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How Dockless Bike-Sharing Changes Lives: An Analysis of Chinese Cities 1 WRI HOW DOCKLESS BIKE-SHARING CHANGES LIVES: AN ANALYSIS OF CHINESE CITIES HUI JIANG SU SONG XUAN ZOU LU LU2 WRI Design and Layout by: Harry Zhang How Dockless Bike-Sharing Changes Lives: An Analysis of Chinese Cities I TABLE OF CONTENTS III Foreword V Executive Summary 1 Chapter 1 Introduction 2 Background 3 Research Purpose 3 Structure of the Report 5 Chapter 2 Methodologies and Data 6 Research Methods Outline 6 Survey Design and Sampling 10 Methods of Impact Assessment 17 Chapter 3 Impacts on Travel Behavior 18 Frequency, Distance, and Duration 19 Travel Purpose 20 Last-Mile Connection 20 Travel Modes Replaced by DBS 21 Why Travel by DBS 22 Travel Behavior Changed 25 Chapter 4 Impacts on Health, Carbon, and Safety 26 Health Impacts 30 Carbon Reduction 30 Road Crash Risk 33 Chapter 5 Regulation Review and Implication 34 Challenges and Policy Background 38 Fleet Size Control 41 Parking Management 43 Cycling Infrastructure Improvement 47 Chapter 6 Conclusions 48 Findings and Highlights 49 Strengths and Limitations 50 Future Studies 52 Appendix A: Questionnaire 54 Appendix B: Shared Bikes Regulations 58 Endnotes 59 Glossary 60 References 68 AcknowledgmentsII WRIHow Dockless Bike-Sharing Changes Lives: An Analysis of Chinese Cities III FOREWORD Dockless bike-sharing (DBS) is one of the most popular shared transport systems to impact peoples lives in recent years. Since its rapid proliferation on city streets across the globe in 2016, DBS companies have had a tumultuous journey navigating, on the one hand, an explosion in demand, and on the other, significant regulatory hurdles and negative perceptions. As many of these companies enter their fifth year of operations, their global footprint has decreased, but their relevance in Asian cities has grown. As of 2019, DBS systems supported millions of short trips and connections to public transit in over 360 Chinese cities. The shift to low-emission modes and increased physical activity of DBS users are the most significant co- benefits of the system. However, these systems can also pose challenges to the management of public space if regulations are not based on assessments of their impact, and if they are not well integrated into the transport ecosystem. By studying DBS systems in 12 Chinese cities, this report offers concrete evidence of how DBS changes peoples daily lives and points to an emerging philosophy of urban management and the role of the public and private sectors in ensuring sustainable and equitable outcomes through transport services. The authors investigated how the system changes peoples travel behavior, assessed the benefits or risks on public health, carbon emissions, and road safety, and showcased good management practices. The authors also recommend that cities should improve DBS management by setting up key performance indicators for operators, clarifying rules for parking management, providing safer cycling facilities, and encouraging standardized technologies. At the time of this reports publication, severe acute respiratory syndrome coronavirus 2 (SARS- CoV-2) continues to spread globally, causing more than 11.63 million cases and 538,529 deaths 1 (JHU July 7, 2020). Admittedly, SARS-CoV-2 has changed the global landscape forever, and its impact on urban life will be long-lasting. During the peak of the crisis, bicycles served as one of the few resilient and safe ways in which citizens could move around for essential needs. As cities begin to reopen and social connection recovers, transport culture might shift from centralized motorized modes to distributed customized solutions. And while Beijing has seen a 150 percent increase in use of bike-sharing systems (Xinhua News 2020), 2 it is unclear whether cycling and walking will become a new normal of daily travel or whether the increase is just a temporary response to the pandemic. The answer will lie in the shift in public mindsets, good built-environments and urban management, and responsible and financially healthy operators. DBS systems must be welcomed as an effective mechanism for cities looking to rebuild their economies, ensure public health, and reduce their emissions. While circumstances may differ, stories and lessons from Chinese cities can provide insights and good practice for cities elsewhere on how to build a cycling culture and encourage bike-sharing. Scaling up the bike- sharing culture with innovative solutions also requires collaborations among networks of global and local communities. That is what the World Resources Institute (WRI) and the New Urban Mobility (NUMO) alliance are doing now for cities around the world. Daizong Liu Director, WRI China Sustainable Cities Program Communication Director, WRI China Jyot Chadha Senior Manager, Alliance and Partnerships NUMO allianceIV WRIHow Dockless Bike-Sharing Changes Lives: An Analysis of Chinese Cities V EXECUTIVE SUMMARY HIGHLIGHTS