Challenges and Opportunities for Public Bike Sharing in India

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The Integrated Multimodal Transport System (IMTS) serves as a crucial instrument for promoting sustainable transportation planning and development in Indian cities. Traditionally, policies and funding initiatives such as the National Urban Transport Policy (NUTP), Jawaharlal Nehru National Urban Renewal Mission (JnNURM), and the Smart Cities Mission have underscored the importance of Non-Motorised Transport (NMT) infrastructure to address first and last-mile connectivity challenges within multimodal transport systems. Among these initiatives, the planning, design, and implementation of Public Bike Sharing (PBS) systems across transit stations represent a significant effort undertaken by various Urban Local Bodies (ULBs) in Indian cities.

The Ministry of Housing and Urban Affairs (MoHUA) defines PBS as "a high-quality bicycle-based public transport system in which bicycles, stored in a closely spaced network of stations, are made available for short-term use." Similarly, the World Resources Institute (WRI) characterised PBS as “a flexible public transport service that involves the creation of a dense network of cycle rental stations. Users can take a cycle from any station and return it to any other station in the system”. The Institute for Transportation and Development Policy (ITDP) furthermore describes PBS as “a system where anyone can pick up a bike in one place and return it to another, making point-to-point, human-powered transportation feasible”.

Assessing the performance of these systems in addressing first and last-mile connectivity challenges is imperative to ensure their effectiveness and sustainability in the urban transport landscape.

While different organisations employ various terminologies—such as bike share, PBS, or cycle share—the core principles remain consistent across definitions. Primarily, it seeks to emphasise three key characteristics—shared use, availability of bicycles at multiple locations, and human-powered mobility. However, the establishment and operation of such systems necessitate substantial financial investment. Consequently, assessing the performance of these systems in addressing first and last-mile connectivity challenges is imperative to ensure their effectiveness and sustainability in the urban transport landscape.

PBS System in India

Bike-sharing initiatives initially pioneered in European nations, have gained widespread and global traction due to their remarkable success. Nearly 2,008 bike-sharing systems were in operation worldwide by the end of 2020. In India, several urban centres have adopted such schemes under the ambit of the 'Smart Cities Mission' and other government initiatives to advance sustainable mobility solutions. Table 1 presents a comprehensive overview of 27 Indian cities that have implemented bike-sharing systems.

Table 1: Public bike sharing systems in India

Source: Pavan Kumar Machavarapu et.al (2024)

In Western nations, bike-sharing systems have gained considerable traction. However, in Asia—especially in developing countries like India—these initiatives remain in their nascent stages. Moreover, replicating operational models from Western contexts in Asia may not produce identical or optimal outcomes in developing regions. This disparity arises from distinct urban dynamics, including varied land-use patterns, higher population densities in urban cores, differing levels of traffic safety, infrastructural limitations, and inconsistencies in law enforcement when compared to their developed counterparts.

Challenges

Despite the implementation of PBS systems in Indian cities, their widespread adoption remains constrained by several challenges. These include limited public acceptance, operational inefficiencies, insufficient government funding, alongside other systemic issues. The primary obstacles to PBS adoption in India are as follows:

