through cycling, walking, roller skating and other
paths to show the city from a pedestrian
active pursuits. It has been estimated that every
perspective, and the development of a mobile
US$ 1 invested in Bogotá’s Ciclovía generates
app called “Wien zu Fuß” (Vienna by foot),
US$ 3 in savings in terms of the health benefits
providing a city walking guide and highlighting
associated with physical activity, projecting a net
short routes by interests, distance and time
annual saving of US$ 13 million (www.weforum.
(www.wienzufuss.at/wp-content/uploads/
org/stories/2024/11/50-years-ciclovia-open-
sites/3/2018/10/WzF_E_Report_2018_final.pdf).
streets-cycling-cars).
The app also featured an activity-based reward
Cycling for daily transport has also increased,
system to encourage participation, and

Illustrative photo: a woman cycles on the road early in the morning on an empty road in Bangalore, India, by Kaarthikeyan.SM/Shutterstock
particularly since the COVID-19 pandemic, due
accumulated steps could be exchanged for
to the city’s efforts to make cycling routes more
vouchers redeemable at over 40 retailers and
accessible and safer for everyone. This included
museums. Other features included a treasure
providing protected cycle lanes in the city’s
hunt game where digital diamonds were hidden
main thoroughfare, Avenida Séptima, which has
across the city, and by finding them a prize
seen an increase from 35 to 1800 cyclists during
would be unlocked (such as a lottery ticket).
peak hours.
Over 60% of the population considered the
initiative “a good idea”, with the app downloaded Since the inception of the Ciclovía in Bogotá,
almost 12 000 times and over 194 million steps mayors and cycle advocates in more than
taken by participants. 400 cities have adopted the idea including
Los Angeles, Santiago de Chile, Jakarta, and San
Ciclovía bicycle Sundays, Bogotá,
Francisco (https://ciclopistas.com/en/blog/
Colombia and Latin America
red-de-ciclovias-recreativas-de-las-americas-
In 2024, Bogotá’s CycleWay (Ciclovía) celebrated who-are-they). Opening streets for Ciclovía or
50 years of providing local communities (each similar initiatives requires collaboration across
Sunday and on some public holidays) with one government jurisdictions (local and city) as well
of the largest regular opportunities for car-free as departments – health, transport, sport and
walking and cycling. Across the city, 127 km of youth, and local communities.
main streets are closed to traffic to promote

40 Promoting walking and cycling: a toolkit of policy options

 Box G: Promote and incentivize walking and cycling, Austria,
CASE STUDY
CASE STUDY

Colombia, India, and Saudi Arabia (continued)

Bangalore Cycle Day, Bengaluru, India In addition, it has prompted policy-makers to
start implementing regulations to increase
Bangalore Cycle Day (https://
walking and cycling infrastructure, create
bangalorecycleday.wordpress.com) started
bike-sharing schemes, and provide more
in 2013 to promote non-motorized transport
cycle parking spaces.
as a sustainable means of transport and
pedestrianization in the city. Initially held on the Walk 30 Campaign, Saudi Arabia

1. Why
last Sunday of the month, the cycle day allows
residents of all ages to benefit from 4 hours of Saudia Arabia’s Ministry of Health launched
traffic-free, closed streets for all kinds of physical Walk 30 in 2020 to promote walking for health –
activity. Communities create and organize to cultivate a culture of walking and help people
living with chronic disease (www.moh.gov.

2. Policy action areas to increase walking and cycling

games for children and run yoga classes, zumba
sessions, or road safety promotion, and provide sa/en/Ministry/MediaCenter/News/Pages/
free bike loans. News-2020-01-09-001.aspx). As a nationwide
campaign, Walk 30 involves activities in
The Bangalore Cycle Day initiative is led by the schools and universities, a step-counter app –
Bangalore Coalition for Open Streets (BCOS) in “Sehhaty” – as well as a special walking events
collaboration with NGOs, civil society and local held across the country on the Saudi National
government, and has the direct participation Day (March 5) under the theme “Saudi Walks!”.
of local communities. It is also supported by
the Directorate of Urban Land Transport, which Walk 30 encourages people to walk for at least
Illustrative photo: a woman cycles on the road early in the morning on an empty road in Bangalore, India, by Kaarthikeyan.SM/Shutterstock

oversees administration. 30 minutes, 5 days per week. The app helps

people to track their walking and measure
Bangalore Cycle Day has been so successful health gains. It also sets a challenge of 8000
that the initiative has been extended to steps a day and shares information on various
more Sundays per month and has spread activities and events organized as part of
to other parts of the city and the region. the Walk 30 campaign.

3. Key enablers
4. Monitoring progress
5. Action

Section 2: Policy action areas to increase walking and cycling 41

 Illustrative photo: green traffic lights for pedestrians and cyclists
with green trees in the background, by BTL/Shutterstock

42 Promoting walking and cycling: a toolkit of policy options

 Key enablers for successful
Section 3:

1. Why
implementation

2. Policy action areas

This section outlines a set of key enabling factors activities provide, as well as equity, and encourage
essential for the successful implementation of the policy a shift away from the traditional dominance of
options provided in this toolkit. Because implementation motorized transport in decision-making processes.
requires actions across multiple sectors, no single enabler
will be effective in isolation from others. Instead, securing To achieve this shift, it is necessary to change
and strengthening each enabler will yield the greatest perceptions and values around walking and

3. Key enablers for successful implementation

results. Users of this toolkit should evaluate their current cycling. This requires political leadership, including
situation in relation to the enabling factors outlined in visible support and bold decision-making.
this section to determine which are most crucial in their Leadership from nongovernmental entities can
specific context and which need enhancing to advance also play a crucial role in building this support.
provision of safe and enjoyable walking and cycling Good governance refers to the mechanisms
environments for all. and processes to support and sustain effective
A significant barrier to implementing some of these selection, implementation and evaluation of
recommendations is that it might require “undoing” policy options. Effective governance mechanisms
existing infrastructure. Identifying entry points is a critical should be established to coordinate actions
first step – this may involve eliminating outdated policies across multiple sectors and stakeholders over
and practices to make room for new approaches that put time and be designed according to local contexts.
active transport as a priority. The COVID-19 pandemic They should also aim to perform the following key
demonstrated that change is possible, and cities showed functions:
it can happen rapidly. In response to the need for • Setting objectives and targets and reporting 4. Monitoring progress
physical distancing, many cities introduced temporary progress against them: Walking and cycling
measures such as pop-up cycle lanes, and pedestrianized should be integrated into all relevant policy
streets, alongside incentives for bicycle purchase and and strategy documents across multiple sectors
repair. The challenge now is to make these changes to create a coherent and aligned framework.
permanent, creating environments where walking and Establishing time-bound, measurable targets
cycling are integral to daily life. and key performance indicators is crucial
for tracking progress. These metrics ensure
Governance transparency and accountability, and help
5. Action

to monitor the successful implementation

and coordination of policies and the growth in walking and
Strong leadership at all levels of government is essential cycling activity.
for ensuring that walking and cycling are prioritized
in policy decisions and resource allocation. Leaders
should advocate for the multiple benefits these

43
• Strengthening leadership and clarifying roles: • Regular reporting: Promoting joint efforts
Developing leadership from across all sectors and and consistent reporting on policy progress and
levels of government to broaden the support implementation across all government levels will
base for policy actions can ensure their successful maintain visibility and momentum. Promoting
implementation and long-term sustainability. and sharing knowledge and local case studies can
Additionally, clearly defining the roles and illustrate impact and encourage broader support.
responsibilities of each government department • Engaging civil society: Involving civil society
and nongovernmental stakeholder is crucial and local community representatives in the policy
for coordinated action. This ensures all entities process can help leverage local knowledge and
understand their contributions, leading to more networks, fostering ownership and enhancing the
effective and cohesive policy implementation. effectiveness of policies. This is critical for successful
• Aligning and coordinating stakeholders: policy implementation and is addressed in more
Good governance requires a participatory approach detail in the next subsection.
and places importance and value on fostering a
At a pan-regional level, countries and stakeholders
sense of ownership and contribution from each
can collaborate to promote walking and cycling,
sector. It also means engagement with government,
leverage synergies, and benefit from sharing
community and private sector stakeholders and
experiences and solutions to common challenges.
efforts to align their respective interests. This
In the European region, a Pan-European Master Plan
requires identifying the interests and concerns of
for Cycling Promotion (74) was developed in 2021
partners and working collectively to define priority
and a Pan-European Master Plan on Walking (75)
policy options, objectives, and desired outcomes.
in 2024 (see Box H).
Effective communication and coordination among
stakeholders are equally important to facilitate
knowledge exchange and sustain coherent
policy implementation.

