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Norway
National-level objectives
The zero-growth goal and climate-related cycling objectives
A guiding principle for the development of transportation in urban areas in Norway is the zero-growth goal (nullvekstmål). First introduced in the “Norwegian Climate Policy” white paper, it is defined as the goal “[…] of absorbing the growth of passenger transport in major urban areas through public transportation, bicycling, and walking. In and around urban areas, public transportation and bicycling initiatives shall be granted higher priority in the allocation of transport funding” (Norwegian Ministry of the Environment, 2012, 9). The goal was adapted as national policy in a subsequent parliamentary decision in the agreement on climate policy (Klimaforliket 2012; Norwegian Ministry of the Environment, 2012). As part of the country’s climate policy, the zero-growth goal was primarily developed to help reduce GHG emissions in the transportation sector (Norwegian Ministry of the Environment, 2012).
The agreement on climate policy of 2012 gave political momentum to the development of cycling and the zero-growth goal in the National Transportation Plan for the period of 2014-2023 (Norwegian Ministry of the Environment, 2012); thus, the goal to increase the modal share of cycling from 4 % to 8 % by 2023 was developed, while pointing out the public health benefits of active transportation (Ministry of Transport, 2013). After the 2013 parliamentary election, Stoltenberg’s social democratic government was replaced by a centre-right coalition under the leadership of Erna Solberg, which in turn released its NTP for 2018-2029 in 2017. In addition to discussing climate advantages, the NTP 2018-2029 emphasises the mobility and economic benefits brought about by the zero-growth goal as the development of public transport, cycling, and pedestrian infrastructure are significantly cheaper and more space-efficient compared to automobile infrastructure. Furthermore, the NTP 2018-2029 highlights that the zero-growth goal forms the basis for the development and state financing infrastructure for public transportation, cycling, and walking (Ministry of Transport, 2017).
In 2021, Solberg’s cabinet released the latest instalment of the NTP (for 2022-2033). In it, equality, increased quality of life, and contributing positively to public health, climate, and environment are the general objectives for the development of transportation and infrastructure in Norway (Ministry of Transport, 2021). Looking to the future, the plan provides a vision for the Norwegian transport system in 2050 to be effective, environmentally friendly, and safe, by (1) being more cost-effective, (2) using new technology effectively, (3) aiding Norway in achieving its climate goals, (4) realising Vision Zero (the objective of reducing serious traffic injuries and deaths to zero), and (5) providing better every day travel and improving the competitiveness of the private sector.
The Norwegian government used the NTP 2022-2033 to further develop the zero-growth goal to specify what aspects should be safeguarded and prioritised through land-use and transport planning in urban areas (Ministry of Transport, 2021). These aspects are anchored in different political developments.
Firstly, the zero-growth goal, according to the NTP 2022-2033, maintains its function as a tool to curb GHG emissions from automotive transportation in urban areas. This happens against the backdrop of Norway’s current climate goals, enacted through the Climate Change Act 2021 (Klimaloven 2021). The Climate Change Act aims to reduce Norway’s GHG emissions by 50-55% within 2030 and 90-95%by 2050 (taking the year 1990 as a point of reference). Through the Climate Change Act, the Norwegian commitment to the Paris Agreement’s 2°C-objective, as well as to its commitment to European cooperation on fighting climate change, is integrated into the country’s national legislation. Following a government assignment, a cooperation among the Norwegian Environment Agency, the Norwegian Public Roads Administration, and several other administrative bodies assembled the Klimakur 2030[1] report, which was released in 2020. As an analysis, it is an instructive document that outlines potentialities and measures for effectively cutting quota non-obligatory emissions. The research anticipates that the transport sector will be the greatest emitting sector between 2021 and 2030 (55% of anticipated emissions; Norwegian Environment Agency, 2020, 13). The greatest potential for cutting GHG emissions is identified in the road transport sector with possible savings of 11.8 million tonnes of CO2 between 2021 and 2023 (Norwegian Environment Agency, 2020, 53). The Klimakur report estimates that, as a measure for reducing carbon emissions, the zero-growth goal has the potential to reduce around 0.75 million tonnes of CO2 equivalents.
