4/ pilot project of non motorized transport of...

Gender Analysis of World Bank Transport Projects in Lima, Peru: Bikepaths and Busways / Lara M. Gomez 42

4/ Pilot Project of Non Motorized Transport of Metropolitan Lima 19

The Metropolitan Municipality of Lima (MML) created the Programa Metropolitano de Tranporte NoMotorizado (Non-motorized Transport Metropolitan Program) PMTNM in 1990 seeking to promote the use ofbicycles as an alternative and complementary means of transport intended to mitigate the problem of urbantransport in Lima.

The MML, through a donation from the Government of the Netherlands, commissioned an initial study toexplore the possibilities of implementing an experimental project on non motorized transport in Lima-Callao. The elaboration of the plan (1991-1992) by the Metropolitan Planning Institute (InstitutoMetropolitano de Planificacion – IMP) included the identification of possible areas for the construction ofbikepaths, and the analysis of their suitability in promoting the use of bicycles. The resulting “Plan integralde transporte vehicular no motorizado y construccion de ciclovias” provided the basis for the constructionof the bikepaths.

The plan was intended to provide a transport alternative for poor people in Lima, and one of the coreconsiderations for its implementation was that “public transport service to the low-income areas isirregualr, has insufficienta capacity or is non-existing, especially to new settlements of the poorest [… andthat] the growing demand for cheap transport in the outlying areas cannot be met and existing publictransport services are limited and unreliable”.20 According to a survey conducted in July1993 by CUANTOS.A.21, 88 percent of young workers were willing to use the bicycle for their work trips.

Two major factors were identified as constraints to the use of bicycles at the time the project wasdesigned:• The high price of bicycles (ranging from $160.00 to $300) and no access to credit for the poor to

purchase bicycles; and• The absence of safe bicycle ways

Based on the above mentioned plan, loan 3717-PE, signed by the World Bank and the government of Peru onJune 3rd 1994, included the Non-Motorized Transport Pilot Program (Proyecto Piloto de Transporte NoMotorizado - PPTNM) as one of its components. This component was to be executed by the MML, with$3’100,000 financed by the Bank, and $1’000,000 from municipal funds. This project component wascompleted on June 30, 2000.

The PPTNM was made up of four sub-components:1. Construction of bikepaths along main arteries (Oscar R. Benavides – Guardia Chalaca, Universitaria and

Tomas Valle).2. Promotion and educational campaigns.3. Provision of credits for the purchase of bicycles: PlanBici.4. Monitoring and evaluation of the program.

This section seeks to analyze the role gender considerations have played in the design, development andresults of each of the sub-components of this project. Many of the conditions identified initially wouldchange rather quickly on the following few years, affecting the results of the program. For instance,coverage and access to public transportation are not a problem anymore for Lima residents, especially infully urban areas such as the industrial district of Lima-Callao where the PMTNM bikepaths wereconstructed.

19 The following section draws on information from World Bank project documents, monitoring reports prepared by thePontificia Universidad Catolica del Peru, the evaluation study prepared by Raul Moreano Mejia in 1999, the focus groupdiscussions, personal interviews with local authorities and experts, and from interviews with PlanBici clients.20 World Bank Staff Appraisal Report – PERU Transport Rehabilitation Project, Feb 17, 1994.21 CUANTO S.A., Encuesta de opinion a empleadores y trabajadores sobre transporte no motorizado (opinion survey ofemployers and workers on non-motorized trnasport), Lima, July 1993.


• Focus Groups

The focus group findings to which this section makes reference concern the sessions conducted in Lima inJune-July 2000 relative to attitudes and opinions about cycling in general, and of use of the bikepaths.

As in the previous sections, the focus groups results call attention to the general opinions about certainissues, including quotations from the responses of participants. Again, quotations have been presented withthe profile of the speaker in parentheses next to his or her opinion, indicating gender, socioeconomic level,and age.

In Lima-Callao, bicycles would be generally used by young men to exercise, go for rides with friends, or torun small errands around the neighborhood. In many families, children would go for rides close to theirhouse, always under adult supervision to avoid theft.

There are some cases where men use the bicycle to go to work. This is the case of employees who need togo from door to door, such as collectors, private mail company postmen, or gas distributors. Also, self-employed workers such as painters, plumbers or carpenters use the bicycle to go to their client’s homes orbusinesses, whenever they don’t need to transport bulky or heavy equipment. The gardeners (“jardineros”)carrying the lawn mower on the back of their bicycle are perhaps the most classic example of this user.

The cases where women utilize the bicycle for work, shopping or errands are referred to as exceptional.Among the participants, a minority of men and an even smaller minority of women use bicycles. Somefemale participants refer having used bicycles in the province cities of the coast.

• General Attitude Towards The Use of Bicycles

Bicycle ownership

Not all focus group participants –specially level D- own bicycles in their household22. For level C, mostparticipants have bicycles that were given to them as children and that are currently used by other childrenin the house, or not used at all.

In most cases, the bicycle is a sort of toy given to children at around the age of two. Only exceptionallysome participants –young men and women- have bought bicycles for themselves, for exercise or to play, andonly a small minority with the intention of using it to go to work. This last use has been abandoned byalmost all the respondents due to accidents, thefts or broken bicycles. Very few women have bicycles oftheir own.

Positive and negative aspects on the use of bicycles

The main advantages mentioned for the use of bicycles are that riding it keeps you fit, and that it allows forsavings in transport expenses. Additionally, the exercise would help combat the stress which is typical oflife in the big cities. Only a small minority of the younger participants mentions that it helps avoid trafficcongestion and that it would contribute to lessen pollution.