44 Promoting walking and cycling: a toolkit of policy options

 Box H: Pan-European master plans for cycling and walking,
CASE STUDY

European Region
The 2021 Pan-European Master Plan for Cycling Cyclists’ Federation (ECF) and private sector
Promotion (https://unece.org/sites/default/ through the Confederation of the European
files/2023-03/MASTERPLAN_2021-05-20- Bicycle Industry (CONEBI).
II_BF%203%20June_0.pdf) and the 2024
Pan-European Master Plan on Walking (https:// Both plans aim to promote walking and cycling
unece.org/sites/default/files/2024-12/BMK_ as clean, safe, healthy, active and inclusive
THE_PEP_MP_Walking_UA.pdf) are examples forms of mobility and transport, and thereby

1. Why
of regional collaboration to support national contribute to building sustainable livelihoods,
and subnational policy development and a better environment, greater social inclusion
action on walking and cycling. and economic prosperity, and overall improve
the quality of life of citizens across Europe.

2. Policy action areas

They were developed under the framework of
the Transport, Health and Environment Pan- Both masterplans provide a set of practical
European programme (www.who.int/europe/ recommendations to help countries develop
initiatives/transport-health-and-environment- and implement national policies for walking
pan-european-programme-(the-pep) (The and cycling respectively. In order to track
PEP) with support from Austria, France and progress, a common methodology is proposed,
Netherlands (Kingdom of the), and UNECE alongside a minimum set of comparable,
Sustainable Transport, the Environment Division, reliable and harmonized indicators, including

3. Key enablers for successful implementation

the World Health Organization Regional Office modal share of cycling and walking, number of
for Europe, the EU Commission’s Directorate- national cycling and walking plans, and number
General for Mobility and Transport (DG MOVE) of fatalities and serious injuries of cyclists
as well as national experts and non-government per kilometre cycled annually, using 2020
organizations such as the WALK 21, the European as the baseline year.
Illustrative photo: a cyclist rides along a scenic mountain path in the Dolomites, Italy, by Tunatura/Shutterstock

4. Monitoring progress
5. Action

Section 3: Key enablers for successful implementation 45

Community and civil Effective partnerships, collaboration, and community
engagement are essential to achieving the policy
society engagement objectives outlined in this toolkit. These efforts promote
integrated and sustainable outcomes, ensuring walking
Meaningful community engagement is an essential
and cycling are supported by diverse stakeholders
enabler for the successful implementation of policies
dedicated to creating safer, healthier, and more
that affect local environments in which people live, work
sustainable environments.
and play. Engaging key community leaders and networks
helps build the broad support that is often necessary
for policy success. So, in addition to partnerships across Knowledge, skills
government agencies – such as health, transport,
urban planning, roads, regional development, and local
and capacity
municipalities – other sectors, including civil society, Enhancing knowledge, skills, and capacity across sectors
the private sector, academic institutions, and advocacy is essential for improving environments that support and
groups, should be actively involved. promote walking and cycling. This includes equipping
Governance mechanisms for community and civil professionals with the technical knowledge needed to
society engagement must be mindful of stakeholders design and implement effective policy actions.
with vested interests or potential conflicts of interest. For example, urban and transport planners, who play a
For example, private commercial entities may influence central role in land use and infrastructure development,
policy directions in ways that conflict with public health require the skills, knowledge, and resources to prioritize
or environmental objectives. Careful evaluation of these walking and cycling within broader urban development
interests, coupled with transparent decision-making projects and multimodal transport systems. Training
processes, helps anticipate challenges and ensures should focus on understanding the barriers and
alignment with policy goals. needs of pedestrians and cyclists, including the use of
Appropriate timing of consultation is key to effective behavioural insights and how to effectively integrate
community and stakeholder engagement. Legal or these priorities into planning and design.
procedural requirements may dictate when to consult The health sector plays a complementary role by
across government agencies, other stakeholders, or advocating for the physical and mental health benefits
the general public. Clear, fair, and inclusive procedures of walking and cycling. Health-care professionals can
should be established to manage conflicts of interest promote these activities as preventive measures against
and support meaningful engagement throughout the NCDs and mental health challenges. To do so effectively,
policy cycle. This includes opportunities for participation they need training on how to advocate for active
at every stage, from planning and programme design, to transport policies across sectors and how to integrate
implementation and evaluation. walking and cycling promotion into public health
The approach to community engagement will vary campaigns and clinical practices.
based on local context, culture, and community Conducting in-service training workshops can help
networks. NGOs can provide valuable resources and strengthen multisectoral collaboration and effective
strategies to enhance engagement efforts. Regular community engagement, as well as develop technical
communication channels, such as coordination meetings skills in the use of data and evidence in policy
and updates on national and local progress, can help decision-making, communications, and advocacy.
foster collaboration, sustain engagement, and strengthen Training can increase knowledge on the multiple
collective ownership of policy implementation. health, environmental and economic benefits of
Identifying allies and champions at the community, joined-up policy actions on walking and cycling,
political (e.g., ministers or city mayors), and operational and can strengthen the use of technical tools such
levels can further drive momentum and ensure as how to conduct cost-benefit analyses of active
commitment to policy goals. transport initiatives using the WHO Health and
Economic Assessment Tool (HEAT) (76) for walking
and cycling (Box 7).

46 Promoting walking and cycling: a toolkit of policy options

Box 7. WHO Health Economic Assessment Tool (HEAT) for Walking and Cycling
Estimating the economic value of HEAT is based on robust scientific experts, and offers valuable insights
investing in walking and cycling evidence, transparent assumptions, to support policy, planning, and
is vital for decision-makers and and adaptable parameters, making investment decisions. Initially
for evidence-based advocacy. The it suitable for diverse local contexts. designed for Europe, HEAT now
WHO Health Economic Assessment It can be used to: includes a global version tailored to
Tool (HEAT) (https://iris.who.int/ low- and middle-income countries,
• estimate the economic value of
handle/10665/379361) helps and since 2021, the model also
current or past levels of walking
policy-makers at all levels assess incorporates the health effects of

1. Why
and cycling;
the cost-benefit of increasing air pollution and carbon emissions.
walking and cycling in a defined • assess the benefits of planned
population. HEAT helps users, interventions (e.g., a new bike WHO has complementary tools
including those without expertise network) by comparing “before for assessing air quality impacts,

2. Policy action areas

in health or environmental and after” scenarios; such as AirQ+ and CaRBonH, which
assessments, to calculate the can be used alongside HEAT for a
• model future scenarios to guide
economic cost saving of averting comprehensive analysis of health
investment decisions.
deaths due to NCDs and road and environmental benefits that
This tool is available for use by can be found in Annex 2.
crashes as well as savings due to
transport planners, public health
reduced carbon emissions through
officials, and environmental
fewer motor-vehicle trips.

3. Key enablers for successful implementation

4. Monitoring progress
5. Action

Section 3: Key enablers for successful implementation 47

Advocacy
Clear and consistent advocacy messages about the Coordinated advocacy campaigns and events can
benefits, challenges and policy solutions related to significantly shape social and political attitudes,
walking and cycling are crucial enablers of progress. generating stronger support for walking and cycling
initiatives. Engaging ambassadors or “champions”,
Advocacy encompasses both individual and collective alongside allies with shared interests, can amplify
actions designed to secure political commitment, the impact of advocacy efforts. This approach has
policy support, and cross-sectoral collaboration. The been effective in other public health initiatives,
aims of advocacy include shifting public and political such as promoting seat-belt legislation, smoke-free
opinion on the value of walking and cycling, achieving environments, and free school meals. Leveraging
policy change, and securing relevant stakeholder and community networks, organizations and stakeholders
community support and participation. NGOs, action at all levels using traditional media and social platforms
groups, and local campaigners play central roles. At the can create momentum for policy change, ensuring that
global level, the Partnership for Active Transport and walking and cycling are prioritized on public agendas
Health (PATH) Coalition has brought advocates from (see case studies, Box I). Key advocacy strategies that can
both walking and cycling communities together to build support for walking and cycling initiatives while
form a larger and unified advocacy forum. Recent PATH fostering an environment conducive to policy change
publications include Active Transport National Country and community engagement are detailed in Box 8.
Study Actions, and templates to assist countries that
include walking and cycling initiatives in their national
climate action plans in submissions of their Nationally
Determined Contributions (a requirement of the Paris
Agreement) (77).

