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Data, communication, and advocacy in Nordic cycling strategies

Signs like this one in Copenhagen make the data collection process transparent, inviting cyclists and other city-dwellers to see the measures themselves.
Source: James Cridland / Flickr
Data, communication, and political advocacy are crucial parts in developing cycling infrastructure, influencing behaviour, and increasing knowledge among cyclists as well as local and regional authorities. Based on a review of local and regional strategies from Nordic municipalities and regions participating in the Nordic Cycle Network
Cities and regions involved in the network and in this report include Aarhus, Copenhagen, Roskilde, Capital Region, and Region Midtjylland (Denmark); Helsinki, Tampere, Helsinki Region (Finland); Reykjavik, Capital Region (Iceland); Bergen, Oslo (Norway); Gothenburg, Helsingborg, Malmö, Örebro, Stockholm, Region Stockholm, Region Skåne (Sweden).
, these topics are well-integrated into authorities’ everyday work. Nevertheless, while there are numerous similarities, some differences and unique practices are present. Most notably, data and communication are primarily addressed on the local level, while regional authorities focus on other aspects, such as development of the broader regional infrastructure. The following sections examine these similarities and differences as described in the most recent Nordic local and regional strategies. However, in practice, cities are likely implementing a broader range of approaches than those explicitly described in the strategic documents. 

Cycling data collection in municipalities 

Most of the municipalities have specific data gathering procedures and collect similar data related to cycling. The most common indicators that municipalities observe are trends in cycling in different areas; time of day, week, or year of cycling; demographic distribution and socio-economic status of cyclists; type of bike used (conventional, electric or cargo bike); the purpose of travelling (to work, school, shopping, etc.); designated parking spaces near homes; and overall satisfaction of the city’s efforts to make cycling more accessible and convenient (Aarhus kommune, 2017; Bergen kommune, 2020; City of Copenhagen, 2011; City of Helsinki Urban Environment, 2020; City of Reykjavík, 2021; City Planning Helsingborg Committee, 2017; Gothenburg Traffic Office, 2015; Oslo kommune, 2015; Stockholms stad, 2022; City of Tampere, 2022). This data is oftentimes compared to other modes of travel, e.g. car or public transport. Some municipalities also compare the costs of such travel, highlighting the cost-effectiveness of choosing the bicycle.  
Local and regional authorities use various methods for collecting data, the most popular being automatic counters, placed strategically around key cycling paths. For instance, Copenhagen has a monitoring device on the Bryggebroen Bridge, Stockholm has one on Skanstullsbron bridge, and Helsingborg on Hävertgatan (City of Copenhagen, 2011; City Planning Helsingborg Committee, 2017; Stockholms stad, 2022). These automatic devices track cycling traffic flows and provide valuable data about cycling trends. Usually, the automatized counters are supplemented by randomised manual counting, which also includes tracking the types of bikes that pass by (Gothenburg Traffic Office, 2015). Municipalities tend to collect and/or synthesise data annually or every two years, after which changes are tracked to highlight the impact of, e.g., infrastructure modifications, or to make a compelling case for investing in future initiatives (Bergen kommune, 2020; Roskilde kommune, 2017). 
Surveys are also a frequently used method for gathering cycling-related figures. Aarhus, for instance, has conducted surveys inquiring about the habits of wearing helmets when cycling (51% of cyclist self-report to have worn a helmet during their last cycling trip) or having specialised lights on bicycles during dark hours (90% of cyclists self-reported to have lights on bicycles during their last trip in the dark; Aarhus kommune, 2017). Another example of surveys comes from Stockholm, where according to different surveys, 60-70% of residents have access to a well-functioning bicycle. The latest citizen survey shows that of those who own a bicycle, 65% report using them at least 1-2 times per week (Stockholms stad, 2022). Bergen carried out a survey where a representative group of residents provided answers on their cycling habits and expectations about cycling infrastructure and safety. For younger respondents, questions were also given about children’s habits for cycling (Bergen kommune, 2020). 
Sense of security and numbers of accidents are monitored extensively across the municipalities as well. In Swedish municipalities, data on accidents are primarily collected through the Swedish Transport Agency’s reporting database for traffic accidents, called Strada (Swedish Traffic Accident Data Acquisition; City Planning Helsingborg Committee, 2017; Gothenburg Traffic Office, 2015; Stockholms stad, 2022). The database gathers information from both police report traffic accidents as well as emergency hospital reports. Local polls on safety are also conducted to a significant extent, aiming to regularly measure the perceived safety and related issues when cycling (City of Copenhagen, 2011; Oslo kommune, 2015; City of Tampere, 2022). Gathering data both on accidents and perceived safety can provide valuable data on the relationship between objective risk factors and individuals’ subjective sense of security. 
Oslo municipality has a particularly intricate system of gathering and storing cycling-related data. To reduce conflicts between different sustainable transport modes, improve access to data for city planners, and better control data quality, the city developed a geodatabase for green transport, including cycling. It stores data about bicycle infrastructure, projects, winter maintenance priorities, and other important initiatives. The municipality also uses 3D camera and AI technologies to evaluate infrastructure projects by identifying road users’ movement patterns to highlight their interactions and conflict points (Jorun Andenes, 2023). 