In addition to the framing of the zero-growth goal by Norwegian climate objectives and policy, the Norwegian Ministry of Health and Care Services (HOD) highlights the advantages cycling has for public health in its Action Plan on Physical Activity 2020-2029 (Ministry of Health and Care Services, 2020). The action plan’s overarching goal is to establish an exercise-friendly society where, regardless of age, sex, ability, and social background, there are good opportunities for physical exercise. The development of the zero-growth goal in the NTP 2022-2033 prioritises public transportation, cycling, and walking as effective measures for reaching this goal.
The newly developed zero-growth goal in the NTP 2022-2033 now targets GHG emissions, traffic flow, and air and noise pollution, which are to be addressed through effective land use and through the absorption of growth in traffic numbers by public transportation, cycling, and walking. Additionally, it is acknowledged that the zero-growth goal contributes to more attractive cities, with increased mobility and accessibility for the private sector. The goal also contributes to lowering GHG emissions from the transport sector, although the primary tool for achieving this objective is through the electrification of road transportation (Ministry of Transport, 2021).
Many different aspects and objectives, stemming from different aspects of Norwegian environmental, public health, and acquisition policy, have been synthesised into the zero-growth goal, making it both objective and development principle. The NTP 2022-33 acknowledges that the zero-growth goal is ambitious, and that increased cycling is an important component in its achievement, emphasising the government’s commitment to prioritising cycling during the plan period. Following the guiding objective of the NTP 2018-2029, the NTP 2022-2033 continues the long-term cycling objective of a national cycling share of 8% in rural areas and 20% in urban areas (Ministry of Transport, 2017; 2021). An evaluation by the Norwegian Centre for Transport Research (TØI) showed that if only the greater Oslo area reached the 20% modal share objective, national objectives of reaching a modal share of 8% nationwide would be fulfilled, highlighting the importance of urban areas in achieving national cycling objectives (Bjørnson Lunke & Grue, 2018).
Following the Norwegian general election in 2021, the coalition of the Norwegian workers party and centre party released the Hurdalsplattformen 2021-2025 as a basis for the coalition’s work during its legislature. In it, the government outlines its ambitions to develop the country’s transport sector and infrastructure along notions of social and environmental sustainability. When it comes to cycling, the platform document articulates that metropolitan areas should be developed with housing and workplaces so that passenger transport can increasingly be done by foot, bicycle, or public transport. The platform also suggests increased spending on national tourist routes, cycling and hiking trails, as well as adapting the norms for cycling and pedestrian ways (Arbeiderpartiet & Senterpartiet, 2021).
Currently the Norwegian Government under Gahr Større is working on a new National Transport Plan to be released in spring 2024. The release of this next transport plan (NTP 2025-2036) is scheduled one year earlier than usual in order to account for changes in the global economy and to more realistically reflect the status of Norway’s challenges regarding future transport (Regjeringen, 2022). According to the Minister of Transport, the plan must determine how to reach Norway’s climate goals while also proposing an efficient, safe, and realistic transport policy.
National cycling strategy objectives
Back in 2012, the Norwegian Public Roads Administration published a national cycling strategy for 2014-2023 to coincide with and act as a foundational document for the NTP 2014-2023. The strategy is a non-binding instructive document, but its role is to guide national cycling objectives (Statens Vegvesen, 2012). Such objectives include: formulating better design principles for infrastructure, establishing better cooperation among actors in infrastructure development, providing coherent and high-quality infrastructure, improving road safety, placing special attention on cycling networks surrounding schools, and increasing the number of children and youth who cycle to school to 80%. While there have been several new national transport plans since this cycling strategy was produced, it is unclear whether a revised strategy will be produced to coincide with the most recent transport plan.