Professional bodies in medicine, public health, and

transport also wield considerable influence and can
use their platforms to advocate for the wide-ranging
benefits of walking and cycling while promoting key
policy initiatives. To be able to do so effectively, these
groups require access to good data to support their
advocacy of the health impacts of walking and cycling,
and associated benefits such as reduced air and noise
pollution, eased traffic congestion, and improved
economic and social outcomes. Providing evidence-
based materials, such as policy briefs on local context
and cost-benefit analyses of infrastructure investments,
is essential.

48 Promoting walking and cycling: a toolkit of policy options

 Box I: Advocacy initiatives, globally
CASE STUDY

Bicycle Mayors’ Network, global Partnership for Active Travel

and Health Coalition, global
The Bicycle Mayors’ Network (https://bycs.
org/bicycle-mayor) advocates for cycling to The Partnership for Active Travel and Health
help cities transform into more sustainable and (PATH) (https://pathforwalkingcycling.com)
inclusive spaces through encouraging active is a global coalition calling on governments
travel. First introduced in Amsterdam in 2016 as and cities to commit to supporting walking
“Fietsburgemeester”, the Bicycle Mayors concept and cycling as a key solution to climate,

1. Why
and advocacy have since expanded globally. health and equity challenges. PATH unites
By 2024, there were 141 Bicycle Mayors across both walking and cycling advocates and
39 countries. includes over 400 organizations from
73 countries across many continents and
Bicycle Mayors represent cyclists’ interests

2. Policy action areas

is coordinated by a core group including
to city officials and planners and work in
Walk21, the European Cyclists’ Federation,
collaboration with local governments, NGOs,
UN Environment Programme, and the FIA
and community groups to implement cycling
Foundation.
initiatives and campaigns. Their efforts include
Illustrative photo: cyclists ride along streets of the city that are closed to cars to allow bicycles to circulate freely in Bogota, Colombia, by Matthieu Cattin/Shutterstock

organizing events, promoting cycling education PATH resources include case studies
and supporting the development of a cycling (https://pathforwalkingcycling.com/wp-
culture, prioritizing women and children in low- content/uploads/Walk21-0924-PATH_Doc_

3. Key enablers for successful implementation

income communities. Some Bicycle Mayors have November_v11.pdf) showing examples
also been elected mayors of the city, although of the 20 actions detailed in the “Active
the majority are community members from a Travel Nationally Determined Contributions
variety of professional disciplines and/or sport Template” (https://pathforwalkingcycling.
and cycling enthusiasts. com/wp-content/uploads/PATH-Active-
travel-NDC-template-080524.pdf). These
The Bicycle Mayors’ Network is connected
case studies provide practical examples,
globally and shares ideas, challenges, and
insights and inspiration for national
solutions, creating a collective impact on
governments preparing updates to their
urban mobility. The Bicycle Mayors collaborate
Nationally Determined Contributions under
and support over 200 cycling organizations
the Paris Agreement.
worldwide – all part of the network.

4. Monitoring progress
5. Action

Section 3: Key enablers for successful implementation 49

 Box 8. Key advocacy strategies for walking and cycling
• Appoint ambassadors or champions: Engage economic returns on investments in walking and
influential figures, such as political leaders, cycling. Utilize tools like the WHO Health and
community advocates, or sports personalities to Economic Assessment Tool (HEAT) to showcase
champion the walking and cycling agenda. They the impact.
can lead advocacy efforts, raise public awareness • Engage local communities: Promote the benefits
and position walking and cycling as national and of walking and cycling to build support at local
local priorities. level. Increase public knowledge of necessary
• Disseminate evidence: Build knowledge by policy changes and actions by gaining better
sharing information on the multiple benefits of understanding of communities’ perceptions of
walking and cycling for short trips, exercise, and barriers to walking and cycling.
active recreation. Tailor information for different • Encourage public debate: Facilitate discussions in
audiences, for example develop position statements, local forums, media, and public spaces to address
speak at conferences, contribute to community concerns and diverse views within the community.
newspapers, newsletters and professional journals,
and use traditional and social media to reach • Highlight social and economic impacts:
diverse audiences. Share evidence of the social and economic
effects of walking and cycling. Use findings from
• Conduct policy briefings: Organize briefings environmental and economic impact assessments
for government ministries (e.g., health, transport, to demonstrate the outcomes of policy options and
planning, finance) to demonstrate the social and planning proposals.

50 Promoting walking and cycling: a toolkit of policy options

Legislation
Legislation is a powerful tool that governments can In some countries, constitutions enshrine the right to
use to enable and promote safe walking and cycling. the highest attainable standard of health, imposing a
Law formalizes obligations and rights, creating a legally duty on the state to take actions to protect citizens.
binding framework that can apply to everyone. In the Laws that support safe walking and cycling, such
context of walking and cycling, legislation can often be as mandating the development of appropriate
used to ensure that provisions such as safe pathways, infrastructure and ensuring inclusive street design,
connected cycling networks, and pedestrian-friendly contribute to fulfilment of this right. This rights-based
street designs are not just optional but are mandatory. framing underscores government responsibility to

1. Why
This helps shift the conversation from approaches that protect public health and safety through appropriate
are “nice to have” to those that are essential for public interventions. Even where the right to the highest
health and mobility. attainable standard of health is not specifically
recognized, a constitution may provide that the
Laws of different types (including a range of legal

2. Policy action areas

protection of public health is an objective or duty
instruments such as national constitutions, statutes of government and afford the government powers
or legislation, regulations, standards, administrative to meet that objective.
or executive orders and local by-laws, defined in the
Glossary as “legislation”) create underlying structures that However, for law to be effective, it must be backed
govern the policy options available to decision-makers, by enforcement mechanisms. Meaningful provisions
and can be used to bring specific policy options into for enforcement should be built into legislation,
effect (see case studies, Box J). Law is relevant to many with clear designation of agencies responsible for

3. Key enablers for successful implementation

of the recommendations in this toolkit, including in: monitoring compliance and prosecuting violations.
These agencies should have adequate authority to
• establishing rules governing road use, including when
investigate breaches and apply meaningful penalties
walking, cycling or using a motorized vehicle;
for non-compliance, including (to use road safety
• establishing rules governing street design; laws as an example), fines, licence suspensions,
• establishing priorities or factors to be considered or even custodial sentences where appropriate.
by decision-makers in planning or other approval Funding and resources for enforcement are critical,
processes administered by government. as is ensuring that enforcement is carried out fairly,
equitably and without discrimination.
The law can also help change attitudes and behaviours.
For example, prohibiting parking or other obstructions At both national and subnational levels, governments
on footpaths and cycling lanes through legislation and can enact laws that promote walking and cycling by
issuing penalties or fines for violations can change public creating safer, more accessible public spaces and by
behaviour and expectations around road use. Similarly, changing road user behaviours through enforceable
setting and enforcing lower speed limits in areas with rules. Ensuring that these approaches are supported
high pedestrian and cycling traffic can change driver
4. Monitoring progress
by adequate enforcement will enable a shift toward
behaviour, making roads safer and encouraging more healthier, more sustainable modes of transport and
people to choose active modes of transport. contribute to broader public health, environmental,
and social equity goals.
Public health interventions such as tobacco control
show how legislation can have a profound impact.
Countries that have applied tobacco control laws in
accordance with WHO’s Framework Convention on
Tobacco Control (WHO FCTC) (78) have seen significant
5. Action

reductions in smoking prevalence. This success

illustrates how well-crafted laws, paired with robust
enforcement, can promote healthier behaviours and
protect public health.

Section 3: Key enablers for successful implementation 51

 Box J: Enabling legislation, Mexico and Switzerland
CASE STUDY

Rights to safe mobility and safe roads, of the General Law on Mobility and Road
Mexico City, Mexico Safety at the national level. Multiple states have
updated their state laws on mobility and road
Until 2020, safe mobility and road safety were
safety to better comply with the general law.
the exclusive domain of state and municipal
governments. But in 2020 this changed when Bicycle Path Law (Veloweggesetz),
Mexico declared access to safe mobility a human Switzerland
right and Congress passed a constitutional
amendment on the “Right to Safe Mobility In 2018, Switzerland included cycle paths
and Road Safety” – the first of its kind in the in Article 88 of the Swiss Constitution, also
region – which was quickly ratified by a majority known as the “Velo Article”, which originally
of Mexican states (www.wri.org/insights/ only addressed constitutional provisions for
safer-streets-pedestrian-mobility-mexico). The footpaths and hiking trails. The aim was to
amendment required the National Congress to create a comprehensive, connected network
adopt a comprehensive national law to protect of cycle paths across Switzerland, promoting
that right, and so, in 2022, Mexico passed its cycling as a sustainable mode of transport.