Communication actions and strategies 

Nordic municipalities devote considerable attention to communicative measures aimed at promoting cycling and increasing its popularity among residents. Most municipalities run various types of campaigns directed to the public or a specific target group. These campaigns are usually complemented by events, conferences, or other fora and methods that form dialogue between authorities and the cyclists. Key communication efforts identified within the policy review include branding of the city as a cycling city, educating young people and newcomers about cycling, providing cycling maps for cyclists, as well as other campaigns to improve the cycling experience. 
There are different approaches to marketing and engraining cycling into the identity of the city. For instance, Aarhus has developed an Aarhus cycling city brand
 (Aarhus cykelby) aiming to make cycling more popular. The brand seeks to be visible in schools and kindergartens to introduce cycling to young people, and to newcomers to the city to present cycling as an integral part of the Danish identity and to allow visitors to experience Aarhus from a local’s perspective. In addition, Aarhus used to have a temporary Cycling Library (cykelbibliotek), where residents could borrow special types of bicycles and receive guidance on how to properly and safely prepare their bikes for use. The municipality also supports short-term bicycle renting services for tourists. They aim to make bicycle facilities more visible to the public, thereby strengthening the visibility of the Aarhus cykelby brand (Aarhus kommune, 2017). These initiatives were incorporated into a prioritization plan outlining the city’s key actions and communication strategies (see Box 1). For instance, there are detailed interactive maps of Denmark, where regional
 and national
 cycling routes, among other things, are laid out for cyclists to plan their route (ruter.dk, n.d.; udinaturen.dk, n.d.). 
Box 1. Aarhus municipality’s communication initiatives prioritisation list (Source: Aarhus kommune, 2017) 
  1. Preparation of bicycle maps 
  2. Preparation of information material about Aarhus cykelby in several languages 
  3. Campaigns aimed at improving traffic behaviour 
  4. Behavioural projects focusing on testing and gathering knowledge about drivers and barriers in connection with cycling 
  5. Campaigns to promote cycling ad cycling culture among children 
  6. Campaigns to promote cycling among citizen groups who cycle less than others (health equality) 
  7. Loaning out special bicycles via the Bicycle Library 
  8. Promoting cycling as an attractive form of transport for everyone (e.g. promoting electric bicycles) 
  9. Preparation of a design manual for Aarhus Cycling City 
Some municipalities also participate in national campaigns, such as Roskilde’s “We are biking to work” (Vi cykler til arbejde).
 They also offer cycling courses for migrants who may not have experience with cycling (Roskilde kommune, 2017). In Bergen, similar learning initiatives are offered for children to educate, train, and encourage them to cycle more actively. Additionally, the city aims to strengthen communication channels between citizens and the public sector, fostering dialogue on cycling by sharing information about ongoing and future cycling projects (Bergen kommune, 2020). For example, in Helsingborg, such dialogue is fostered through an app called “A better Helsingborg” (Ett bättre Helsingborg) where people can leave messages to the municipality (City Planning Helsingborg Committee, 2017). 
To organise the municipality’s cycling-related actions systematically, Helsinki has also developed certain measures categorized into five themes. One of the themes is dedicated to marketing and communications where plans for developing bicycle traffic monitoring operations, updating the marketing strategy, developing and implementing the communication plan, and updating the cycling map are laid out (City of Helsinki Urban Environment, 2020). 
An effective communication strategy is essential for attracting more cyclists, and Gothenburg municipality considers communication as a key part in making the city an attractive city in which to cycle, alongside factors like infrastructure and maintenance. The city’s communication strategy emphasises image communication, product communication, behavioural communication and communication at construction sites (Gothenburg Traffic Office, 2015). Activities and campaigns usually cross several communicative domains. Image communication seeks to carry over the message that cycling is an inherent part of the city which Gothenburg prioritizes. Some examples include cycling race events or cycling conferences. Product communication refers to the need to have high-quality infrastructure, maintenance, support, and services, which need to be clearly presented to inhabitants, so they are aware of what the city is doing to make cycling more attractive. For instance, a public vote was held on the lighting system and the introduction of a cycling prioritization measure, both of which generated significant media attention. Behavioural communication aims to have more people cycling. Since the municipality does not have a direct contact with cyclists, these initiatives are carried out through cooperation with schools, universities, and workplaces. Some examples include a traffic educator that works with schools and a bicycle-friendly workplace initiative directed at interested employers. Communication at construction sites seeks to inform cyclists of ongoing and planned construction that might affect their daily cycling routes. It also aims to inform cyclists about why the specific construction work is carried out to support transparency and trust-building (Gothenburg Traffic Office, 2015). 
Nordregio working paper 2026:1