“It is healthy, you can relax” (several groups)

“You are not stuck in traffic” (Man, C, 18-24)

“It does not contaminate” (Man, C, 18-24)

“My father uses the bikepath, takes him 5 to 10 minutes, and he saves S/.2daily. That’s a can of milk!” (Woman, D, 18-24)

22 14 focus groups were held, with 8 participants each, for a total of 112 men and women.


Given those advantages, however, the majority insists in the characteristics of Lima-Callao, which make theuse of bicycles as a means of transport very difficult. The most sensitive issue seems to be the risk ofphysical injuries caused by accidents when sharing the street with motorized vehicles. The participantsinsist in the fact that public transport drivers don’t respect cyclists, and some participants have beenvictims of such accidents themselves.

“It is too dangerous” (several groups)

“A bus hit me, and I hit a bridge. The bicycle was useless” (Man, D, 30-50)

“I had an accident with a combi. I never used the bicycle again.” (Man, D,30-50)

“To me, the bicycle would be useful for the travel I make. The problem isits horrible to ride among the killer combis!” (Woman, D, 30-50)

A second kind of risk –generalized in the whole city- is theft. All of the participants agree that there is apattern of bicycle theft in Lima, specially if the bikes are new, good quality ones. Women and children areat greater risk of being robbed, because it only takes one thieve to steal their bicycles. But there are alsogangs of three to four youngsters that dare to rob men’s bicycles.

“I would have to go by an area where drug addicts hang out – my bicyclewould be stolen the first day!” (Woman, C, 30-50)

“We gave a bicycle to our son, but it was stolen” (Woman, C, 30-50)

“If they’re three men, they’ll take it away, even if you’re a man yourself”(several groups)

Among the dangers of using bicycles for women, is sexual harassment –specially verbal- on the part of youngmen, gangs or groups of male children.

Finally, all participants agree that the use of bicycles does not allow for well-groomed appearance whengoing to work. Women wouldn’t be able to ride bicycles wearing heels and skirts, not even with dresspants. All participants feel like you can only ride a bicycle appropriately and comfortably when wearingsports clothes or shorts –in the case of men-. Other than the clothes, they say riding makes you sweat,ruining the appearance required for work or studies.

“I think I would convey too sporty an appearance. That would not be goodfor my work” (Woman, B, 8-24)

“[To ride a bicycle] you would need to wear loose sweat pants, and youcan’t go to work like that” (Woman, C,18-24)

“I can’t get [to work] all sweaty, or wearing sports clothes” (Man, C, 18-24)

“I can’t imagine a woman dressed like her [points to one of the participantswearing dress pants] riding a bicycle.” (Man in Mixed Groups, C, 30-50)

In general, there is the view that the use of bicycles can work well for other realities –as in the case of theSouth Africa video shown- but not in Lima-Callao because of its characteristics: chaos, violence, lack ofappropriate parking, need of a bicycle culture.

“Our country is not adapted for biking. Go to the bank on a bike?” (Man, C,30-50)

“In Lima: impossible. In the provinces it is used more” (Woman, C, 30-50)

“They don’t let you go to school riding a bicycle” (Man, D, 18-24)

“At the [education]Institute there’s no place to park it” (Man, C, 18-24)


The following graph presents the advantages and disadvantages for the use of bicycles:

(+)Keeps you in shape

Advantages SavingsRelaxing

(-)

SlowerSexual harassment for women

Disadvantages Untidy appearance / PerspirationRisk of TheftRisk of Accidents(+)

Currently, there is not a culture favorable to the use of bicycles as a means of transport, especially bywomen. According to the graph, perceived disadvantages would outweigh advantages in number andrelative importance. While the advantages are mainly fringe benefits of using the bicycle as a means oftransportation, the advantages deal with issues such as personal security and road safety.

Use of bicycles by women

The above issues point out to the fact that it is more problematic for women to ride bicycles, because oftheir greater vulnerability on traffic, in the event of assault, because of their clothing, and because of therisk of verbal sexual harassment. In fact, very few women ride bicycles in Lima23. In the C and D focusgroups, most of the older women don’t have bicycles, and don’t know how to ride them. On the contrary,most men know how to ride.

Women express fear of being hurt while riding the bicycle, of falling and getting bruised or hurt in any way.They say it would not be proper for them to appear at their work or study place with a scratch or bruise.

The use of bicycles by women is also thought to cause health problems specific to their gender. Someyoung women believe it can cause problems to the sexual organs and urinary tract, a young level D manbelieves it can cause women to be deflowered.

“[riding a bicycle] causes discomfort in your intimate parts, you getcystitis” (Woman, D, 18-24)

“If you ride it a lot, you get scalded” (Woman, D, 18-24)

“There’s the myth that they lose their virginity” (Man, D, 18-24)

Because of the body position on the bike, some men consider that women riding bicycles look sexy andprovocative, generating comments from men on the street. This is another reason why women feel theyneed to wear special clothing when they ride bicycles: they feel they can’t wear sleeveless shirts, or shirtswith a low neck, or shorts. This is also the reason why some level C older men don’t want their wives tobike.