Illustrative photo: busy pedestrian walkway and cycle paths with parked bicycles in the Alameda Central, Mexico City, Mexico, by Santiago Castillo Chomel/Shutterstock
“General Law on Mobility and Road Safety” Expanding on this, in 2023 the Swiss federal
(www.advocacyincubator.org/case-studies/ government added a specific Bicycle Path
mexicos-mobility-and-road-safety-law), Law (“Veloweggesetz”, www.pro-velo.ch/
incorporating speed management provisions de/themen/velopolitik/veloweggesetz). It
consistent with WHO best practice, along with mandates a nationwide network of bike paths
provision for child restraint systems, reducing ensuring that cycling progress as seen in cities
drink–driving, and promoting helmet use and like Bern can be replicated across Switzerland.
seat-belt use. This new law marked a major This law aims to create safer and more
step forward by creating the legal framework connected cycling environments and demands
necessary to advance road safety laws at cantons (subnational level of governance) and
national, state and municipal levels, while also the federal government to take responsibility
raising minimum vehicle safety standards. in this. In Bern, initiatives aimed at enhancing
cycling infrastructure and promoting cycling as
In 2023 the National Strategy for Mobility and a sustainable mode of transport led to a 35%
Road Safety 2023–2042 was launched to ensure increase in cycling in the period 2014–2017.
proper interpretation, regulation and application

52 Promoting walking and cycling: a toolkit of policy options

Funding and financing mechanisms
Long-term resourcing is essential to ensure sustained Financing mechanisms refer to raising upfront
investment in implementing policy to enable safe capital that is repaid over time, and are usually
walking and cycling opportunities for people of all ages required for high-cost projects such as large-scale
and abilities. The costs associated with the walking and urban renewal and transport projects. Examples
cycling infrastructure (i.e. footpaths and cycle lanes of financing mechanisms include loans, bonds,
providing an interconnected network) are usually the and public-private partnership models. These
most costly. Infrastructure also requires funding across approaches can be developed by governments
the full project lifecycle, from the planning stage through (at all levels) and involve collaborations with national

1. Why
to building and on-going maintenance. However, and international development banks, international
despite clear health and environmental benefits, funding finance organizations, public capital markets and
for promoting walking and cycling, and particularly philanthropic bodies. Public-private financing models
funding for infrastructure, remains inconsistent and often can attract investment in exchange for revenue-

2. Policy action areas

inadequate. This challenge is particularly pronounced sharing agreements, sponsorships, branding, and
in many countries where car-oriented transport policies maintenance contracts. International development
dominate, and infrastructure for walking and cycling is and climate funds can also be pursued for support
seen as secondary rather than essential. active transport efforts. While these sources can
provide crucial support, they are not always
Governments (at all levels) play a key role and can use sustainable or widely available. Local governments
a wide variety of funding and financing mechanisms. In may also rely on ad hoc funding streams that can
general, funding is about the source of funding provided be unpredictable and lead to uneven infrastructure

3. Key enablers for successful implementation

by governments (national, city or local) or from other development.
public entities. Examples of typical funding sources
include tax revenues, user fees, and grants. Dedicated Long-term, strategic approaches to funding walking
taxes like congestion charges and carbon levies, such as and cycle policy actions are needed to achieve health
those introduced in London since 2003, can create stable and environmental gains. To support countries to
funding streams. Funds from these taxes have been used explore opportunities and learn from recent efforts
to support expansion and improvements in the public from across the world, WHO’s report, Investing in
transport service, contributing to a shift from private car walking and cycling: learning from six city case studies,
use to public transport, walking and cycling in central provides further insights and six in-depth city case
and inner London. studies that showcase different approaches taken
towards investing in walking and cycling policy
Solutions to inconsistent and insufficient government action and infrastructure (81).
funding include defining and ring-fencing budgets
for walking and cycling to help protect the agenda
when financial pressures arise. In Kenya, the Nairobi
4. Monitoring progress
City Council Government indicated that at least 20%
of existing and future transport budgets would be
allocated to fund the council’s non-motorized policy,
including infrastructure and public transport services
(79). Other examples exist, including in Ireland where a
commitment to allocate 10% of the transport budget
to walking and another 10% to cycling was made in
2021 (80). A subsequent change in government in
late 2024 may however lead to some modifications
5. Action

(see case studies, Box K).

Section 3: Key enablers for successful implementation 53

 Box K: Funding and financing mechanisms to promote walking
CASE STUDY

and cycling, Ireland and the United Kingdom

Investing in active travel, Ireland infrastructure, including greenways, amounting
to €3.6 billion over 10 years. An additional 248
In 2022, Ireland’s new National Sustainable
staff across local authorities will help ensure
Mobility Policy set out a strategic framework for
these projects are delivered and that they meet
active travel (walking and cycling) and public
the needs of the communities they serve.
transport journeys to help Ireland meet its
climate obligations. The policy aims to deliver Safer Streets, London, United Kingdom
at least 500 000 additional daily active travel of Great Britain and Northern Ireland
and public transport journeys by 2030 and a 10%
reduction in the number of kilometres driven by In 2017, the Mayor of London’s Transport
fossil-fuelled cars. The policy was accompanied Strategy set the goal of achieving 80% of trips to
by the Sustainable Mobility Policy Action Plan be made by walking, cycling or public transport
2022–2025 (www.gov.ie/en/publication/848df- by the year 2041. To support this, the Liveable
national-sustainable-mobility-policy) and Neighbourhoods Programme (https://tfl.gov.
significantly increased government funding – uk/info-for/boroughs-and-communities/
including a commitment to allocate 20% of liveable-neighbourhoods) was established,
under which boroughs could apply grants

Illustrative photo: congestion charge and Ultra Low Emission Zone (ULEZ) warning signage in central London, United Kingdom, by Lorna Roberts/Shutterstock
the transport capital budget (approximately
€360 million annually) to cycling and pedestrian worth up to £10 million to implement long-
projects over the lifetime of the government. term changes in town centres and surrounding
residential areas. The programme supported
To provide funding support, in 2024, the the aims of the Mayor’s Transport Strategy by
National Transport Authority implemented an funding local schemes to reduce car trips and
investment grant scheme for local authorities. improve neighbourhoods for walking, cycling
This scheme supported approximately 800 active and public transport. Although the Liveable
travel projects, contributing to the development Neighbourhoods Programme ended in 2024,
of 1 000 km of new and improved walking and to continue to improve road safety and improve
cycling infrastructure. Expenditure on active public transport services, Transport for London
travel is estimated to reach nearly €1 million have made £80 million of funding available
per day across whole-of-government spending through the Borough Safer Streets and the
to deliver nationwide walking and cycling Better Bus Partnership programmes.

54 Promoting walking and cycling: a toolkit of policy options

 1. Why
2. Policy action areas
3. Key enablers for successful implementation
4. Monitoring progress
Illustrative photo: congestion charge symbol painted on a city toll
road to indicate a clean air zone, London, United Kingdom,
by Markus Mainka/Shutterstock
5. Action

Section 3: Key enablers for successful implementation 55

 Illustrative photo: a smiling young woman walks next to her bicycle
as she prepares to cycle to her university, by Yuri A/Shutterstock

56 Promoting walking and cycling: a toolkit of policy options

Section 4: Monitoring progress

1. Why
Decision-makers rely on robust data to make evidence- Tracking population levels

2. Policy action areas

based policy and funding choices. Regular collection
and reporting of data set the foundation for successful of walking and cycling
monitoring and evaluation of policy and programmes. and travel behaviour
Data on travel behaviour, perceptions of safety and
attitudes towards walking and cycling, for instance, Collecting data on population levels of walking,
can provide valuable insights for tracking progress and cycling and travel behaviour is essential for
ensuring effectiveness, while an adequately funded, monitoring trends and evaluating the effectiveness
well-coordinated evaluation plan, aligned with clear of policies. This data can be gathered through, for