Traffic safety and health-related objectives
Though not accompanied by a specific cycling strategy, several cycling objectives have been articulated in the latest NTP 2022-2033. Using the Vision Zero objective—zero traffic deaths or serious injuries by 2050—as a basis, the plan puts forth the traffic safety objective of reducing serious injuries and deaths in 2030 to a maximum of 350 (of which no more than 50 should be deaths; Ministry of Transport, 2021, 89). In conjunction with the NTP 2022-2033, the Norwegian government mandated the Norwegian National Public Roads Administration, the Norwegian Police, and other national associations and directorates to assemble the National Action Plan for Road Safety 2022-2025. This plan identifies a set of measures to achieve traffic safety objectives and to strengthen collaboration between different actors in traffic safety (Ministry of Transport, 2021, 89). For cyclists, it seeks to reduce the number of serious injuries and deaths in traffic by 25% within the plan period, while increasing the number of people who use a bicycle helmet to 75% by 2026 (Dobbe et al., 2021, 87).
As was the case in the NTP 2018-2029, the NTP 2022-2033 includes a Children’s Transport Plan (Barnas transportplan) organised as one chapter. Through the Children’s Transport Plan, the Norwegian government seeks to ensure that children’s needs in areal and transport planning receive sufficient consideration, and that children are educated to navigate traffic actively and independently. The plan emphasises children’s special role as daily users of the public transport network—be it as pedestrians, cyclists, or in public transport—as they commute to schools, playgrounds, or other free-time activities (Ministry of Transport, 2021.). Walking and cycling alone, with other children, or with adults are often the modes of transport children use to reach various activities, mostly because of convenience (NTP 2022-2033; Opedal et al., 2020). Seeing the advantages for public health among children and youth, the NTP aims to increase the modal share of children who bike or walk to commute up to 4 km to school to 80% (Ministry of Transport, 2021), thus keeping the objectives set in the Children’s Transport Plan.
Box 4. Summary of national-level cycling objectives in Norway
- Absorbing the growth of passenger transport in major urban areas through public transportation, bicycling, and walking. In and around urban areas, public transportation and bicycling initiatives shall be granted higher priority in the allocation of transport funding (zero-growth goal; Norwegian Ministry of the Environment, 2012).
- The zero-growth goal states that GHG emissions, traffic congestion, and air and noise pollution should be reduced through effective land use, and that personal transportation is absorbed by public transport cycling and walking (Ministry of Transport, 2021).
- Establishing an exercise-friendly society where, regardless of age, sex, ability, and social background, there are good opportunities for physical exercise. (Ministry of Health and Care Services, 2020, 18)
- It has to become easier and safer to travel by foot or bicycle and to choose active mobility over the car on short trips (Ministry of Health and Care Services, 2020, 11)
- Cycling makes up 8% of modal share in rural areas and 20% in urban areas (Ministry of Transport, 2021)
- Reduce serious injuries and deaths in 2030 to a maximum of 350, of which no more than 50 should be deaths; zero traffic deaths or serious injuries in 2050. (Ministry of Transport, 2021)
- Reduce the number of serious injuries and deaths in traffic by 25% between 2022-2025 while increasing the number of people who use a bicycle helmet to 75% by 2026 (Dobbe et al., 2021).
- Increase the modal share of children who bike or walk to commute up to 4 km to school to 80% (Ministry of Transport, 2021).
National-level mechanisms
There are several mechanisms in place that directly or indirectly support the achievement of Norway’s national cycling objectives. Some of them are holistic measures and tools that address several national objectives (of which cycling is merely one aspect), while others explicitly target the development of cycling.
Funding schemes
Urban growth agreements
For reaching the zero-growth goal, as well as the associated national cycling objectives for urban areas, the Norwegian government views urban growth agreements (byvekstavtaler, formerly bymiljøavtaler) as its most important tool (Ministry of Transport, 2021, 115). Through these agreements, the Norwegian government financially supports public transport, cycling, and walking projects. Specifically, the agreements aim to prevent growth in car traffic even as passenger transport increases in cities (Statens Vegvesen, n.d.). Legally binding, urban growth agreements are negotiated between the urban area (made up of multiple municipalities), the county, and the state. All parties commit to objectives regarding transport and spatial development. Equipped with a budget of NOK 80.1 billion for the plan period of the NTP 2022-2033, the urban growth agreements are primarily a financing mechanism for projects in areal planning and transportation, as the agreement consists of concrete projects that are financed through the state (Statens Vegvesen, n.d.). The Norwegian state contributes 50% of the funding for projects, while the other half must be financed by the municipalities, counties, and through road tolls.