“Because of their position on the bicycle, women look very provocative”(Man, C, 18-24)

“They look sexy” (Man, C, 30-50)

23 According to the monitoring reports, only 2-3% of bikepath users are women.


In view of these difficult scenario, focus group participants were asked to think of the arguments theywould use to promote the use of bicycles by women (“What would you tell your sister/wife/mother if youwanted her to ride a bicycle?”), and also the arguments they would use to prevent them from riding (“Whatwould you tell your sister/wife/mother if you wanted her not to ride a bicycle?”). The following chartsummarizes the arguments for and against the use of bicycles by women, as expressed by men and bywomen, respectively:

USE OFBIKES BYWOMEN

Arguments to PROMOTE the use ofbicycles by women

Arguments to PREVENT the use of bicyclesby women

Women’sideas

ü I would save moneyü I would look good / be in good shape

û I don’t want to spend on a bicycleû I get too nervous riding a bikeû I could hurt myself, get on an accidentû What will people think of me? – It is not well

seen that a woman rides a bicycle.

Men’s ideasü You would look good, you would relaxü It’s good for your healthü You can use what you save to buy clothesü You could go to the market faster

û Too riskyû You look uglyû Use threats

Perception of women who ride bicycles

In order to evaluate the perception of women who do ride bicycles by the community, focus groupparticipants were made to play a role-playing game. They were presented with sketch drawings of twofictitious 30-40 year old women: Rosa and Maria. They were told that Rosa is an enthusiastic bike rider whouses her bike to go to the market, to pick up her son from childcare, and to run almost all her errands. Onthe other hand, Maria would never ride a bicycle, she is afraid to, and has never learned to.

The following are the comments made by participants of both genders about the women who –like Rosa-ride bicycles, and of the women who –as Maria- do not.

Initially, there is a strikingly positive opinion of women who ride bicycles, voiced by both men and women.Women bike riders are perceived as healthy people, of joyful and active personality, free from stress, withnice bodies, happier and nicer than women who use public transportation. Some men mention that thesewomen would have better sex lives and marriages due to their greater vitality.

“She [Rosa] will have a better [sex] relationship with her husband – shewould never be tired!” (Man, C, 30-50)

These women, however, are also perceived as risk seeking, as people who don’t respect the rules, who haveto go out on the street and fight the traffic.

“They will say she is more liberal, loose” (Man, D, 18-24)

“She’ll be stressed because of the traffic” (Woman, C, 30-50)

Rosa Maria


Although some participants, specially younger, think that the people in her neighborhood will see Rosa as anormal person, the majority thinks that her neighbors will necessarily comment about a woman –specially ifshe already has children- who uses the bicycle for her daily chores.

Men believe she would get compliments from men on the street about her nice body and her good legs;that other women will gossip but that they will consider her smart and thrifty, justifying her use of thebicycle as a savings for her household. Thus, the use of the bicycle as a means for work apparentlylegitimizes it.

“ They will compliment her on her nice body” (Man, D, 18-24)

“If it [her use of the bicycle] is because of work, then they will say it is ok”(Man, D, 18-24)

The women believe she would be criticized for doing something that is characteristic of young people ormen.

“They’ll say she thinks of herself as a girl” (Woman, C, 30-50)

Maria, the woman who does not use a bicycle, is regarded as a traditional housewife: more discreet,serious, timid and with the problems typical of her age. Some people consider her to be stressed andcomplaining all the time. Others think she likes to be well dressed and not be subject to an accident orassault.

The following chart presents the a summary of the general perception of the participants about the womanwho rides bicycle (Rosa) and the one who doesn’t (Maria):

WOMEN ASCYCLISTS

Woman who bikes (Rosa) Woman who doesn’t bike (Maria)

Positive

ü Enthusiastic, not tired, strong, youngü Happy, friendly, niceü Less stressed, relaxedü Healthy life, vitalityü Intelligentü Nice body

ü Well dressed, like a secretaryü Home-lover

Negative

û Worried because of insecurity in thestreets

û Liberal, looseû Risk seeking

û Lazyû Home-loverû Serious, boring, grouchyû Achy, fearful, a “nun”û Fat

Reasons

• Liking, therapeutic use• Sports• Savings

• Fear of being robbed• Fear of an accident• Doesn’t know how to ride a bike• Thinks biking is for men• Fear of runs on her stockings

What menwould say

• Good legs, men compliment her• Gossip• She’s a hard-working woman

Whatwomenwould say

• She’s crazy• She thinks she’s a young girl• She looks masculine

Rosa Maria


• Bikepaths

The initial feasibility study24 determined that most of the workers employed in the industrial area of Lima-Callao resided on the northern cone of Lima and Callao. Thus, it was determined that the industrialdistrict25 constituted an interesting zone where a pilot project for the use of bicycles as means of transportfrom homes to workplaces could be implemented.

The infrastructure component of the PPTNM included the construction of bikepaths along four mainavenues. The Tupac Amaru bikepath was never built, however, and those resources were added to thepromotional campaign funds.

Avenue Between Roadand Sidewalk

On theMedian

Length ofAvenue (Km)

Total length ofBikepaths (Km)

1. Oscar R. Benavides-Guardia Chalaca

2 0 11 22

2. Universitaria 2 0 10 203. Tomas Valle 0 1 3 34. Tupac Amaru 2 0 17.5 35

TOTAL built 24 45

The Oscar R. Benavides- Guardia Chalaca bikepath connects the districts of Lima Cercado with Bellavistaand Callao Cercado. It starts in Plaza Dos de Mayo (Lima), using Av. Oscar R. Benavides, which connectswith Av. Guardia Chalaca to get to Plaza Garibaldi (Callao). This bikepath was built between the road andthe sidewalk, using a curb wall to separate the bikepath from traffic.

The Universitaria bikepath connects Av. La Marina, Av. Venezuela, Av. Oscar R. Benavides and Av.Argentina, joining the districts of Lima Cercado, San Martin de Porres and Los Olivos. This bikepath wasalso built at the sides of the road.