3. Key enablers
policy objectives, is critical to capturing both intended example, personal travel diaries, transport surveys,
and unintended impacts. This process should use household or health surveys, or focused surveys on
a combination of qualitative and quantitative data, physical activity and active transport. Regardless
supported by relevant information systems. of the method used, it is critical to design survey
instruments with appropriate questions and response
Systematic, standardized data-collection mechanisms scales to ensure reliable and meaningful data. Regular
are crucial for ensuring accuracy, reliability, and data collection through, for example household

4. Monitoring progress
comparability over time, providing a solid basis for travel, national health and transport surveys, and
decision-making and fostering confidence among school-based surveys can provide valuable insights
stakeholders. Consistent data allow for the identification into attitudes towards walking and cycling as well
of trends, assessment of long-term impacts, and as data to help track trends. They allow for the
promotion of walking and cycling. Evidence generated assessment of changes in activity levels, distances
through regular data collection can highlight the health, travelled, trip durations, and the share of walking
environmental, and economic benefits of these activities, and cycling in overall transport. These surveys can
strengthening advocacy efforts and securing ongoing also identify short journeys that could potentially
support and investment. Key metrics to track include be shifted to walking or cycling, informing targeted
5. Action

changes in behaviour, health outcomes, environmental policy and investment decisions. To date there is no
impacts, and economic benefits. Below is a list of key global standard for the collection of data on levels of
elements on which to consider collecting data as part of walking and cycling. Countries and regions collect
ongoing monitoring and evaluation. data using different instruments and questions, which
prevents comparability. The lack of reliable, consistent
and comparable data worldwide should be addressed
through international collaboration involving relevant
UN agencies and stakeholders.

57
Community knowledge, Road traffic injuries
attitudes, and perceptions and deaths
surveys Regular evaluation and reporting on road traffic injuries
and deaths are essential for developing strategies to
Capturing local perspectives on the availability, safety,
enhance the safety of walking and cycling. While most
and appeal of walking, cycling, and public transport
countries collect data on road traffic fatalities, nonfatal
provide valuable insights into psychological, social and
injuries are often underreported or inconsistently
perceived environmental factors that encourage or
recorded (4). To effectively prioritize road safety
discourage people from using these modes for travel
activities, data should be disaggregated by mode of
and/or recreation. While perceptions and intentions
travel, age, sex, and the specific circumstances of the
may not always align with actual behaviour, these data
injury. Additionally, injuries from slips, trips, and falls on
can help decision-makers understand the motivations
footpaths and streets, especially among older people or
behind travel and recreation choices, and can, in turn,
those who are frail, should be included (82). However,
help demonstrate (where generated) community
data on injuries and fatalities alone do not provide
support for walking and cycling policies and initiatives.
a comprehensive picture of the dangers faced by
Questions can be included in national or subnational
pedestrians and cyclists. It is important to complement
surveys, and/or data can be collected through
this with data on the perception of safety and “near-
community consultations and focus group discussions.
miss” situations. For instance, the absence of recorded
The choice of methods should be aligned to the purpose
incidents on streets perceived as dangerous might not
of the data and local context.
indicate safety but rather that people avoid walking or
cycling on these streets.
Street-level
monitoring of usage Air quality and
Automated on-street counts provide precise data on noise pollution
changes in walking and cycling over time, offering a
Monitoring and reporting on air quality and noise
geographical context for assessing policy impact across
pollution are important to understand the health risks
different areas. These measurements can also capture
faced by pedestrians and cyclists. These data help assess
details such as traveller demographics, trip purposes,
the impact of environmental factors on street users
and journey start and end points. Additionally, tracking
and how these risks change with the implementation
use of other transport modes, such as private vehicles,
of different policy actions. Combining data on street
taxis, or public transport, contributes to a comprehensive
environments, public perceptions, travel behaviours,
understanding of travel patterns.
and road traffic injuries provides a comprehensive
dataset to inform strategic decisions for increasing
Monitoring walking and cycling.
infrastructure quality
Regular evaluation of the provision and quality
of walking and cycling infrastructure is crucial for
understanding current conditions and identifying
risks and areas for improvement. Using street
design standards as a framework, on-the-ground
street assessments can highlight priority areas and
opportunities to create safer, more comfortable, and
inclusive environments for walking and cycling. These
data, collected and reported systematically, can guide
infrastructure investments to ensure they meet the
needs of all users.

58 Promoting walking and cycling: a toolkit of policy options

Global tracking and indicators
At the global level, WHO’s Global status report on Further development of this set of indicators is likely
road safety (4) is the main mechanism for monitoring in the coming years to address gaps. A list of the six
progress of the Decade of Action for Road Safety. voluntary performance targets adopted for the Decade
Information is collected through a road safety survey of Action for Road Safety and which are directly or
administered by WHO to Member States in which they indirectly relevant to the provision, protection and
provide details on the number of traffic deaths and enabling of safe walking and cycling is also provided
injuries; status of traffic laws and their enforcement; in Annex 3.
as well as other indications of progress aligned with
Clearly set targets and agreed indicators are

1. Why
global policy recommendations. In addition, WHO
conducts a regular survey of Member States on fundamental to tracking progress and strengthening
policy actions related to physical activity as part of government and stakeholder accountability.
tracking progress on the prevention of NCDs and the Monitoring progress of the policy options outlined
in this resource will require further collaboration as

2. Policy action areas

implementation of policy recommendations outlined
in the Global Action Plan on Physical Activity (1). In well as investment in research and development to
2022 the first Global status report on physical activity (58) address the limitations of existing data and expand
combined data from both of these sources to present the scope to include new policy areas. Robust
a comprehensive overview of Member States’ progress standardized instruments and data collection
on walking, cycling and physical activity. Combining protocols are needed. The majority of countries will
data from these existing global data collection systems need to strengthen data and information systems
provides an initial monitoring framework for tracking to support implementation of the policy options
outlined in this resource through stronger decision-

3. Key enablers
progress on many, if not all, of the policy options
outlined in this resource. A summary of key indicators making, effective resource allocation and monitoring
related to walking and cycling from the Global status of impact.
report on physical activity (58) is presented in Annex 3.

4. Monitoring progress
5. Action

Section 4: Monitoring progress 59

 Illustrative photo: a woman walks with trekking poles beside a
tranquil water body on a bright day in the Ebro Delta natural park,
Tarragona, Catalonia, Spain, by Carlos l Vives/Shutterstock

60 Promoting walking and cycling: a toolkit of policy options

Section 5: Putting the toolkit into action

1. Why
This toolkit brings together the knowledge, strategies, Setting goals and tracking progress is a key part of

2. Policy action areas

and inspiration needed to make walking and cycling a the process. Knowing where you started, measuring
safer, more accessible part of daily life. But its real value what is being done, and sharing results help maintain
lies in how it is used. The actions, ideas, and examples momentum, build trust, and show the real-world
shared throughout are not just for reference – they are a impact of policy choices.
springboard for action.
This toolkit offers a roadmap and aims to support
The case for walking and cycling is compelling. These users on all stages of the journey. We hope it will be
are simple, affordable, sustainable ways to move that used to challenge business as usual, to advocate for

3. Key enablers
improve health, reduce emissions, support equitable change, and to guide decisions – from the national
access to jobs and services, and bring life back to our policy table to the neighbourhood street corner.
streets and public spaces. But change does not happen
automatically – it takes intention, coordination, and Walking and cycling not just modes of transport
sustained effort. but are also essential ways to create healthier, fairer,
more resilient communities. Now is the time to take
The policy options outlined in this toolkit are the next step – from intention to implementation.

4. Monitoring progress
practical, scalable, and adaptable (see summary Fig.). The opportunity is here to put this toolkit to work.
Each country, city, or community can start from where
they are by reviewing current policies, identifying gaps,
and prioritizing actions that reflect local needs and
realities. Every improvement, such as reducing speed
limits, rethinking street lighting, or reallocating road
space, can deliver tangible benefits and trigger broader
transformation. 5. Putting the toolkit into action

What matters is getting started – testing, learning,

adapting, and scaling up what works. With political will,
community input, and collaboration across sectors, even
modest actions can help change how people move,
how streets are designed, and how cities function.