Dockless bike-sharing (DBS) systems have expanded rapidly in China since 2016. By the end of 2019, they had served over 360 Chinese cities. As the alternative mode of short-distance travel that also connects to public transit, the systems bring convenience and meet citizens travel demands. This report aims to investigate how DBS changes peoples travel behavior and assesses its impacts on public health, carbon emissions, road safety, and urban management in 12 Chinese cities. The impact assessment findings show that people can obtain more health benefits and emit less carbon emissions by using DBS over motorized travel. Yet, DBS users, like other cyclists, are vulnerable compared with those using motorized vehicles. This report also reviews DBS policies, and showcases good practices in the 12 study cities that could provide useful references for other cities intending to adopt DBS systems. To better regulate the DBS as a short-distance travel mode, cities could improve DBS management by introducing innovative policies and measures, such as setting up key performance indicators (KPIs) for operators, clarifying rules for parking management, providing safer cycling facilities, and encouraging standardized technologiesVI WRI Background There is a boom in dockless bike-sharing (DBS) systems in world cities. As an alternative and innovative trip mode, DBS systems have been implemented in hundreds of cities around the world. Since 2016, DBS has expanded rapidly in China, which is the largest global market of DBS. The number of DBS bikes in China was estimated at 23 million in 2017, operating in over 200 Chinese cities (CAICT 2019; State Information Center 2018). Although the fleet dropped to 19.5 million in late 2019, the DBS service had expanded operations to over 360 Chinese cities. Users can use mobile phones to locate, unlock, and use bikes with convenience. The added accessibility has fulfilled huge travel demand in cities, and has been a factor in shifting the paradigm away from personal car ownership and toward an urban mobility characterized by a more integrated seamless transport system. Benefits and issues. DBS has rapidly changed the transport ecosystem in pursuit of the development of a personal and convenient commutetypically catering to first/last-mile connectivity. However, the oversaturated market resulted in increases in fleet sizes, vandalism, clutter, and curbing pedestrian space. Those challenges created debates while introducing DBS into cities. In addition, there is a lack of nationwide research and analysis on the impacts of dockless shared bikes on travel behavior change, public health, carbon emissions, road safety, and the urban environment. About This Report This report assesses multiple impacts of DBS (specifically, fully human-powered bikes) on Chinese cities, investigates cities regulatory responses, and identifies best practices on DBS systems management. The implications could be a useful reference for cities introducing DBS systems. The report answers three major questions: Question 1: Has DBS changed peoples travel behavior? If so, how has it shifted people from other transport modes? Question 2: What are the health, carbon, and safety impacts (positive and negative) of DBSHow Dockless Bike-Sharing Changes Lives: An Analysis of Chinese Cities VII Question 3: What can cities learn to improve DBS regulations? Multiple methods applied to assess the impacts of DBS. To answer the questions above, we combined the DBS user experience survey with a large amount of literature review. We conducted the DBS survey in 12 Chinese cities, encompassing 8,218 valid responses. For the DBS impact assessment, we adopted methodologies such as health impact assessment, carbon inventory estimation, and road safety assessment from a wide range of global literature. We have also reviewed over 60 relevant Chinese regulations and case studies to support our discussion of policy implications and the conclusions we reach. The report aims to reach three groups of audiences. Cities will have good knowledge of the benefits of introducing similar solutions and work more effectively with users and operators toward an integrated and healthy transport system for all. Decision-makers can refer to impact results from the study to guide the citys relevant investment decisions or adopt the recommended regulations to better manage the DBS fleet, parking, and facilities, promoting more sustainable modes of transport and maintaining urban built-environments. The general public can maximize the health benefits by adjusting their cycling duration and intensity based on the recommendations. Finally, academic communities can use the results to enrich existing studies and comparative findings from across the globe. DBS Impacts This report investigates how DBS has impacted cities after the service was introduced. It provides the quantitative impacts of DBS in 12 Chinese cities on travel behavior change, public health, emissions mitigation, and road safety. Travel