24 A study by CUANTO S.A. in 1993 determined that the origin of about half of the workers found in the industrial zoneof Lima-Callao was Callao, Lima Cercado , San Martin de Porres and from Comas, Carabayllo, Independencia and LosOlivos, all in the northern cone of Lima.25 On the axis of Av. Oscar R. Benavides and Guardia Chalaca and its extension to Av. Universitaria, Av. Tomas Valle andAv. Tupac Amaru

Origin of Industrial District Workers

17%

16%

7%

12%

48%

Callao

Lima Cercado

San Martin de Porres

Comas, Independencia,Los Olivos, CarabaylloOther districts in Lima


The Tomas Valle bikepath connects Av. Tupac Amaru with Av. Universitaria, joining the districts ofIndependencia with San Martin de Porres and Los Olivos. This bikepath was built on the median, with anaverage width of 3m.

Most of the focus group participants26 knew of the bikepaths in Av. Arequipa and Av. Salaverry. Those wholive in the area, also knew those in Av. Universitaria and Av. Tomas Valle. These two would be used by portworkers and factory workers to get to work.

“When I was employed as a factory worker, I used to take the bikepath, wehad parking there [at the factory]” (Woman, D, 18-24)

“Those who work in the port use it, it takes them straight there” (Man, D,30-50)

Most participants think favorably of the bikepaths, in that they provide shelter from traffic and the lack ofrespect from the public transport drivers. In that sense, they would be useful and contribute to the savingsthat the bicycle brings when used in place of public transport.

“There’s no cars, it is more secure” (several groups)

“You save” (several groups)

As can be noted in the map provided (Annex), however, the bikepaths do not form a network. It is rather agroup of longitudinal routes along main avenues that always needs to be combined with the use of otheravenues where there are no bikepaths. There are very few users who travel exclusively along theseavenues. Other main avenues in the area, such as Av. Argentina, or Av. Faucett hold very heavy traffic, andhaving to cross these avenues or share them with the motorized vehicles –even if for a short distance- is apowerful deterrent for bicycle usage.

“There’s not many [bikepaths] and when they end, you have to use theroad, you can’t get anywhere just using the bikepaths” (Man, D, 18-24)

“If there were [more] bikepaths, bicycles could be used” (several groups)

The municipal Instituto Metropolitano de Planificacion (IMP) was designated as the consultant in charge ofthe engineering design of the bikepaths, following the identification of routes by CUANTO and the team ofDutch consultants.

During the construction and afterwards, the residents and neighbors of the selected avenues reportedlyopposed the construction of the bikepaths27 on the area between the road and the sidewalks. Theirresistance stemmed from the claim that the bikepaths affected parking space and areas destined forgardens. In commercial and industrial areas, the design did not adequately allow for the necessary parkingspace and ready access of vehicles to businesses. In this industrial area there is a need for maneuver andparking space for large trucks as well as private cars.

Residential and commercial areas alike viewed the project as an invasion, and felt as if the front of theirhouses or businesses was being affected without prior consultation or participation on their part. Thisoversight entailed significant costs for the project, both monetary (bikepath curb walls have been destroyedby neighbors at several points to allow for passage to their garages) and in terms of image and acceptanceby the intended beneficiaries.

“They [bikepaths] reduce the sidewalk” (Woman, C, 18-24)

26 Only groups of socioeconomic levels C and D were asked about their knowledge and experience with the bikepaths,because the existing bike lanes were built in neighborhoods of these socioeconomic levels.27 Moreano Mejia, Raul, Estudio de Evaluacion Proyecto Piloto de Transporte No Motorizado, 2000, and personalinterviews with Fernando Gordillo (Municipalidad Provincial del Callao) and Luis Hernandez (PMTNM).


Another feature that was not considered is appropriate space for bus stops where public transport users canwait for their buses without occupying the bikepaths. This is one reason why bikepaths are continuouslyinvaded by pedestrians, who are unsure as to how to behave with respect to the bikepaths. Often,pedestrians act as if the bikepaths were an extension of the sidewalk. Also, street vendors utilize this spaceto park their carts and sell to by passers who are using the sidewalks, and motorists may use this space topark their cars.

“Motorcycles use the bikepaths” (several groups)

“Cars block the intersections” (Man, D, 30-50)

“Pedestrians cross them” (Man, C, 30-50)

The perception of safety by users of the bikepaths depends upon whether these are constructed on themedian, or on the sides of the road. While the construction of the latter encountered resistance on thepart of residents and users, because of the use of space and because of safety concerns with respect tomotorized vehicles; the construction of bikepaths on the median has been widely accepted. Thesebikepaths are considered more secure, even though they force the cyclist to cross before the flow of trafficin order to get to a side street.

“They are too close to the sidewalk, and the little curb wall is too short.Bikepaths that on the median are better” (Woman, C, 18-24)

Maintenance and cleaning of the bikepaths is an area where responsibilities were not well-defined.Maintenance works had to be undertaken due to the problems with the neighbors mentioned above. It wasnecessary to create access to garages and businesses, and to repair portions of the bikepath curb wall thatthe neighbors had destroyed in order to allow for access to their garages. Signaling was also provided orreplaced where necessary.

