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In this Explainer, find out...
Why is bike ridership in Singapore so low?
What is Singapore doing to make the island more bike-friendly?
Will these policies succeed in increasing bike ridership in Singapore?
Introduction
Concerns over carbon emissions, a desire for convenience and speed, and the potential for daily exercise all draw commuters to cycling as part of their daily commute. Further, more Singaporeans are adopting cycling as their choice of recreational exercise. All these suggest that Singapore should develop a robust cycling infrastructure to satisfy the city-state's cycling demand. In fact, Singapore has already implemented several policies that encourage cycling. However, commuters’ concerns prevail, hindering the growth of bike ridership in Singapore.
In this Policy Explainer, we will investigate the reasons behind low bike ridership in Singapore, what Singapore is doing to encourage cycling, and whether these policies will succeed.
Cycling in Singapore
A Brief History
Pro-cycling policies are surprisingly a relatively recent phenomenon. In the 1960s, there were three times as many bicycles as cars and motorcycles combined. However, as disposable incomes rose, bike ownership fell. Soon, transport planning began to revolve more around buses and trains as the primary forms of public transport, while a comprehensive road network was built for private motor vehicles.
In the 1990s, the National Parks Board (NParks) and Town Councils worked to develop cycling infrastructure by creating park connectors and cycling tracks in public housing estates. However, these efforts were largely ad hoc rather than nationwide and aimed more at recreational commutes.
Only as the popularity of cycling and personal mobility devices (PMDs) took off in the 2000s, did transport policymakers shift their focus back to cycling as a form of last-mile transport. This means formal efforts to encourage cycling as a mode of transport are relatively new. In fact, it was just about ten years ago in 2013 when Tampines was the first HDB estate to have a completed dedicated cycling path network.
Reasons for Low Bike Ridership
Yet, bike ridership in Singapore remains low. As recently as 2023, only two per cent of commuters primarily cycled to work. This phenomenon can be attributed to several reasons.
First, both physical and digital infrastructure gaps exst. For example, some parts of Singapore still do not have cycling paths, making for a more inconvenient commute. There is also a lack of support from popular online maps like Google Maps for those who only want to cycle on park connectors.
Second, safety concerns are not well addressed by the current bike infrastructure. In cities like Amsterdam and New York, bike lanes are often integrated into the existing road network, reallocating space from roads to bicycle paths (see Figure 1). These dedicated cycling paths enhance safety by physically separating pedestrians, cyclists, and motorists, reducing the risk of accidents from overlapping transport modes.
In contrast, most of Singapore’s cycling paths are shared with other pedestrians (see Figure 1). This means there are usually only visual demarcations between pedestrian footpaths and cycling paths. The likelihood of accidents increases for both cyclists and pedestrians along narrow yet shared paths.
All these make cycling more inconvenient, deterring potential commuters from picking cycling as an option in their daily commute.
Why We Should Cycle More
That said, there are a plethora of reasons to encourage Singaporeans to cycle more. For one, cycling is a form of active mobility, that is, relying on one’s physical effort to travel from place to place. To that end, promoting cycling as a means of commute will allow more Singaporeans to exercise, leading to enhanced fitness and health and consequently improving one’s well-being.
Moreover, cycling is a sustainable alternative to motorised vehicles and public transport. Cycling is an effective form of green transport — driving a typical passenger vehicle emits about 4.6 metric tons of carbon dioxide (CO₂) annually while travelling by bicycles do not release any harmful emissions. The integration of cycling into transport networks thus contributes to a more sustainable future.
Lastly, increased bicycle ridership will also enhance Singapore’s urban livability. Rapid urbanisation and the increased possession and usage of motorised vehicles have led to greater traffic congestion and air pollution in cities. A transition to cycling would alleviate some of these perennial issues and enhance the urban environment for city dwellers.
Enhancing Cycling Infrastructure in Singapore
Over the years, many initiatives have been undertaken to expand Singapore’s cycling infrastructure (see Figure 2).