61
Summary of policy actions 1
Integrate walking and cycling
into all relevant policies

for promoting walking 1.1. Review and integrate

walking and cycling in
all relevant policies
and cycling 1.2. Create a comprehensive
understanding of the
context (people and
infrastructure)
1.3. Establish clear targets
1.4. Establish a cross-
government coordination
mechanism and
accountability framework
1.5. Ensure monitoring
and research

Provide safe and Design inclusive and safe Improve safe road user
2 connected walking and 3 streets for all 4 behaviour
cycling networks 3.1. Develop or adopt street 4.1. Strengthen legislation
2.1. Reform land use policies design standards affecting road safety
2.2. Strengthen transport 3.2. Mandate compliance 4.2. Empower local
and mobility policies 3.3. Conduct regular street authorities
2.3. Improve network audits and assessment 4.3. Strengthen enforcement
connectivity 3.4. Prioritize street 4.4. Equip enforcement
2.4. Ensure equitable access improvements authorities
to green spaces 3.5. Ensure community 4.5. Review and strengthen
2.5. Show impact through involvement penalties
demonstration projects

Protect and prioritize Facilitate integrated Promote and incentivize

5 walking and cycling 6 transport options 7 walking and cycling
5.1. Review legislative 6.1. Enhance public 7.1. Generate
frameworks transport services behavioural insights
5.2. Strengthen parking 6.2. Introduce incentives 7.2. Conduct regular
legislation for public transport use campaigns
5.3. Facilitate temporary 6.3. Implement bike-share 7.3. Engage the media
street closures schemes 7.4. Conduct community
5.4. Redesign street 6.4. Improve intermodal training programmes
networks integration 7.5. Organize
5.5. Regulate activities 6.5. Facilitate carriage of promotional days
on footpaths and bicycles public transport 7.6. Implement active travel
cycleways 6.6. Improve access to plans in education settings
5.6. Maintain street public transport 7.7. Improve end-of-trip
infrastructure services facilities
5.7. Implement garbage 7.8. Provide staff-incentive
disposal and collection programmes
systems
7.9. Conduct road safety
campaigns
7.10. Assess financial incentives

62 Promoting walking and cycling: a toolkit of policy options

 Integrate
walking and
cycling into
all relevant Provide
Promote and policies safe and
incentivize connected
walking and 1 walking

1. Why
cycling and cycling
7 2 networks

2. Policy action areas

Facilitate Policy action areas
integrated 6 for promoting
3 Design
transport walking and inclusive and
options cycling safe streets
for all
5 4
Protect and

3. Key enablers
prioritize Improve safe
walking road user
and cycling behaviour

4. Monitoring progress
5. Putting the toolkit into action

Section 5: Putting the toolkit into action 63

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87. A handbook on sustainable urban mobility and 92. First WHO Global Conference on Air Pollution and
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accessed 9 April 2025). makers in developing cities. Geneva: World Health
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accessed 9 April 2025).

References 69
Annex 1:
Development of this toolkit
This resource is one in a series of resources developed to As part of the process, an expert meeting was convened
support implementation of the policy recommendations by WHO in November 2019 to assess stakeholder interest
outlined in the Global Action Plan on Physical Activity in a consolidated resource on walking and cycling policy
(GAPPA) (1). GAPPA presents a comprehensive whole of actions and scope the structure of this compendium.
government or “systems’ approach to policies required to Participants strongly endorsed developing this toolkit,
increase physical activity and outlines a large set of policy emphasizing the value of positioning active transport
recommendations relevant to a range of audiences, policies as cross-cutting “win-win” strategies for both
across different sectors. This toolkit has extracted NCD prevention and road safety, in alignment with the
from GAPPA the key policy recommendations focused UN Decade of Action for Road Safety. The document
specifically on increasing opportunities for safe walking was shared externally with relevant individuals
and cycling which is one specific policy objective within (see Acknowledgements section) who were experts in
GAPPA. Other published toolkits supporting GAPPA public health, physical activity, road safety and active
have addressed specific settings (e.g., schools, primary transport, who reviewed the draft and provided feedback
healthcare) and specific populations (e.g., older adults). on its clarity and content. This thorough process ensured
In each case, the policy recommendations developed for, that the final publication was comprehensive and
and published in GAPPA serves as the anchor document. embodied a broad spectrum of expert perspectives.
Where required, declaration of interest forms were
GAPPA was developed through an extensive consultation completed and assessed, adhering to WHO standards.
process involving scientific experts, civil society and None of the individuals who supported this toolkit
Member States, culminating in its adoption at the declared any significant conflict of interest relevant to
World Health Assembly through Resolution WHA71.6. the subject at hand.
It sets out four strategic policy areas and over 50 policy
recommendations for implementation by Member The country case studies included in the toolkit provide
States with support from WHO, and stakeholders. Since examples of policy options and have been chosen with
publication in 2018, a series of ACTIVE toolkits, have been consideration of diversity both in terms of country
developed to help a key audiences identify those policy income levels and geographic distribution. Each is
actions most relevant to their areas of influence and referenced with links to publicly available information
implementation. used to develop the example.

This toolkit on walking and cycling was conceptualized Table A1.1 summarises the GAPPA policy
in 2019 and developed to highlight the collective recommendations which can be addressed by the
action required to achieve the co-benefits of increasing implementation of the seven policy options contained
active transport across health, sustainable mobility, in this toolkit.
urban design, and environmental agendas. Its purpose
is to provide targeted audiences with a consolidated
compendium, in a user-friendly format, of the specific
policy actions from GAPPA that promote more safe
walking and cycling for people of all ages and abilities.
It also provides relevant cross linkages to other relevant
UN and WHO policy frameworks (2–14) (e.g., road safety,
air pollution, urban health).

70 Promoting walking and cycling: a toolkit of policy options

Table A1.1 Extract of key policy recommendations from Global action plan on physical activity

Policy options in
Policy this toolkit aligned
Action Policy recommendation to implementation
Create active societies
1.1 Implement best practice communication campaigns, linked with community- #3
based programmes, to heighten awareness, knowledge and understanding of, #6
and appreciation for, the multiple health benefits of regular physical activity
and less sedentary behaviour, according to ability, for individual, family and
community well-being.
1.2 Conduct national and community-based campaigns to enhance awareness and #6
understanding of, and appreciation for, the social, economic, and environmental
co-benefits of physical activity, and particularly more walking, cycling and other
forms of mobility involving the use of wheels (including wheelchairs, scooters
and skates), and thereby make a significant contribution to achievement of the
2030 Agenda for Sustainable Development (Sustainable Development Goals
SDG2, SDG3, SDG4, SDG5, SDG9, SDG10, SDG11, SDG13, SDG15 and SDG16).
Create active environments
2.1 Strengthen the integration of urban and transport planning policies that #1
prioritize the principles of compact, mixed land use, at all levels of government #2
as appropriate, to deliver highly connected neighbourhoods that enable and #5
promote walking, cycling, other forms of mobility involving the use of wheels
(including wheelchairs, scooters and skates) and the use of public transport, in
urban, peri-urban and rural communities.
2.2 Improve the level of service provided by walking and cycling network #2
infrastructure, to enable and promote walking, cycling, other forms of mobility #3
involving the use of wheels (including wheelchairs, scooters and skates) and the #6
use of public transport, in urban, peri-urban and rural communities, with due
regard for the principles of safe, universal and equitable access by people of all
ages and abilities, and in alignment with other commitments.
2.3 Accelerate implementation of policy actions to improve road safety and the #3
personal safety of pedestrians, cyclists, people engaged in other forms of #4
mobility involving the use of wheels (including wheelchairs, scooters and skates) #5
and public transport passengers, with priority given to actions that reduce #7
risk for the most vulnerable road users in accordance with the safe systems
approach to road safety, and in alignment with other commitments.
2.4 Strengthen access to good-quality public and green open spaces, green #1
networks, recreational spaces (including river and coastal areas) and sports #2
amenities by all people, of all ages, and of diverse abilities in urban, peri-urban #3
and rural communities, ensuring design is consistent with these principles
of safe, universal, age-friendly and equitable access with a priority being to
reduce inequalities.
2.5 Strengthen the policy, regulatory and design guidelines and frameworks at the #2
national and subnational levels, as appropriate, to promote public amenities, #3
schools, health-care, sports and recreation facilities, workplaces and social #5
housing, that are designed to enable occupants and visitors with diverse abilities #6
to be physically active in and around the buildings, and prioritize universal #7
access by pedestrians, cyclists and public transport.