“They are dirty and full of potholes” (Man, C, 18-24)

Cleaning of the bikepaths was incorporated as part of the infrastructure sub-component of the project inorder to allow for disbursements. The bikepaths that fall on the districts of San Martin de Porres, Los Olivosand Independencia did not have cleaning services, or the district municipalities were not willing to providethese for the bikepath. Therefore, the PMTNM and the World Bank agreed to contract these services, whichwould prevent the bikepaths from looking abandoned and unattractive. The annual cost of providing thismaintenance cleaning in the bikepaths in these districts is estimated to be $30,00028. Again, the attitudeof the municipal governments in the districts towards the project is non-collaborative, evidencing theselocal authorities don’t feel as part of the project, even though it is intended to benefit their communities.

The avenues and districts crossed by the bikepaths are a particularly insecure area of the city, wheredelinquency is very high. The risks of theft and sexual harassment is high, especially for women, andbikepaths do not provide any kind of protection against this.

“Drug addicts are there, and they’ll rob you” (Man, C, 18-24)

“A woman is at risk or being molested or harassed” (Woman, D, 18-24)

28 Moreano, Raul, Estudio de Evaluacion Proyecto Piloto de Transporte No Motorizado, 2000.


The following chart presents a summary of the key positive and negative opinions on the use of bikepaths:

BIKEPATHS General Women Men

Positive aspects • Security • Savings

Negative aspects

• Not very many• When they end, you are

forced to share the roadwith motor vehicles

• Motorcycles, pedestriansinvade it

• Dirty, garbage• No signals

• Risk or sexualharassment, verbal andphysical

• Reduces the sidewalk• Too close to the road

• Badly maintained• Parked cars block it• Telephone booths

obstruct it

• Promotional and Educational Campaigns

This sub-component of the PPTNM was intended to publicize among actual and potential users of bicycles,as well as among authorities and policymakers and society in general, the characteristics and advantages ofthis means of transport. Also, specific messages directed to the identified target groups in the area ofinfluence29 were to be identified.

The promotional and educational component had two phases:

• Initially, the promotional campaign was entrusted to the Civil Engineering School of the UniversidadNacional de Ingenieria, located in the influence area of the bikepaths, in July 1996. The work wasperformed using promoters, pamphlets and brochures, visits to factories and businesses, radioadvertising and through a forum. This consultant eventually failed to deliver the services requested,and the contract had to be rescinded.

• After this experience, in 1998, it was agreed within the PMTNM that a social communications campaignheaded by an advertising agency needed to be launched. The campaign would not only promote theuse of bicycles as an alternative means of transport, but also develop a credit access campaign amongpeople who live or work in the area of influence of the bikepaths. Clear credit allocation benchmarkswere set for this contract, and the contractor was in charge of engaging clients for the credit program.

Only two firms submitted proposals to carry out the campaign. The fact that the terms of referenceindicated that the firm selected to carry out the campaign was to develop the credit access campaign(6,000 credits in 1 year’s time) to workers who resided in the influence areas of the bikepaths by hiring ateam of promoters who would gather credit applications probably discouraged many advertising agenciesfrom competing.

On November 1998, after a series of administrative delays, a year’s contract was signed between the MMLand Centro EURO RSCG. Meanwhile, given the fact that there were no significant advances in the promotionof bikepaths or the number of credits awarded during the first stage of promotion, it was decided that thebalance left in 1998 for the infrastructure component of the PPTNM (which would not cover the cost ofbuilding the 35Km Tupac Amaru bikepath) would be derived to reinforce the promotional campaign.

On January 1999, Centro EURO started its campaign through radio and newspaper advertising, while onFebruary 1999 the PlanBici credit program promotional campaign was launched.

29 The area of influence of the project is defined as 2Km on each side of the avenues where the bikepaths were built.


The social communications campaign was mainly carried out through ads in newspapers and radio stationsidentified by EURO as those preferred by the beneficiaries.

The managers of businesses that could have an interest in signing an agreement to benefit their workerswere contacted directly after a census of all businesses in the influence areas was prepared. This census ofbusinesses was conducted by four promoters hired by Centro EURO. They registered 9,771 total workers in231 firms, without recording how many male or female workers there are on each firm. The informationgathered included: name of the business, address, type of business, number of workers, and averageworker’s income.

Messages and Images Used on the Social Communications Campaign

This section evaluates the “gender sensitivity” of the social communications campaign launched by CentroEURO to promote the bicycle credit program. This analysis is based on the examination of the images andcontents present in a sample of the graphic and radio material30 used in the campaign.

The objective of the advertising campaign was stated by Centro EURO in their proposal for the advertisingcampaign, as:

“To encourage the massive use of bicycles, as an alternative means of popular transport,utilizing the municipal bikepaths, with purchase at low prices and easy terms for payment.

Its use provides personal benefits, increases independence and promotes good health”

The campaign would be structured in three stages:• To generate and promote the purchase of bicycles• To instill in the population the use of bikepaths• Awareness campaign

Apparently, Centro EURO is still working on the first stage of their proposed strategy, for there is noevidence of work in the second or third stages.

The creative approach submitted by EURO proposed the use of well-known TV characters who are widelyknown by the popular segments of the Lima-Callao population to be the spokespersons of the campaign.Centro EURO proposed the utilization of “Los Amigos de la Risa” (Friends of Laughter), TV characters whoimitate well-known public figures, such as the Mayor of Lima, Alberto Andrade (“el alcalde”) or TV talk-show host Laura Bozzo (“Laura Chozo”).

The characteristics of these characters that, according to the advertising agency, would make themappropriate for the campaign are:

• Great opinion impact• Messages presented in a clear, simple fashion• Promote high motivation among the target segment.• Original and entertaining• Fully identified with popular sectors• Represent valid characters.

