Bicycle infrastructure for the ‘Interested but concerned’: a literature review of global trends and local insights from Sydney’s cycling network

Urban cycling has gained prominence globally as a sustainable transport mode, yet participation in Australia remains low despite strong latent interest. This paper examines strategies for engaging the ‘Interested but Concerned’ cohort; individuals willing to cycle if safety concerns are addressed, through a literature review of international and domestic bicycle planning documents. Drawing on 57 plans across 34 jurisdictions, the study identifies three dominant infrastructure themes: the mainstreaming of physically separated bicycle paths, the formalisation of quietways and low-traffic neighbourhoods, and the emergence of protected intersection designs. These approaches aim to reduce cyclists’ level of traffic stress and improve perceived and actual safety. The paper situates these findings within the New South Wales context, evaluating the State Government’s Cycleway Design Toolbox and its alignment with global best practice. Evidence from the City of Sydney demonstrates the effectiveness of interested but concerned-oriented infrastructure: since the introduction of separated cycleways in 2011, cycling trips have increased by 187%, with mode share of trips to work reaching 15-19% in some renewal precincts. However, delivery across Greater Sydney remains fragmented. Persistent barriers include political will, lengthy project timelines, high costs, and limited funding. The paper concludes that addressing the needs of the interested but concerned cohort, coordinated investment and faster delivery of separated infrastructure is critical to achieving substantial modal shift. Local and international experience underscores that designing for comfort and safety can unlock latent demand and position cycling as a mainstream urban transport mode.Practitioner pointersThe single most effective intervention for increasing cycling among those identifying as interested in cycling but concerned about safety, representing the largest sub-section of the population, is a connected network of physically separated bicycle paths. International and Sydney-specific evidence shows these facilities significantly boost both perceived and actual safety.Quietways and low – traffic neighbourhoods provide an essential complementary tool, particularly on local streets where separated paths may not be feasible. Vehicle speeds of 30 km/h and lower, and filtered permeability can create safe, low – stress conditions supporting broader network continuity.Intersections remain the highest – risk environment for cyclists, and protected intersection designs are critical to delivering an all – ages – and – abilities network.The paper identifies a persistent delivery gap in NSW: despite strong state government policy frameworks, councils outside the City of Sydney have delivered very little separated infrastructure. Slow approval processes, limited state government funding, and a lack of political leadership remain major barriers to scaling best practice.