Urban growth agreements grant greater autonomy to local authorities and can also enable multiple actors to work together across different governance levels. However, as Amundsen et al. (2019) point out, such agreements often depend upon road tolls to finance local measures, which can be locally unpopular and, in some cases, undercut financing power. Four large urban areas (Oslo, Bergen, Trondheim, and Nord-Jæren) negotiated and ratified urban growth agreements between 2019 and 2020. Additionally, the NTP 2022-2033 sets out to negotiate five further agreements with the urban areas of Tromsø, Kristiansand, Grenland, Buskerudbyen, and Nedre Glomma, all of which are transitioning from older incentive schemes to urban growth agreements.
For the urban areas of Bodø, Ålesund, Haugesund, Vestfoldbyen (Larvik, Sandefjord and Tønsberg), and Arendal/Grimstad, the NTP 2022-2033 introduces a new subsidy scheme, equipped with NOK 600 million for a 4-year planning period. By committing to a zero-growth objective and implementing target-oriented measures, the municipalities receive subsidies for smaller investments into cycling and pedestrian infrastructure as well as collective transport such as bus stops and transport hubs along national, regional, or municipal roads. For example, Bergen’s 2019-2029 urban growth agreement highlights the participation of Bergen, Alver, Askøy, Bjørnafjorden, and Øygarden along with Vestland county, which are dedicated to achieving the zero-growth goal through improvements in public transportation, walking, and cycling (Statens vegvesen, 2020).
Cycling city agreements
Cycling city agreements (sykkelbyavtaler and sykkelbygdavtaler) form an important component for working towards the advancement of cycling in Norway. Similar to urban growth agreements, a cycling city agreement is a legally binding financing scheme for projects and measures in individual municipalities, but with a special focus on cycling. Unlike the urban growth agreements, they are not negotiated between several different municipalities; rather municipalities negotiate individual agreements with their respective county and the Norwegian Public Roads Administration, in which they commit to cycling related objectives, measures, and financing. Further, the role of the Norwegian Public Roads Administration is limited to that of a facilitator and advisor, but does not participate financially; instead, the county shares the financial burden with the individual municipality. To be eligible for a cycling city agreement, the municipality must have ratified a plan for a main cycling path network. To date, almost 50 cycling city agreements have been signed by municipalities in 10 different counties (Statens Vegvesen, n.d.). The agreements have supported a variety of projects, such as in Kongsvinger Municipality, which contributes NOK 6 million matched by NOK 6 million from Innlandet County to implement measures for traffic safety, cycling, and walking to help achieve an objective of increasing the numbers and safety of cycling (Kongsvinger kommune, 2022).
Climate schemes
Klimasats is a subsidy scheme awarded through the Norwegian Environment Agency. The scheme supports local climate actions in municipalities and counties that help curb GHG emissions while also aiding local development. Annually, municipalities and counties can apply for funding for a variety of projects in planning, acquisition, construction, or transport from a funding pool (NOK 100 million in 2023). Since 2016, several municipalities have received funding for cycling projects—such as the construction of bicycle infrastructure or the advancement of cycling—amounting to approximately NOK 43 million dedicated specifically to cycling projects (Norwegian Environment Agency, 2022). Such projects include, for example, a circular economy project in Tromsø, which received NOK 200,000 through the climate scheme to provide residents with access to tools for repairing, recycling, and upcycling bicycles (as well as clothes and electronics; Norwegian Environment Agency, 2021). Another example is the so-called cycling hotel located by two metro stations in Bærum, which received NOK 4.16 million to ensure secure cycle parking and strengthen intermodal transport in the greater Oslo area (Norwegian Environment Agency, 2016).