Annexes 71
Annex 1 references
1. Global action plan on physical activity 2018–2030: 9. A handbook on sustainable urban mobility and
more active people for a healthier world. Geneva: spatial planning: promoting active mobility. Geneva:
World Health Organization; 2018 (https://apps.who. United Nations Economic Commission for Europe;
int/iris/handle/10665/272722, accessed 9 April 2025). 2020 (https://unece.org/DAM/trans/main/wp5/
2. Global plan. Decade of action for road safety publications/1922152E_WEB_light.pdf, accessed
2021–2030. Geneva: World Health Organization; 2021 9 April 2025).
(www.who.int/teams/social-determinants-of-health/ 10. The power of cities: tackling noncommunicable
safety-and-mobility/decade-of-action-for-road- diseases and road traffic injuries. Geneva:
safety-2021-2030, accessed 9 April 2025). World Health Organization; 2019 (https://iris.who.int/
3. Walking and cycling: latest evidence to support handle/10665/329429, accessed 9 April 2025).
policy-making and practice. Copenhagen: World 11. Towards more physical activity in cities: transforming
Health Organization Regional Office for Europe; 2022 public spaces to promote physical activity –
(https://iris.who.int/handle/10665/354589, accessed a key contributor to achieving the Sustainable
8 April 2025). Development Goals in Europe. Copenhagen:
4. Make walking safe: a brief overview of pedestrian World Health Organization Regional Office for Europe;
safety around the world. Geneva: World Health 2017 (https://iris.who.int/handle/10665/345147,
Organization; 2013 (https://iris.who.int/bitstream/ accessed 9 April 2025).
handle/10665/82271/WHO_NMH_VIP13.02_eng.pdf, 12. First WHO Global Conference on Air Pollution and
accessed 9 April 2025). Health – summary report. In: WHO/News/Clean air for
5. Save lives: a road safety technical package. Geneva: health [website]. Geneva: World Health Organization;
World Health Organization; 2017 (https://iris.who.int/ 2018 (www.who.int/news/item/01-11-2018-clean-
handle/10665/255199, accessed 9 April 2025). air-for-health-geneva-action-agenda, accessed
9 April 2025).
6. Cyclist safety: an information resource for decision-
makers and practitioners. Geneva: World Health 13. Strengthening road safety legislation: a practice
Organization; 2020 (https://iris.who.int/ and resource manual for countries. Geneva: World
handle/10665/336393, accessed 9 April 2025). Health Organization; 2013 (https://iris.who.int/
handle/10665/85396, accessed 9 April 2025).
7. World Health Organization, FIA Foundation for
the Automobile and Society, Global Road Safety 14. Sustainable transport: a sourcebook for policy-
Partnership, World Bank. Pedestrian safety: a road safety makers in developing cities. Geneva: World Health
manual for decision-makers and practitioners. Geneva: Organization; 2011 (https://iris.who.int/bitstream/
World Health Organization; 2023 (https://iris.who.int/ handle/10665/44732/9789241502443_eng.pdf,
handle/10665/367419, accessed 9 April 2025). accessed 9 April 2025).

8. Integrating health in urban and territorial planning: a

sourcebook. Geneva: World Health Organization; 2020
(https://iris.who.int/handle/10665/331678, accessed
9 April 2025).

72 Promoting walking and cycling: a toolkit of policy options

Annex 2:
WHO assessment tools
AirQ+ software tool for health Achieving health benefits from GreenUr:
risk assessment of air pollution carbon reductions: CLIMAQ-H the Green Urban spaces
calculation tool and health tool
AirQ+ is a software tool to assess
the health risks associated with air Climate change mitigation, air To quantify the impacts of green
pollution exposure. It allows policy- quality and health (CLIMAQ-H) is spaces at urban scale, WHO’s
makers, researchers, and public WHO software for quantifying the GreenUr prototype tool measures
health professionals to quantify the consequences for human health availability and accessibility of
impacts of air pollution on health, (and related costs) of improving green spaces in cities and calculates
estimating the number of deaths national air quality by reducing their potential direct health effects.
and cases of diseases attributable domestic carbon emissions. The While it does not provide economic
to different pollutants (e.g., PM10, tool is used to analyse policies for assessments, the tool includes
PM2.5, NO2, O3). The results offer mitigation of carbon emissions algorithms that calculate the
valuable insights into the burden reported in nationally determined potential direct health benefits of
of diseases related to air pollution contributions submitted by the green spaces, such as improvements
and can evaluate the health benefits Conference of the Parties to in mental health, and indirect
of improving air quality in various the United Nations Framework effects via ecosystem services (e.g.,
scenarios. Convention on Climate Change. air-quality enhancement, cooling
effects). The tool is designed for
AirQ+ can also be used to estimate CLIMAQ-H can be used to assess local authorities, urban planners,
the economic costs of air pollution the outcome of climate policies NGOs, students and researchers, but
on health systems, complementing and to facilitate decision-making in can also serve as an educational,
the WHO-developed CLIMAQ-H settings with limited data availability. communication and scientific
(see next tool). While it focuses on The methods used are based on support. The tool is highly adaptable
health risks, AirQ+ can be employed evidence from epidemiological for a range of city contexts, helping
alongside other tools, such as studies that show relations users visualize spatial data related
the Health Economic Assessment between average long-term air to green spaces and make informed
Tool (HEAT), to provide a more pollution concentrations and the planning decisions.
comprehensive understanding mortality and morbidity risks of
of the environmental, health, and exposed populations. Assessment
economic benefits of air quality of the impact of carbon-reduction To find out more:
interventions. The tool is designed to scenarios is relevant for evaluating www.who.int/europe/tools-and-
help guide evidence-based decision- the consequences of policies or for toolkits/greenur--the-green-urban-
making by public health authorities, screening hypothetical scenarios. spaces-and-health-tool
urban planners, and environmental (This tool replaces the earlier
agencies. CaRBonH calculation tool.)

To find out more: To find out more:

www.who.int/tools/airq www.who.int/europe/
publications/i/
item/9789289060196

Annexes 73
Annex 3:
Global indicators and targets
This annex provides a list of the key indicators tracked Data are collected from all Member States by WHO
and reported upon by WHO at global, regional and through two global surveys designed to monitor country
national levels to monitor policy progress towards progress on improving road safety, and the prevention
achieving a 15% relative reduction in levels of physical and management of NCDs. Details of the latest surveys
inactivity in adults and adolescents by 2030 through are available from WHO.
implementation of the policy recommendations set out
in the Global Action Plan on Physical Activity 2018–2030. Reporting on the indicators in Table A3.1 is available in
The list below is a subset of the (currently) 36 indicators the Global status report on physical activity, and for some
used for monitoring, showing only those most relevant indicators also in the periodic Global status report on
to walking and cycling. road safety.

Table A3.1 Global indicators used to track country progress related to walking and cycling

National communication campaign on physical activity (which can include a focus on walking/cycling)
National mass-participation events (which can include a focus on walking/cycling)
National policy on walking and cycling
National policy on public transport
National road design standards for:
• separated infrastructure for pedestrians and cyclists
• safe crossings for pedestrians and cyclists
• management of safe speed
• all three road safety features
National road safety strategy
National road safety strategy that is fully funded
National road safety assessment of all new roads
National assessment of road safety of existing roads for all road users
National legislation on:
• speed limits meeting best practice
• drink–driving meeting best practice
• distracted driving due to use of mobile phone
• distracted driving due to use of drugs
National promotion of walking and cycling providing opportunities and/or programmes for physical activity

74 Promoting walking and cycling: a toolkit of policy options

The target set for the Global Plan of the Decade of Action for Road Safety (2021–2030) is to
reduce road traffic deaths and injuries by at least 50%. To reach this goal, 12 voluntary road
safety performance targets were set, adopted in 2017 and 2018. Six of them are directly or
indirectly relevant to providing, protecting and enabling safe walking and cycling. These are
presented in Table A3.2. Together with the indicators outlined in Table A3.1 and the global
target set for reducing physical inactivity, they provide a framework of accountability.

Table A3.2 Global voluntary road safety performance targets related directly or indirectly to walking and cycling

Target 1 By 2020, all countries establish a comprehensive multisectoral national road safety action plan
with time-bound targets.
Target 3 By 2030, all new roads achieve technical standards for all road users that take account of road safety
or meet a three-star rating or better.
Target 4 By 2030, more than 75% of travel on existing roads is on roads that meet technical standards
for all road users that take account of road safety.
Target 6 By 2030, halve the proportion of vehicles travelling over the posted speed limit and achieve
a reduction in speeding-related injuries and fatalities.
Target 9 By 2030, halve the number of road traffic injuries and fatalities related to drivers using alcohol,
and/or achieve a reduction in those related to other psychoactive substances.
Target 10 By 2030, all countries have national laws to restrict or prohibit the use of mobile phones
while driving.

