Liz Kimmins is the new minister at the Department for Infrastructure (DfI). The sixth minister behind the steering wheel in ten years. For almost five of those 10 years no–one was driving.
Buried deep in her in–tray — beneath water infrastructure, crumbling roads, Belfast’s congestion, delays to the A5, back–logs at vehicle test centres etc — lies the Active Travel file. It has been shuffled up and down the in–tray for 10 years. It’s about to rise to the top.
What is Active Travel and why is it important?
Active Travel is getting around on your own fuel as opposed to burning fossil fuel. Cycling forms a large part of active travel — being extremely effective for urban journeys under 5 miles. In NI two-thirds of all journeys are under 5 miles. For these journeys it’s faster than a car in most cases.
Belfast’s recent attack of congestion was, in part caused by too many cars with no safe cycle alternatives. Congestion isn’t just a Belfast phenomenon – the picture is similar across NI. Cycling is an effective tool in tackling congestion and CO2 emissions while boosting health, the economy and productivity.
The Active Travel file is rising in the minister’s in–tray because the Climate Change Act (Northern Ireland) 2022 compels her to spend a minimum of 10% of the Departmental budget on active travel. Her Department currently spends about 1%. They are now scrambling to make up the shortfall by claiming road improvement schemes are cycling infrastructure. If this continues, or if they fail to effectively get to 10% in the next few years — they may face a legal challenge. So why haven’t they been investing more?
A Bicycle Strategy for NI
In 2014 the Giro d’Italia created enormous cycling momentum. Inspired, Minister Danny Kennedy (UUP, 2011–15) launched A Bicycle Strategy for Northern Ireland — a 25–year plan for safer, segregated cycle networks and Greenways across NI.
The strategy set the Department 10–year targets.
- 20% of all journeys under 1 mile, to be cycled
- 10% of all journeys between 1 and 2 miles, to be cycled
- 5% of all journeys between 2 and 5 miles, to be cycled
We’ve now reached the 10 year milestone — how have they been doing?
The key target—cycling journeys under one mile—remains stuck at 1%. NISRA data shows no progress on any targets since 2011. Clearly the strategy hasn’t been implemented. With no Executive and no minister in charge from 2017–20, DfI shuffled the strategic plan to the bottom of the in–tray. When COVID hit in 2020, and traffic fell to historic lows, newly appointed minister Nichola Mallon found her Department unprepared and flat footed. She quickly created a Walking and Cycling Champion to “change the culture in her Department” and launched the Belfast Cycling Network 2021—promising 180km of cycle lanes by 2031.
When Mallon departed in 2022, after another collapse of the Executive, DfI was left without a Minister again—the Department quietly scrapped the role of Walking and Cycling Champion and shuffled the Belfast Cycling Network to the bottom of the in–tray as well. Currently, barely 180 metres have been completed. In contrast, from 2020–24, Paris’ elected Mayor, Anne Hidalgo, rapidly built a 60km cycle network. Cyclists now outnumber motorists in Paris.
Who has control?
Transport powers are devolved to the 4 regions. England, Wales and Scotland devolve active travel powers down further to local authorities — who deliver government targets. Sadiq Khan (Mayor of London) is the highest profile example.
The RoI takes a similar approach with local authorities managing active travel delivery. The Republic also elected its first executive Mayor in Limerick in 2024 — on strong active travel policies. Dún Laoghaire Council’s Living Streets should be quickly adopted by other progressive councils.
We do things differently in Northern Ireland. Apart from limited Greenway responsibilities, all transport power is hoarded stiflingly by DfI.
What’s gone wrong?
Collapse
Without a minister to drive change and MLAs to scrutinise, Departments continue to do what they’re comfortable doing.
Scrutiny
MLAs lack in–depth transport and active travel knowledge—because they get no grounding at council level.
Delay tactics
The Department has published six active travel strategy/delivery documents in the last decade. I argue they’re designed to delay rather than deliver.
Progress reports
The Department publishes no updates on progress or spending.
Engagement
The most meaningful stakeholder discussions with the Department happen via Freedom of Information requests.
6 possible fixes
Devolve power
Any progress made in the past 10 years has been made by councils who have very limited Greenway powers. Give them more power – unlike Stormont they never collapse.
Elected Mayors
From Paris to London, Manchester and Limerick, elected mayors supercharge active travel. It’s time to explore this in Belfast & Derry cities.
Active Travel NI
DfT created Active Travel England to accelerate change in England. Active Travel NI would do similar.
Better scrutiny
The Department’s definition of active travel spending needs published for transparency and to ensure effective use of the 10% budget. Quarterly progress reports are needed.
Governance & accountability
The Belfast Cycle Network plan (p.9) called for a Programme Board with stakeholders to maintain momentum — it never happened. DfI need to develop a more open, accountable culture.
Head of Active Travel
The Department needs someone with a proven track record on delivering active travel schemes.
Before leaving office, John O’Dowd published the Active Travel Plan – Consultation, proposing cycle networks in 42 towns across NI. With under 1km built in Belfast in 10 years, it’s time to stop publishing and start delivering.
Stephen McNally is the Director of Cycul, a not–for–profit promoting cycle culture in Northern Ireland. You can follow Cycul on: Twitter & Bluesky.