Funding to support cycling among children
To reach the cycling objective advanced in the Children’s Transport Plan (a modal share of 80% for all school commutes under 4 km), the NTP 2022-2033 identifies several measures targeting children and teenagers. Cycling and traffic safety are to be advanced through investments of NOK 500 million. This includes a subsidy scheme to provide local incentives for the development of safer ways to schools and nearby environments (Ministry of Transport, 2021, 141).
Statutory national planning instruments
The Norwegian Planning and Building Act (2008) equips the Norwegian government with various national planning instruments: the national planning guidelines for coordinated housing, land-use, and transport planning is one of existing planning instruments which “aim to guide regional and local plans and to draw attention to and propose issues of national importance” (Huynh et al., 2022). Released in 2014, the guidelines stress that development should take place according to compact city planning which support sustainable transport modes like walking, cycling, and public transport. According to the guidelines, planning work should advance cycling and walking as a means of transportation, that coherent cycling and pedestrian networks should be developed in larger cities where cycling and walking are effective transport solutions, and public transport should adapt to cycling and walking modes to ensure an effective and continuous transport network (Kommunal- og distriktsdepartementet, 2014).
National expectations for regional and municipal planning are also instrumental in meeting cycling objectives. Formulated every 4 years by the Norwegian government, national expectations are presented in one non-binding, central document, which guides municipal and regional planning processes (Lidmo & Bogason, 2020). For example, the 2019-2023 national expectations encourage local governments to develop according to principles of transit-oriented development to “strengthen the foundation for living towns, increased public transport, cycling, and walking” (Ministry of Local Government and Modernisation, 2019. 21). The expectations also reflect the language of the zero-growth goal, stating that “passenger transport needs shall be met by public transport, cycling, and walking” (Ministry of Local Government and Modernisation, 2019, 25), and suggest improving the liveability and attractiveness of town centres as one way to achieve this.
Traffic planning
For achieving the objectives for traffic safety for cyclists, the National Plan of Action for Road Safety 2022-2025 introduces an abundance of measures targeted at the built environment, the traffic behaviour of cyclists and pedestrians, and the cycling and walking culture overall. For example, the Norwegian Public Roads Administration will provide cycling facilities on stretches of roads linked to the national road network and review rules and regulations around road visibility. At the local level, several large municipalities are expected to improve the design and road maintenance of local roads to address cycling and pedestrian safety, while county administrations will conduct road safety assessments of cycling routes and ensure that funding for implementing improvements is prioritised (Statens Vegvesen, 2022-b).
From a traffic planning perspective, the criteria for speed limits have also been reviewed with special attention to environments surrounding kindergartens and schools (Ministry of Transport, 2021, 151), and the inclusion of children in the planning process through methods such as barnetråkk or writing and drawing competitions are highlighted (Ministry of Transport, 2021, 153). Additionally, the so-called heart zones (hjertesone-tryggere skolevei) along school routes are an important measure that facilitates safer mobility to and from school (Trygg Trafik, n.d.-a). The zones are developed in cooperation with municipalities, Trygg Trafikk, the Norweigan Directorate of Health, Norwegian Public Road Administration, Police, Norwegian Cyclist’s Organisation, and local parents’ boards (Ministry of Transport, 2021, 151). The specific measures depend on the school and its particular context. For example, some heart zones include road marking and signage while others involve implementing design changes to ensure behavioural change from motorists (such as speed bumps or changes to the pavement; Oslo Municipality, n.d.).
Cycle superhighways
The concept of investing in cycle superhighways (sykkelstamveger) emerged in the NTP 2018-2029 as a mechanism to enable people to choose cycling as a means of transport for both shorter and longer distances (Miljøløftet, 2019). These separated cycle routes are designed for quick and direct cycling movement across regional and municipal roads. One of the first developments in this area was the 13-km route connecting Stavanger, Forus, and Sandnes (within Rogaland County; Klimapartnere, n.d.; Grønnestad, 2020). The cycle superhighway project began in 2018 and, as of spring 2023, three of the seven total sections have been completed (Bymiljøpakken, 2023).