A sample of the communication pieces (flyers, brochures) used in the campaign will be analyzed in terms oftheir gender sensitivity. The flyers were distributed in the streets at the districts where the program isbeing offered, while the brochure was distributed at the businesses visited by the promoters.

30 Centro EURO proposal, graphic material and transcription of the radio messages aired provided by Jenny Samanez,PMTNM.


The brochure is very similar to the press ads which appeared in the newspapers of highest readership forthis segment31. A focus group study contracted by Centro EURO found that press ads had greater impacton the target group than radio ads, and this determined that a greater effort be placed on newspaperadvertising.

Piece #1: Flyer

31 According to the media plan for 1999, between January and July132 press ads had been contracted in the followingnewspapers: “El Chino”, “Aja”, “El Bocon”, “Todo Sport” and “El Comercio”. 4,547 radio ads had also been contractedat the following radio stations: “Comas”, “Inca”, “Pirata”, “Callao”, “Star” and “Ke Buena”.


Elements of the communications piece Observations

Amigo del cono norte y Callao

Friend of the northern cone and Callao

• Uses the masculine form of “friend”

Te presentamos la manera mas cómoda desacar plan

We present the best way of getting yourself aplan

• This phrase plays with the word plan, which is part ofthe name given to the bicycle credit program PlanBici.

• In popular slang, “sacar plan” means for a man to findhimself a girl to spend some time with. This is anexpression which applies only to men.Te

xt

Plan Bici

… bici nueva, pagando sencillo!

Plan Bici

… new bike, paying with change!

• This phrase plays with the word sencillo, which meanseasy, simple, and also means coins, change.

Photo of a blue mountain bike with no rider.The background photo shows a well-maintainedbikepath lined by trees and a garden thatseparate it from the flow of traffic to the left.There is a service road to its right.

• Although the fact that there is no rider might imply thatanyone could ride the bicycle, the fact that it is a man’sbicycle gives a hint as to the kind of rider that will usethe bicycle on the bikepath.

Imag

es

Logo of PlanBici: freehand drawing of male andfemale riders with the words Plan Bici.

• Contrary to the wording of the flyer, and to the presenceof the men’s bicycle, the logo shows a male and afemale bicycle riders.

The analysis of the flyer evidences a clear bias toward male users of bicycles, and toward prospective maleclients of the Plan Bici. Not only does the flyer exclusively address male users through the use of the word“amigo”, but also it uses an expression such as “sacar plan” which is typical of men, and is only used amongmen. In a sense, riding the bicycle would appear associated to courtship or flirtation of men towardwomen. By using a bicycle, the flyer states, it will be easier for men to get themselves a girl.

Finally, the message appears somewhat contradictory, as it presents the logo of PlanBici, where a male anda female rider are shown. This issue, however, could be counterbalanced if there were othercommunications pieces that addressed women specifically, but there are none.


Piece #2: Brochure

The brochure analyzed has two pictures which have been labeled (1) and (2) for the purpose of the analysis.In the first photo, the four characters appear standing behind a red men’s mountain bike and pointingtowards it. The second page of the brochure shows the four characters again, this time each with a men’sbicycle. None of the bicycles shown have baskets.

Brochure, side (1)

Gender Analysis of World Bank Transport Projects in Lima, Peru: Bikepaths and Busways / Lara M. Gomez

Brochure, side (2)


Character Text (1) Text (2) Observations

“Lalo”(TV sports commentatorLalo Archimbaud)wearing shorts anddressed like a young boy

Atención, chocherita delcono norte… !!!

Listen up, northern conepal… !!!

Primicia-primicia!!! Todastienen dos ruedas!!!

Get the scoop!!! They all havetwo wheels!!!

• Uses the slang word“chocherita”, used by amongmen as an affectionate wayto address each other.

“El Alcalde”(Mayor Andrade) -wearing a tie,businesslike.

Arma la jarana con elPlanBici…

Start the party withPlanBici…

Saca el modelo que quierasal credito desde 20 soles al

mes!!!

Get whichever model you likeon credit, and pay about 20

soles a month!!!“Brother Pablo”TV preacher “HermanoPablo” wearing a suitand holding his bible.

Pagando sencillo…

Paying with change…

Como caídas del cielo!!!

Heaven sent!!!

• Both “El Alcalde” and“Brother Pablo” are well-dressed, businesslike,middle-aged characters whosport a generous belly.

“Laura Chozo”(TV host Laura Bozzo) –portrayed by a malecharacter dressed as awoman, wearing a shortskirt and high heels.

… Y llévate tu bicinueva, jo-jo-jo!!!

And get yourself a newbike, ha-ha-ha!!!

Para que ahorres y montesfeliz de la vida !!! Jo-jo-jo!!!

So you can save and ridehappily!!! Ha-ha-ha!!!

• This character appearsraising her skirt up to thethigh, and showing her hairyleg.

Upon a preliminary observation, we observe that only “Lalo”, who is a sports commentator and is portrayedas a young boy, is shown riding a bicycle, while “El Alcalde”, “Brother Pablo” and “Laura Chozo” arestanding next to parked bikes. The necessary comparison between these two groups of characters indicatesthat while well-dressed people may approve of the use of bicycles and find it positive, they will not ride thebicycles themselves, as it would not be appropriate for their dress and appearance.

The “Laura Chozo” character deserves a separate analysis of its own. It is a man dressed as a woman,therefore a woman with masculine characteristics, such as her hairy legs. The gesture of pulling up herskirt and showing her leg conjures up the sexual implications of a woman riding a bicycle that have beenmentioned before. She seems to be reminding the recipients of the message that if a woman rides abicycle, her legs will show. At the same time, being a masculine woman promoting the use of the bicycle,this character reinforces this negative perception of female bike riders by the community.