One overarching initiative that has laid the foundation for the development and planning of Singapore’s cycling infrastructure is the Walking and Cycling Design Guide (WCDG), introduced by the Urban Redevelopment Authority (URA) in 2018. It seeks to provide comprehensive guidelines for developers, engineers and industry practitioners in the design and integration of cycling infrastructure in urban spaces.
Another notable initiative is the Walk Cycle Ride SG vision set out by Singapore’s Land Transport Authority (LTA) in 2021. It outlines a new vision for an inclusive city with a transport system that enables everyone to enjoy the city.
Beyond the WCDG and Walk Cycle Ride SG, initiatives to improve cycling connectivity can be broadly classified into three categories — improving both intra-town and inter-town connectivities, and other supporting infrastructural developments.
Improving Intra-Town Connectivity
One development to improve intra-town connectivity is the creation of cycling-friendly towns. These towns are purposefully designed to offer cyclists a convenient commuting experience within their community. Tengah for instance is set to have the first “car-free” Housing & Development Board (HDB) town centre in Singapore, with roads, parking facilities and services plying below ground (see Figure 3).
This innovative design will allow cyclists to travel to various key amenities in the estate such as transport nodes, hawker centres and shopping malls safely and efficiently without the interference of vehicular traffic. The enhanced safety would lead to higher bike ridership, especially among those initially hesitant to cycle due to safety concerns.
Building more intra-town cycling paths can also enhance the convenience for commuters cycling around their neighbourhoods. Since the launch of the National Cycling Plan in 2012, LTA has completed about 55 km of intra-town cycling paths in six estates. It aims to further provide 34 towns and estates with a comprehensive cycling network for daily short-distance journeys by 2030. This development is expected to yield positive results as towns with cycling networks have consistently higher cycling rates between 1.5 to 3.3 per cent, compared to other towns which have cycling rates generally at one per cent or below.
Improving Inter-Town Connectivity
Besides developments to improve intra-town connectivity, the Government has also embarked on several initiatives to improve cycling connectivity between different estates.
The construction of the Park Connector Network (PCN), which was first conceptualised in 1990, has greatly improved inter-town connectivity for cyclists. The PCN is an islandwide network of linear ‘green corridors’ linking major parks and nature areas across Singapore (see Figure 4). It spans 380 km, offering a safe, accessible, and scenic environment for cyclists to travel around Singapore.
Apart from PCNs, LTA also aims to enhance inter-town cycling connectivity through the Islandwide Cycling Network Programme (ICN), which is an update of the previously outlined National Cycling Plan. Introduced in 2020, this project aims to further expand existing cycling path networks to around 1,300 km islandwide by 2030. This will provide cyclists with seamless connections from one HDB town to another, facilitating more convenient and accessible inter-town commutes across the island.
To encourage more Singaporeans to cycle to work, the Government has also devised plans to enhance connectivity between residential areas and Singapore’s Central Business District. Future projects include the construction of the North-South Corridor (see Figure 5), which will connect the northern region of Singapore to the city. Such infrastructure can further enhance cycling connectivity across the city, making it possible for residents, even from more distant neighbourhoods, to travel to the city centre by cycling. This would thus encourage more people to take up cycling.
Other Supporting Infrastructural Developments
As cycling networks expand, other supporting infrastructure such as bicycle parking spaces and cyclist safety features are also being developed to improve cycling experiences.
The availability of ample bicycle parking spaces has facilitated last-mile connectivity for many cyclists. Most residential areas and transport nodes are within a 5-minute walk to a bicycle parking facility. There are currently 254,000 bicycle parking spaces across the island, with 3,000 more bicycle parking lots expected at MRT stations by 2025. By integrating cycling with other modes of public transportation, cyclists can enjoy a greater variety of travelling options.
Separately, the installation of dual bicycle rack systems under HDBs (see Figure 6) is also a novel solution that increases bicycle parking capacity without space constraints in land-scarce Singapore.
As cycling on roads poses significant challenges and safety concerns for cyclists, authorities have also implemented various infrastructure-based measures to enhance cyclist safety.
First, on-road cycling has been made possible recently with cycling lane demarcations on roads that are often occupied by heavy vehicles (see Figure 7). One example is along Tanah Merah Coast Road, where a 10km on-road cycling lane has been created. This has allowed for a clear separation of paths for cyclists, pedestrians and motorists, improving safety for all.
