Exploring the geographical equity-efficiency tradeoff in cycling infrastructure planning

Abstract

Cycling is affordable, healthy, and sustainable, but access to destinations on low-stress safe cycling routes in most cities is both limited and unevenly distributed. Many cities are expanding cycling networks to improve safety, increase cycling mode share, and increase diversity in access to cycling, however resources remain limited which requires prioritization of infrastructure. When proposed infrastructure locations are optimized to provide the highest average access to opportunities using a utilitarian definition of accessibility, marginalized groups and locations may be further left behind. This occurs since the greatest gains to network connectivity, using a utility definition, come from expansions inside or directly adjacent to the densest network areas. We compare utilitarian and equity-driven planning strategies for cycling network expansion and explore tradeoffs in spatial coverage, equity, and efficiency, using Toronto, Canada as a case study. We find that optimizing accessibility in several small regions instead of city-wide leads to an infrastructure plan that is more spatially dispersed. Further, we show that an optimization model targeting low-access areas produces an infrastructure plan with more regions meeting a minimum threshold of accessibility but with lower average accessibility gains, indicating the presence of an equity-efficiency tradeoff. We also find that infrastructure projects that maximize a region's accessibility to jobs are often located outside that region, challenging political perceptions of "local" infrastructure and benefits. These results inform planning, advocacy, design, and policy, and shed light on spatial and socio-demographic equity tradeoffs in deciding where to add cycling infrastructure.