The effects of this careless communications campaign have been made evident by the results of the PlanBicicredit allocation campaign. In fact, one of the main questions posed by the World Bank with regard to thebicycle credit program was the discrepancy between the number of bicycle credits awarded to women (955credits to July 2000, or 22% of all credits) and the number of women actually riding bicycles on thebikepaths as recorded on the monitoring documents, which ranges between 18 and 40. In fact, out of thetotal number of bikepath users, women represent only 2%. This percentage has held constant for the pastcounts as well 32.

Part of the discrepancy between these two percentages, which has held constant for the past two years,may be explained by the fact that the messages utilized in the social communications campaign wereclearly not sensitive to prospective women bicycle riders. Not only did they not address the issues thatwomen are concerned with, but they portrayed an image of a masculine woman as a bicycle rider, and thathighlighted the sexual overtones that some men attribute to women bike riders.

32 Monitoring document, Pontificia Universidad Catolica del Peru Transport Engineering Area in June of 2000.


According to the Caja Metropolitana33, which administers the credits, out of a total of 4427 credits awardeduntil July 2000, 21.57% have been awarded to women. On the other hand, only 2 to 3% of the users of thebikepaths are women34.

These and other issues pertaining the PlanBici campaign and credits will be explored in the followingsection.

33 Information provided by Maria del Pilar Novoa, Business Manager at the CM.34 Pontificia Universidad Catolica del Peru – Area de Transporte, Monitoreo del Proyecto de Transporte No Motorizado,Junio 2000.

Total Credits Awarded by Gender

22%

78%

Male

Female

Total Credits Awarded by Gender by Year

2175

16201

642

91

515

49

594

99450

250500750

1000125015001750200022502500

1996 1997 1998 1999 2000

num

ber o

f cre

dits

Male Female


• Bicycle Credit Program (PlanBici)

The provision of low-cost credit for the purchase of bicycles constituted a high priority on the project. Itwas meant to ensure that low-income groups had access to affordable mobility. The proposed Bank loanprovided credit facilities up to $600,000 through a revolving fund (Fondo Rotatorio). The credits would beof up to $91.00 which would enable provision of approximately 17,800 during the first 24 months. Theprincipal objectives of the credit scheme, according to the Staff Appraisal Report prepared by the Bank,were to:

• Enable the poor to purchase a bicycle, thus increasing their mobility and reducing theirtransport costs; and

• Introduce popular, low-cost bicycle through credit conditions (maximum bicycle price of$100 including tax) which will create demand in this market segment.

The bicycle credit program was implemented as “PlanBici”. It provides credits for the acquisition ofbicycles for low-income people who work and/or live in the area of influence of the bikepaths project. Itsobjective is to increase the number of users of the bikepaths, focusing on a specific target group, definedby income and area of residence.

Credits were promoted by the promoters hired by Centro EURO, and approved the Caja Metropolitana (CM),an independent financial entity related to the MML that manages the credits. In 1996 the CM and the MMLsigned the Convenio de Administración del Fondo Rotatorio, funded with World Bank resources of up to$600,000 to be disbursed in three installments of approximately $200,000 each.

The CM understands the project’s intent to reach low-income workers in the areas of influence of thebikepaths. To them, however, this is an objective that conflicts with their goal to minimize risk in the loansthey administer. They can achieve this second intention by working with established businesses that canact as intermediaries between their workers and the CM. In 1999, only 5% of the new credits approved weremade to individuals, while 95% were extended through agreements with firms. Only 42.5% of individuals’credit applications were approved, while 78.1% of contracts through agreements with firms wereapproved35, evidencing the fact that the latter is the CM’s preferred approach.

If an enterprise engages in the program, employers withhold the portion of the workers earnings thatcorresponds to their monthly quota for their bicycle credit, and pay it to the CM. Doing this, however, wasnot as easy as it seems, for often formal workers (even low-skilled) earn more than the establishedminimum monthly earnings to qualify for PlanBici. In the beginning, the maximum earnings were set at$150/month or less, and were later raised to $200/month or less, a change that allows to capture more ofthese formally employed workers.

The proportion of formally employed workers in Lima, however, is quite low, and informality in Peruremains at a constant rate of about 45% of urban employment36. If the logic of contacting formal workers isfollowed as a preferred policy, a significant number of urban residents who work independently would beleft out of the credit program. Surprisingly, households in Peru are found to be more likely to advance iftheir income stems from the informal sector than from the formal sector37. Apparently, the formula toinclude these individuals into the credit program without increasing the debt ratio of the Fondo Rotatorioadministered by the CM has not been found yet.

This is a source of concern for the respondents who participated in the focus group discussions. Althoughsome showed interest in credit programs such as PlanBici, many consider it would only be available to

35 Moreano, Raul, Estuido deEvaluacion Proyecto Piloto de Transporte No Motorizado, 2000.36 World Bank Country Study 19651: “Poverty and Social Developments in Peru, 1994-1997”37 Ibid.


formally employed workers, with stable jobs, which is the case of only a few. None of the focus groupparticipants had previous knowledge about PlanBici.

“You can’t buy a bike if you don’t have a stable job” (Man, D, 30-50)

During the first stage of the program, two individual credits were awarded to so-called “Grupos Solidarios”–groups of around 10 people that spontaneously come together and act as each other’s guarantors in orderto get bicycles. One of these groups paid all quotas satisfactorily, while in the other one of the groupmembers swindled the others and ran away with their money.