Second, measures have been put in place to ensure a safe distance between cyclists and pedestrians, especially on shared road spaces. Dedicated bicycle crossings built at many pedestrian crossings (see Figure 8) and visible safety markings near bus stops (see Figure 9) both serve to alert different road users to exercise caution, significantly reducing the potential risk of collision.
Third, apart from on-road safety, infrastructure such as bicycle wheeling ramps (see Figure 10), which enable cyclists to push their bicycles across pedestrian overhead bridges without the need to carry them, have also reduced the risk of accidents and physical strain.
Effectiveness of Infrastructural Developments
Increased Popularity of Cycling
Surveys show that cycling has doubled in popularity: in 2020, 10 per cent of Singapore residents aged 13 and above reported cycling in the past four weeks, compared to just five per cent in 2019. This sharp increase can be partially attributed to the COVID-19 pandemic, as restrictions prompted many to take up outdoor activities like cycling. This general increase in ridership could also be attributed to the improved infrastructure that has made cycling a more viable and appealing option.
Issues To Be Addressed
While the Government has expanded the distance and coverage of cycling networks, the safety risks associated with on-road cycling, particularly on roads without dedicated cycling lanes, remain salient. Cycling on roads is seldom practised by everyday cyclists because roads are dominated by heavy and fast-moving motorised traffic. Furthermore, most roads in Singapore still lack cycling lane demarcations, meaning that cyclists must share the road with motorised vehicles. Some cyclists may choose to ride on narrow pedestrian paths instead, but this also poses a safety hazard to themselves and other pedestrians. Thus, cycling may still not be a safe or practical option for many.
On this note, Copenhagen’s approach to on-road cycling can serve as a reference for Singapore. Besides dedicated on-road cycling lanes, traffic lights in Copenhagen are coordinated in favour of cyclists, especially during peak hours. This allows cyclists to travel seamlessly on roads without stopping at every junction. On roads that are more accident-prone, authorities have also reduced the speed limit of motor vehicles and prohibited heavy goods vehicles. These measures have greatly enhanced the safety of cyclists travelling on roads.
Other Perennial Problems
Beyond safety risks, Singapore faces other perennial problems when it comes to promoting cycling as a popular mode of transport.
To begin with, space constraints in land-scarce Singapore impose physical limits on the expansion of cycling networks and infrastructure. This is because trade-offs exist when allocating land for bike-friendly developments at the expense of other uses, such as roads and pedestrian paths. Moreover, in mature and built-up towns, new cycling paths necessitate the repurposing of road space and adjustments to existing facilities, posing a challenge for urban planners.
Separately, driving remains the fastest and most convenient travel option for most, especially when it comes to long-distance travel. For those without a private vehicle, Singapore’s extensive bus and Mass Rapid Transit (MRT) network is the next best alternative, where cycling is merely used for last-mile connections. Cycling remains the last option for most Singaporeans, as well as those whose travelling distances are much shorter.
Finally, Singapore’s hot, rainy and humid climate naturally deters people from cycling. A lack of end-of-trip facilities such as showering facilities at workplaces was touted as one of the main reasons holding people back from adopting cycling as a mode of everyday transport even with well-developed infrastructure.
Conclusion
All in all, while efforts have been made to improve Singapore’s cycling infrastructure and connectivity, cycling remains an underutilised mode of transport in Singapore. It remains to be seen whether the Government will be able to turn this reality around, especially given the perennial problems that plague cycling. Nonetheless, for Singaporeans willing to cycle as a means of commuting, the expanded cycling network and supporting infrastructural developments have no doubt made their cycling experience a more convenient and pleasant one.
This Policy Explainer was written by members of MAJU. MAJU is an independent, youth-led organisation that focuses on engaging Singaporean youths in a long-term research process to guide them in jointly formulating policy ideas of their own.
By sharing our unique youth perspectives, MAJU hopes to contribute to the policymaking discourse and future of Singapore.
The citations to our Policy Explainers can be found in the PDF appended to this webpage.
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