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Lots of lovely infrastructure, not many cyclists.
Yeah this is a funny one. My theory is that at the time it was built - and to most extents now - driving around stevenage is easier, cheaper and more fun than riding a bike. So no demand. This doesn't mean there isn't demand elsewhere - check out the regents canal tow path, for example. Plenty of people using that, rightly or wrongly.
Building stuff is expensive; maintaining stuff is painfully expensive; consultancy fees are eye-wateringly expensive.
Anyway, I think the 'social change' argument takes on additional power when you look at the Stevenage example. Lots of lovely infrastructure, not many cyclists.