• Business Models: The adoption of PBS systems in India faces notable challenges, particularly regarding the financial sustainability of operational models. Several business frameworks have emerged, each with distinct implications. The Viability Gap Funding VGF) model, exemplified by Mysuru’s 'Trin-Trin' initiative, relies on government or international grants to offset costs. However, with operators shielded from Performance-Linked Incentives (PLIs), service quality often suffers. The VGF coupled with the advertisement rights model, as seen in Bhopal and Chandigarh, attempts to balance costs by granting ad revenues to operators, yet aiming to prioritise commercial viability over accessibility. The open permit-based model, implemented in Ahmedabad and Bengaluru, grants permits to multiple operators, fostering competition. However, unrestricted withdrawal options and financial constraints limit fleet expansion. The Public-Private Partnership (PPP) model, adopted by Indore, offers a more balanced approach by sharing capital expenditure while incentivising operators to enhance service quality. A promising yet unexplored model in India is the corporate-sponsored system, akin to New York’s Citi Bike, which thrives on private investment and branding rights. Each model presents unique challenges, from financial viability to service consistency, demanding tailored policy interventions to ensure sustainable PBS adoption in Indian cities.
• Regulation: The regulatory framework governing Battery Operated Vehicles (BOVs) in India is delineated within the Central Motor Vehicles Rules (CMVR), 1989. However, a notable exemption exists for electric bicycles and scooters utilised in PBS systems, provided they adhere to specific technical parameters– a motor power not exceeding 0.25 kilowatt (kW), a maximum attainable speed of 25 kilometre/hour, or the incorporation of pedal-assist mechanisms that deactivate power assistance beyond 25 km/h. This exemption effectively absolves these vehicles from mandatory registration, licensing, road tax, and insurance requirements. While this regulatory approach may be justified for traditional bicycles, the inherent speed capabilities of e-bikes and e-scooters present discernible safety implications and the potential for competitive overlap with existing public transportation infrastructure. Stakeholder perspectives within the nascent e-mobility sector, particularly from start-up enterprises, demonstrate a prevailing resistance to regulatory modifications, citing concerns regarding potential impediments to sectoral expansion. Nevertheless, the increasing proliferation of advanced battery-powered personal mobility devices, such as Segway and motorised boards, underscores the exigency for a comprehensive and articulated regulatory framework. The absence of such a framework may exacerbate regulatory complexities in the long term, necessitating a judicious equilibrium between fostering technological innovation and safeguarding public safety.
• System Planning and Design: While the global success of PBS systems underscores the critical role of extensive and dense networks in driving ridership, Indian urban implementations have been largely confined to limited-scale projects, thereby restricting their accessibility and effectiveness. The potential of PBS as a viable urban mobility solution in India remains unrealised due to the under-prioritisation of key user-centric factors, namely time efficiency and ease of access. A fundamental obstacle is the paucity of dedicated cycling infrastructure, which impedes the seamless integration of PBS into daily commutes and raises significant safety concerns. Moreover, India’s heterogeneous climatic conditions, characterised by extreme heat, heavy rainfall, and high humidity, present substantial challenges to the adoption of cycling as a reliable first and last-mile transport mode. To unlock the potential of PBS in Indian cities, strategic interventions are required, including comprehensive urban planning, substantial infrastructural investments, and the implementation of policies that prioritise user convenience and safety.

Conclusion

PBS systems in Indian cities face the absence of a well-defined cycling strategy and long-term vision. PBS alone cannot ignite a cycling revolution. It must be embedded within a broader urban transport framework that prioritises sustainable mobility. Cities need to translate their vision into actionable plans, supported by dedicated institutions and consistent funding.

The success of PBS depends on continuous monitoring, mid-course corrections, and a long-term commitment.

A growing trend in India is the outsourcing of PBS operations and revenue risks to private players. However, given its public nature, PBS requires public sector investment and leadership to ensure its integration with other transit modes. Properly planned, PBS can serve as a crucial first and last-mile connectivity option, boosting overall public transit ridership. With Indian cities reporting average PBS trip lengths of 2–4 km, there exists an immense potential to replace short motorised trips with bicycles, provided there is sufficient station density and quality infrastructure.

Lastly, cities must exercise patience. The success of PBS depends on continuous monitoring, mid-course corrections, and a long-term commitment. The insights from ongoing projects offer a valuable opportunity for policymakers at national, state, and local levels to refine strategies and reimagine PBS implementation in India.

Nandan H Dawda is a Fellow in the Urban Studies Programme at the Observer Research Foundation.

• Urbanisation in India
• India
• free bus travel for women in india
• free public transport in india
• free public transport initiatives in india
• impact of free public transport
• national urban transport policy
• nutp 2006
• public transport in india
• public transport system in india
• transport subsidy schemes

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