Similar projects have been introduced on a smaller scale from municipalities such as in Bergen, where a a 7.8-km pathway has been under development to connect cyclists from Fyllingsdalen to central Bergen. The superhighway involves not only a dedicated cycle lane but also a 3-km tunnel for cyclists and pedestrians along the stretch between Fyllingsdalen and Minde, where the Kristianborg tram station is located along E39 (Miljøløftet, 2023; see Figure 5). Superhighways such as these provide the infrastructure for commuters to cut across urban areas (and through mountains). Both the Bergen and Stavanger superhighway projects are concretised within urban growth agreements (Ministry of Transport, 2021, 244-246). No other superhighways are mentioned apart from these in the current NTP.
Soft measures
There are several actors working to raise awareness or promote cycling through various avenues in Norway, mostly in connection to road safety, and mostly targeted towards cyclists rather than motorists. While wearing a helmet is not legally required, Trygg Trafik and Tryg Forsikring launched a digital campaign to raise awareness around the importance of wearing a helmet while cycling or operating other modes of urban micromobility such as e-scooters (Tryg Forsikring, n.d.). The Norwegian Cyclists’ Association also carries out a “visible cyclists” (synlig syklist) campaign each autumn and winter, which involves distributing free bicycle lights to cyclists (Syklistforeningen, n.d.), while county administrations encourage bicycle helmets and the use of reflectors in various ways, such as by participating in Reflector Day (Refleksdagen)—another campaign established by Trygg Trafikk back in 2006 (Trygg Trafikk, n.d.-b). (Unlike helmets, lights are a legal requirement for cycling.) These measures are all encouraged by the National plan of action for road safety 2022-2025.
Key actors
The review of the Norwegian national objectives and measures for the development of cycling has shown that many of the national cycling ambitions have been coordinated and, in many cases, synthesised with ambitions for increasing public transport and in the zero-growth goal. Thus, the development of cycling for the most part is not receiving undivided national attention, but is tackled primarily through the urban growth agreements, that target multiple aspects of transport development.
Regardless, there is a broad network, spanning vertically and horizontally across different layers of governance, that is involved in working with and towards Norway’s national cycling objectives.
The Norwegian Public Roads Administration is a central actor for the implementation of national transport strategy and policy. The administration holds responsibility over the development of the road and transport sector, including specifically the facilitation of cycling traffic along national roads. It is thus in charge of setting up several plans, that follow up on the objectives and policy directions outlined in the National Transport Plans, such as the Action Plan 2022-2027 (Gjennomføringsplan 2022-2027). The administration also plays a key role in negotiating urban growth agreements and coordinating the monitoring and reporting of the agreements once they are established (e.g., measuring traffic counts to use as the key performance indicator for the success of urban growth agreements; Statens Vegvesen, n.d.).
According to the National Cycling Strategy 2014-2023, the role of the Norwegian Public Roads Administration is mainly to incentivise and support other actors in the development of cycling (Statens vegvesen, 2012). It does this in various ways, such as by sharing knowledge among a cycling city network and providing handbooks for cycling design.[2] The Public Roads Administration operates as a knowledge facilitator in the cycling cities agreements. The institution also plays a key role in the negotiation and facilitation of the urban growth agreements, as it is responsible for laying the groundwork for the agreements by conducting surveys and potency analysis for the urban areas in question, representing the state in the negotiations with the counties and municipalities, and following up on the objectives agreed upon in the individual agreements.
More than 80% of the cycling infrastructure is under the mandate of counties and municipalities, which elevates them to the most important developers for cycling infrastructure on the ground. This also has implications for responsibility of maintenance and physical upgrading of existing infrastructure owned by the individual counties and municipalities.
In addition to government and administrative institutions, there are also many other organisations involved in the work of cycling development and national objectives. For example, to achieve traffic safety objectives, the Norwegian Council for Road Safety (Trygg Trafikk) and Norwegian Cyclists’ Association (Syklistens Landsforening) take up roles in facilitating campaigns for public engagement (Ministry of Transport, 2021).