A strategic shift towards non-motorised transport would not only mitigate the current issues associated with the excessive use of private vehicles, but also foster the development of more sustainable, inclusive, and liveable urban environments
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Rapid urbanisation has placed a significant burden on urban services. Poor transport management has increased traffic congestion and air pollution, and brought about a shortage of parking spaces, which has been exacerbated by the growing purchasing power of urban residents, who prefer private vehicles rather than public transportation options.
Government policies have often prioritised the construction and expansion of infrastructure for private vehicles, such as roads and highways, to accommodate the growing demands of urban residents rather than investing in developing and improving public transport systems. This approach has created a vicious cycle, where increased private vehicle ownership has prevented the creation of sustainable and inclusive transport systems in cities.
Poor transport management has increased traffic congestion and air pollution, and brought about a shortage of parking spaces, which has been exacerbated by the growing purchasing power of urban residents, who prefer private vehicles rather than public transportation options.
A nationwide review of urban modal share statistics indicates that 36 percent of Indians walk or cycle to work while 30 percent do not travel “given their close proximity to their workplaces”. Additionally, 18 percent use public transport, and 16 percent use private vehicles, with 3 percent using cars and 13 percent using two-wheelers. This indicates that approximately 54 percent of people rely on non-motorised transport (NMT) for at least part of the commute. The significant share of NMT in Indian cities can be attributed to their relatively compact urban form, high population density, and mixed land-use patterns, which result in shorter travel distances. The neglect of NMT infrastructure has led to high rates of road accidents involving pedestrians and cyclists.
Indian cities face significant challenges concerning NMT despite its substantial modal share. Safety concerns are particularly critical, as many roads are unsafe for walking and cycling. According to the accident data for 2022, released by the Ministry of Road Transport and Highways (MoRTH), pedestrians are more frequently involved in fatal accidents compared to car occupants. In 2022, 32,825 pedestrians were killed in road accidents, marking a 12.7 percent increase from 2021. Additionally, 4,836 cyclists lost their lives in 2022, representing an approximate 2.8 percent increase from the previous year. These statistics underscore the lack of safe and adequate infrastructure for pedestrians and cyclists, as well as a general insensitivity towards vulnerable NMT users.
The quality of infrastructure for NMT in Indian cities remains a significant concern. There is a notable deficiency in dedicated pedestrian pavements and cycling paths. Dedicated pedestrian and cycling infrastructure, where present, is poorly maintained. A qualitative analysis of NMT infrastructure, conducted on a scale of one to five as part of the Ease of Moving Index 2022, revealed that the average perception score regarding the existing width and condition of footpaths was 2.8 out of five. Similarly, the perception score for the availability of dedicated, safe pedestrian crossing facilities, such as foot over bridges and subways and adequacy of street lighting was 2.8. In terms of cycling infrastructure, the perception score for the adequacy of cycle tracks across the city was 3.0. In contrast, the score for the adequacy of cycle parking provisions at transit hubs was slightly lower, at 2.9. These results emphasise the urgent need for improved infrastructure and maintenance to enhance safety and usability for NMT users.
Dedicated pedestrian pavements and cycling paths. Dedicated pedestrian and cycling infrastructure, where present, is poorly maintained.
Additionally, there are considerable gaps in data collection and analysis related to NMT infrastructure and usage. Data inconsistencies are prevalent, with different agencies reporting varying statistics for the same city. Traffic studies at the city level typically focus on predicting an increase in motorised transport demand, often neglecting the component of NMT travel demand. Moreover, accident data collected by the police is frequently misrepresented or lacks thorough investigation. Policy implementation remains weak in addressing these challenges. Before 2006, transport policies primarily focused on motorised transport investments.
The Ministry of Housing and Urban Affairs (MoHUA) has promoted NMT through various initiatives, such as the National Urban Transport Policy (NUTP), which envisions NMT as both a last-mile connector and an independent mode of transport for short trips. The National Mission for Sustainable Habitat and MoHUA’s Service Level Benchmarks (SLBs) emphasise integrating NMT into broader urban transport frameworks and assessing infrastructure quality and performance. Programmes like the Jawaharlal Nehru National Urban Renewal Mission (JNNURM) and recommendations from the 12th Five-Year Plan have also advocated for NMT by linking funding to NMT components and suggesting dedicated funds for enhancing walking and cycling infrastructure. The Smart City Mission has conducted initiatives, including Cycle4Change and Transport4All, to promote and improve the NMT transport ecosystem. Despite these policies and efforts, there has been limited success due to gaps in implementation, inadequate multi-modal integration, and disproportionate allocation of transport funding, which continues to prioritise heavy transport infrastructure over NMT development.
To effectively address these issues, it is crucial to develop infrastructure that corresponds with the actual level of NMT usage. Urban planning has traditionally prioritised the uninterrupted flow of motorised vehicles, but there is a pressing need to shift towards creating environments that support and enhance NMT. This requires the redesign of streets to incorporate dedicated pedestrian pathways and bicycle lanes that comply with established urban planning guidelines such as IRC 103 and the “Better Streets, Better Cities - Street Design Guidelines” (by the Institute for Transportation & Development Policy), which are tailored for Indian cities. Additionally, cities should establish dedicated NMT cells within the existing institutional framework of urban local bodies (ULBs) to ensure the effective evaluation, design, construction, and implementation of revised street infrastructure.
Urban planning has traditionally prioritised the uninterrupted flow of motorised vehicles, but there is a pressing need to shift towards creating environments that support and enhance NMT.
To ensure the development of inclusive and user-friendly infrastructure, conducting a socio-technical audit of transport infrastructure is crucial, particularly from the perspectives of gender and older age groups. Such an audit would help to assess the accessibility and usability of current transport infrastructure for these demographic groups in their daily lives. However, conducting this audit presents several challenges, including manual data collection and analysis, the identification and prioritisation of issues, and the allocation of resources.
Using advanced technologies and social media platforms can significantly streamline the audit process. For example, social media campaigns focusing on “NMT infrastructure” within cities, combined with online surveys conducted by government authorities, could facilitate the efficient collection of data on the issues and challenges faced by city residents in their day-to-day lives. Additionally, technologies such as Geographic Information Systems (GIS), Global Positioning Systems (GPS) and sensors can be employed to conduct walkability and cycling audits, providing valuable insights into the usability of urban environments for NMT users. This will ultimately enable cities to establish a clear baseline assessment of NMT usage and infrastructure, which can further assist city authorities in formulating effective strategies.
Technologies such as Geographic Information Systems (GIS), Global Positioning Systems (GPS) and sensors can be employed to conduct walkability and cycling audits, providing valuable insights into the usability of urban environments for NMT users.
Urban policymakers must urgently reconsider their strategies and prioritise the enhancement of NMT and public transportation infrastructure. This strategic shift would not only mitigate the current issues associated with the excessive use of private vehicles but also foster the development of more sustainable, inclusive, and liveable urban environments. Investing in creating integrated transport services will contribute to the creation of balanced transport networks that address the needs of all residents while simultaneously promoting environmental sustainability and economic efficiency.
Nandan H Dawda is a Fellow with the Urban Studies programme at the Observer Research Foundation.
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Dr Nandan H Dawda is a Fellow with the Urban Studies programme at the Observer Research Foundation. He has a bachelor's degree in Civil Engineering and ...
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