An important source of concern is the fact that the women’s grassroots organizations of the concerneddistricts, such as Vaso de Leche or Comedores Populares have not been considered as possible “GruposSolidarios” who could be beneficiaries of PlanBici. CESIP, an NGO working in the norhern cone of Lima,reports that in San Martin de Porres, none of the Comedores or Vaso de Leche women’s commitees had beencontacted. Whenever these women knew about PlanBici, it was because they had learned about it throughthe radio or newspaper ads, but not because they had been invited to participate directly.

Currently, the eligibility criteria, as advertised by the promoters of the program, are as follows:

Eligibility for the programIndividuals• Must live or work in Cono Norte districts, or Callao, close to the bikepaths.• Monthly income below S/800.00 (about $200.00).• Co-signer is homeowner or owns other property.• Light, water or telephone receipts paid up to date.• Photocopy of DNI (national identification card).• Sketch of the location of their home• Credit request form correctly filled out and signed by the wife (married men).• Income and patrimony declaration of the co-signer.

Individuals employed by businesses• Must live or work in Cono Norte districts, or Callao, close to the bikepaths.• Monthly income below S/800.00 (about $200.00).• Light, water or telephone receipts paid up to date.• Photocopy of DNI (national identification card).• Sketch of the location of their home• Credit request form correctly filled out and signed by the wife (married men).• Letter of the employer to the CM agreeing to withhold the monthly payments for the bicycle from theworkers paycheck, or to pay for the client in case of defection.

Businesses• Buy the bicycles exclusively for workers who live or work in the Cono Norte districts or Callao.• Letter of the employer to the CM agreeing to withhold the monthly payments for the bicycle from theworkers paycheck, or to pay for the client in case of defection.• Photocopy of DNI (national identification card).• Credit request form correctly filled out and signed by the wife (married men).• Sketch of the location of their home.• Workers can access this credit only if their monthly income is below S/.800.00.• Light, water or telephone receipts paid up to date.

As can be noted, the wording used in the eligibility criteria is directed toward male clients, not only asshown by the use of masculine nouns in the Spanish version, but more directly through the indication thatmarried men need to have their wives also sign the credit request form. This is a clear signal that theprogram has been conceived to serve male clients as the primary beneficiaries.


According to CM officials, administration of PlanBici has so far meant a loss for them. Initially, theycharged 6% of the amount of the credit, which for a $90 bicycle came to a little over $5. Apparently, thisdidn’t cover the costs they incurred, specially during the first stage of the project, when they were also incharge of promotion (1996-1998). Since 1999, and through an addenda to the contract, the CM charges aflat $10.00 commission for each credit approved, intended to cover the transaction costs that the CMincurs.

The default rate on loans has lately gone down, due to the fact that all credit information from all financialinstitutions is being registered in a single database in the privately managed Centrales de Riesgo (CreditInformation). Anytime an individual wishes to ask for a credit, his credit history will be looked up in theseCentrales. This new situation has determined that many times debtors will come back and pay their duesbecause they want to ask for a new loan or credit somewhere else.

For the CM, chasing after debtors is not worth the effort. According to their officials, the $1.00 commissioncharged monthly for every overdue payment is not even enough to pay for the official notification to bemade through a notary public, which costs $15.00, regardless of the amount of the credit. This $15.00 costis charged to the person’s debt, and the CM does not make any additional charges for this.

From the client’s perspective, the purchase of a bicycle is an expense they often can’t afford. Speciallybecause people believe that a bicycle should be of good quality, in order to survive continuous use.According to focus group participants,

“The bike has to be a good one so that it doesn’t give any trouble, andbecome more expensive in the end” (Man, C, 30-50)

“Monark is a guaranteed brand for bicycles” (Man, C, 30-50)

• Monitoring and Evaluation

The objective of the periodic monitoring by the Pontificia Universidad Catolica del Peru is to follow up andevaluate the different project components, and verify the fulfillment of the commitments stipulated in thecontract and its addends.

The consultant evaluates the different parameters of the project according to the following:• Count and classification of project’s bikepath users• Socioeconomic indicators of the users• Analysis of use and road safety in the project’s bikepaths• Inventory of the most common problems in the bikepaths

The consultant delivered monitoring documents on the following dates: August 1996, February 1997, July1997, November 1997, May 1998, September 1998, April 1999, July 1999, September 1999, November 1999,and June 2000. As can be seen, data was gathered on different months each year, thus making it difficultto make comparisons across years.

The consultant seeked to provide disaggregated information where possible, indicating not only the numberof users on each count, but also their gender on each case (such as type of vehicle utilized, hours, etc.) .This inclusive approach provides valuable data with which to compare the results of other components ofthe PPTNM, such as the bicycle credit program.

The monitoring reports serve as an independent evaluation on the positive and negative aspects of thebikepaths. The consultant has pointed out on each report the improper uses of the bikepath, and recordsthe maintenance problems on each of the routes.


The surveys conducted as part of the monitoring reports could be made to include some additional feedbackinformation, by questioning the users as to their needs in terms of the bikepaths and use of bicycles.Current users could provide regular information as to what their most common problems are while using thebikepaths, what kind of services they need, and how the bikepaths could be improved. This data should beprovided in separate groupings by gender.

Finally, it would also be userful to gather information from neighbors and residents of the areas where thebikepaths have been built, in order to asess the impact of this intervention in the community. Interviews tonon-users of the service would also be needed, to raise awareness about the issues that act as barriers tothe access of a larger number of users to this service.

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