behavior change: Despite large geographical and socioeconomic differences, the results show that DBS has a homogenous impact on travel behavior change among the 12 studied citiesVIII WRI The findings indicate that DBS increased connec- tivity to other modes of transport, 54 percent of respondents used DBS to connect to other modes, from which, 91 percent of the linking trips were used to access public transport. Depending on the city, 1745 percent of total dockless bike-sharing kilometers traveled re- placed motorized kilometers traveled (including private cars, taxis, ride-hailing, and motorcycles). Health impact: Based on this research, the health benefit from DBS cycling outweighs the risk from exposure to polluted air while cycling; therefore, cycling should be further encouraged. The net mortality avoided annually among 235 million Chinese DBS users would be 59,635 (95% CI 33,18190,142). For most Chinese cities with the average PM 2.5 concentration within 5060g/m 3 , one-hour of cycling per day could reach the maxi- mum health benefit. Cycling more than 30 minutes per day at a PM 2.5 level above 160g/m 3 is not recommended. Carbon mitigation impact: DBS could reduce total CO 2 by 4.8 million tonnes annually, 3 due to kilometers avoided from private motorized modes. However, emission reduction is not as large as expected because most replaced trips are short-distance (first/last mile) and were previously completed by walking and public transport. Safety impact: The perceived safety was generally low among DBS users in the 12 cities. Only 7 percent of respondents reported feeling safe while cy- cling. The built-environment for cyclists is not improving fast enough to accommodate surging DBS usage. Neither released survey results nor academic or commercial studies in China have quantified the road safety risk difference between using DBS versus other types of bikes. Therefore, among total bike fatalities in China in 2018 (20,751), our analysis attributed 15,556 (95% CI 14,66916,443) to DBS, more than half of the total, based on its significant share of total cycling mileage. Policy Implications Lessons from DBS management in Chinese cities could serve as useful reference points for other cities that plan to adopt DBS systems. As these systems are widely adopted and used in China, local governments have experience in improving DBS management to enable a better built-environment and promote DBS as a sustainable solution. Some implications of relevant regulation and management are as follows: Fleet size management. Overall, cities evolved from a laissez-faire approach to proactive regula- tion on fleet size by capping the DBS fleet number with stringent management measures. Yet cities still need to develop scientifically based method- ologies to estimate the total DBS fleet and design incentive schemes for DBS operators to encourage DBS as a green and healthy transport mode. Performance-based evaluation. Setting up a KPI system to determine permit renewal/terHow Dockless Bike-Sharing Changes Lives: An Analysis of Chinese Cities IX mination based on operators performance not only allows the public sector to have a strong regulatory framework on fleet size management but also gives a strong incentive for operators to provide quality service. Regulated parking. Cities should set up DBS parking design standards, creating clear rules on how curb space should be used, especially at critical locations like intersections, public transit stations, schools, etc. Standardized technologies. To enable users to better follow the rules, cities should encour- age standardized technology applications on parking management, since these could en- hance the efficiency of parking management and save time and effort for both the public sector workforce and operators. Dedicated cycling facilities and safety design. Cities should introduce DBS with more dedicated cycling infrastructures and with higher safety design standards to improve accessibility of cycling as a preferred sustainable transport mode, by upgrading the Comprehensive Transport Plan, Non-motorized Transport Plan, and Street Standards. Road safety awareness and targeted education. Road safety awareness and targeted education should focus more on enabling a safer and healthier cycling environment. Future Study In the future, we will improve this study by conducting more sample surveys and continuous policy reviews. We will also select some pilot cities to carry out the following in-depth studies: (1) monetizing DBS cyclings net impact on health, climate, and the social economy; (2) assessing the overall disease burden avoided in terms of disability-adjusted life years; (3) assessing the impact breakdown by age, sex, type of disease, and other indicators such as equity and public service accessibility; (4) providing detailed and customized policy recommendations or solutionsX WRIHow Dockless Bike-Sharing Changes Lives: An Analysis of Chinese Citi
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