Annexes 75
Annex 4:
Additional WHO resources
related to policy options
on walking and cycling

This annex presents a selection of key resources from across WHO regions related to policy
action at national and subnational levels to support countries in providing safe walking and
cycling. In addition, and to offer a broader perspective, some publications from other UN
organizations are included as well as resources on related health topics. Please note, this list
is not exhaustive and new resources are frequently published.

African Region Region of the Americas

• PAN African action plan for active mobility: • Leading causes of death and disease burden in the
a commitment towards better walking and cycling Americas, Noncommunicable diseases and external
environment for people and the planet. UN Habitat, causes. PAHO, 2024.
UN Environmental programme and World Health • Salvar vidas promoviendo un enfoque de sistemas
Organization, 2024. de tránsito seguros en las Américas [Saving lives by
• Status report on road safety in the WHO African Region promoting a safe transit systems approach in the
2023. WHO Regional Office for Africa, 2024. Americas]. PAHO, 2024.
• Health and Economic Impact Assessment of Walking • Convergent agenda for sustainable mobility and
and Cycling Interventions in Accra, Ghana: an health – reference document. PAHO/WHO Brazil, 2022.
investment case using the WHO HEAT tool. WHO Ghana • Strategy and plan of action on health promotion
Office & WHO Physical Activity Unit, 2023. within the context of sustainable development goals
• Walking and cycling in Africa: evidence and good 2019–2030. PAHO, 2022.
practice to inspire action. UN Habitat, UN Environment • Bicycle-sharing Systems across the United States of
Programme and Walk21, 2022. America. PAHO, 2020.
• Promoting physical activity in the African Region. WHO • Noncommunicable diseases in the era of COVID-19 and
Regional Office for Africa, 2022. building back stronger NCD Programs. PAHO, 2021
• Why infrastructure matters: active mobility, public • Status of road safety in the region of the Americas.
transport, and economic growth in African cities. ITDP, PAHO, 2019.
UN Environment and UN Habitat, 2022.
• Good road safety practices in the Americas: action-
• Framework for the implementation of the global action oriented data and stories. PAHO, 2019.
plan on physical activity 2018–2030 in the WHO African
Region: report of the Secretariat. Regional Committee • Active Living in the Washington, D.C., Metropolitan
for Africa, 2020. Area. PAHO, 2017.

• Streets for walking and cycling: designing for safety,

accessibility and comfort in African Cities. UN Habitat
and ITDP, 2018.

76 Promoting walking and cycling: a toolkit of policy options

South-East Asia Region Eastern Mediterranean Region
• Roadmap for implementation of health promoting • Documenting road safety: a guide for governments
schools in the South-East Asia Region. WHO Regional and lead agencies. WHO Regional Office for the Eastern
Office for South-East Asia, 2022. Mediterranean, 2022
• Status report on physical activity and health in the • Framework for action to implement the United
South-East Asia Region. WHO Regional Office for Nations political declaration on noncommunicable
South-East Asia, 2018. diseases (NCDs). WHO Regional Office for the Eastern
• Resolution of the WHO Regional Committee for South- Mediterranean, 2019
East Asia Promoting physical activity in the South-East • Promoting physical activity through the life-course:
Asia Region [SEA/RC69/R4] WHO Regional Office for a regional call to action. WHO Regional Office for the
South-East Asia, 2016. Eastern Mediterranean, 2014.
European Region • A practical guide to developing and implementing-
school policy on diet and physical activity. WHO
• Health economic assessment tool (HEAT) for walking
Regional Office for the Eastern Mediterranean, 2010.
and for cycling: methods and user guide on physical
activity, air pollution, injuries and carbon impact Western Pacific Region
assessments: 2024 Update. WHO Regional Office for • Cycling is health and should be practiced through an
Europe, 2024. enabling environment. Department of Health and WHO
• Walking and cycling: latest evidence to support policy- Country Office Philippines, 2024.
making and practice. WHO Regional Office for Europe, • Pacific physical activity and sedentary behaviour
2022. guidelines for everyone. WHO Regional Office for the
• Cycling and walking can help reduce physical inactivity Western Pacific, 2023.
and air pollution, save lives and mitigate climate • Department of Transportation and the World Health
change. WHO Regional Office for Europe, 2022. Organization launch Philippine Road Safety Action
• How to develop and sustain healthy cities in 20 steps. Plan 2023-2028. WHO Country Office Philippines, 2023.
WHO Regional Office for Europe, 2022. • Regional framework on nurturing resilient and healthy
• Pan-European master plan for cycling promotion. future generations in the Western Pacific. WHO Regional
UNEC and WHO Regional Office for Europe, 2021. Office for the Western Pacific, 2022.
• Green and blue spaces and mental health: new • Regional Action Plan on Health Promotion in the
evidence and perspectives for action. WHO Regional Sustainable Development Goals 2018–2030. WHO
Office for Europe, 2021. Regional Office for the Western Pacific, 2018.
• Towards more physical activity in cities: transforming • Regional Framework for Urban Health in the Western
public spaces to promote physical activity – a key Pacific 2016–2020: Healthy and Resilient Cities.WHO
contributor to achieving the Sustainable Development Regional Office for the Western Pacific, 2016.
Goals in Europe. WHO Regional Office for Europe, 2017. • Healthy cities: good health is good politics: toolkit
• Urban green spaces: a brief for action. WHO Regional for local governments to support healthy urban
Office for Europe, 2017. development. Manila: WHO Regional Office for the
• Physical activity strategy for the WHO European Region Western Pacific, 2015.
2016–2025. Copenhagen, Denmark: WHO Regional
Office for Europe, 2016.
• Healthy Cities, Promoting health and equity – evidence
for local policy and practice. Copenhagen, Denmark:
WHO Regional Office for Europe, 2014
• Physical Activity Promotion in Socially Disadvantaged
Groups: Principles for Action. Copenhagen, Denmark:
WHO Regional Office for Europe, 2013.

Annexes 77
Global – Additional resources across health areas

Physical activity Climate, health & environments

• Global status report on physical activity 2022. • Compendium of WHO and other UN guidance in
WHO, 2022. health and environment, 2024 update. World Health
• WHO guidelines on physical activity and sedentary Organization, 2024.
behaviour. WHO, 2020. • Operational framework for building climate resilient
• WHO guidelines on physical activity, sedentary and low carbon health systems. World Health
behaviour and sleep for children under 5 years of age. Organization, 2024.
WHO, 2019. • Healthy environments: why do they matter and what
• Global action plan on physical activity 2018–2030 can we do? Geneva: World Health Organization, 2019.
(GAPPA). WHO, 2018. Healthy settings: cities, schools and workplaces
• ACTIVE – implementation toolkits and resources. • How school systems can improve health and well-
WHO, 2018–2021. being: topic brief – physical activity. WHO, UNICEF
• ACTIVE Promoting physical activity through schools: and UNESCO, 2023.
a toolkit • Making every school a health-promoting school –
• ACTIVE Promoting physical activity for older people: implementation guidance. WHO, 2022.
a toolkit • Guidelines on mental health at work. WHO, 2022.
• ACTIVE Promoting physical activity through primary • Healthy cities effective approach to a changing world.
care: a toolkit WHO; 2020.
• mACTIVE Handbook on how to implement mobile • Global report on urban health: equitable cities for
health for physical activity sustainable development. WHO and UN Habitat, 2016.
Road safety Healthy ageing
• Resolution A/78/L.78: Improving global road safety. • Working for a brighter, healthier future. How WHO
UN, 2024. improves health and promotes well-being for the
• Global status report on road safety 2023. WHO, 2023. world’s adolescents. Second edition. WHO, 2024.

• Pedestrian Safety: a road safety manual for decision- • Ageing and health. WHO, 2024.
makers and practitioners. WHO, 2023. • Global age-friendly cities: A guide. WHO, 2007.
• Speed management: a road safety manual for decision-
makers and practitioners. WHO, 2023.
• Cyclist safety: an information resource for decision-
makers and practitioners. WHO, 2020.
• Global plan for the decade of action for road safety
2021-2030. WHO, 2021.
• Strengthening road safety legislation: a toolkit for road
safety legislation workshops. WHO, 2014.

78 Promoting walking and cycling: a toolkit of policy options

79
For further information, contact:

Department of Health Promotion

World Health Organization
20 avenue Appia
1211 Geneva 27
Switzerland
Website: www.who.int