The CITUM Guide for Urban Mobility Practices

Transcription

The
CITUM
Guide for
Urban
Mobility
Practices
July 2007
INTRODUCTORY NOTE
This document is prepared according to the CITUM Network Application Form.
Input material has been provided by the network partners based on :

the approved Application Form

the specifications set, discussed and approved collectively during the consortium meetings
The CITUM partner cities are:
West Athens (GR) – Lead Partner; Alexandroupolis (GR); Catania (IT); Csepel (HU); Kalisz
(PL); Larnaca (CY); Sevilla (SP); Szekszard (HU); Valladolid (SP); Valetta (MT)
Edited by :
Konstantinos N. Petrakis, Thematic Expert of the CITUM Network
Approved by :
Moskos P. Diamantopoulos, Project Manager of the CITUM Network
TABLE OF CONTENTS
FOREWORD
1
INTRODUCTION .................................................................................................... 1
1.1
1.1.1
1.1.2
1.2
MISSION STATEMENT, STRATEGY AND OBJECTIVES...................................................... 1
THE CITUM FRAME OF REFERENCE .................................................................. 2
THEME A: INTERFACE URBAN MOBILITY & URBAN PLANNING / DEVELOPMENT ................. 3
1.2.2
THEME B: EVALUATION OF URBAN MOBILITY PRACTICES .............................................. 4
1.2.3
THEME C: PROMOTION OF ALTERNATIVE URBAN MOBILITY SOLUTIONS .......................... 5
1.2.4
THEME D: CITIZEN PARTICIPATION IN URBAN MOBILITY PLANNING & MANAGEMENT ....... 6
ABOUT THIS DOCUMENT................................................................................ 7
PROFILE............................................................................................................... 9
2.1
OVERVIEW OF THE CITUM CONSORTIUM.......................................................... 9
2.2
ALEXANDROUPOLIS, GR ................................................................................ 9
2.2.1
URBAN PROFILE ...................................................................................................... 10
2.2.2
MOBILITY PROFILE .................................................................................................. 10
2.3
2.3.1
2.3.2
2.4
CATANIA, IT............................................................................................... 11
URBAN PROFILE ...................................................................................................... 11
CSEPEL, HU ............................................................................................... 12
2.4.1
URBAN PROFILE ...................................................................................................... 12
2.4.2
2.5
KALISZ, PL ................................................................................................ 14
2.5.1
URBAN PROFILE ...................................................................................................... 14
2.5.2
2.6
LARNACA, CY ............................................................................................. 15
2.6.1
URBAN PROFILE ...................................................................................................... 15
2.6.2
2.7
VALLADOLID, ES......................................................................................... 17
2.7.1
URBAN PROFILE ...................................................................................................... 17
2.7.2
2.8
2.8.1
2.8.2
2.9
3
SHORT DESCRIPTION ................................................................................................ 1
1.2.1
1.3
2
BRIEF OVERVIEW OF THE CITUM PROJECT ....................................................... 1
VALLETTA, MT ............................................................................................ 19
URBAN PROFILE ...................................................................................................... 19
WEST ATHENS, GR...................................................................................... 20
2.9.1
URBAN PROFILE ...................................................................................................... 20
2.9.2
THEME A: INTERFACE URBAN MOBILITY & URBAN PLANNING / DEVELOPMENT............. 23
3.1
3.1.1
3.1.2
CASE STUDIES RELATIVE TO THE THEME ....................................................... 23
CASE STUDY VALLETTA: TRANSIT-ORIENTATED DEVELOPMENT ................................... 23
CASE STUDY VALLADOLID: SHARE CAR, PARK FREE.................................................... 28
3.2
LEGISLATION OR ADMINISTRATIVE MOTIVATION [A1]..................................... 30
3.3
PROCEDURES [A2]...................................................................................... 33
3.4
TYPES OF BENCHMARKING USED [A3] ........................................................... 36
3.5
CONSEQUENCES OF PROCEDURES ON PLANNING [A4]..................................... 38
3.6
FEEDBACK OF IMPACT ASSESSMENT ON PLANNING [A5].................................. 39
4
3.7
[A6]
PROCEDURES OF RESPONSE / ADAPTATION IN CASE OF NEGATIVE IMPACT
41
3.8
INFLUENCE OF SOCIAL INTERVENTION [A7] ................................................... 42
3.9
VARIANCE DUE TO THE INVOLVEMENT OF THE PRIVATE SECTOR [A8] ............... 43
THEME B: EVALUATION OF URBAN MOBILITY PRACTICES.......................................... 46
4.1
4.1.1
CASE STUDY WEST ATHENS – EVALUATION PROCESS OF THE CENTRAL AXIS OF
SUSTAINABLE TRANSPORT (CAST).......................................................................................... 46
4.1.2
5
4.2
LEGISLATION AND ADMINISTRATIVE PROCEDURES [B1] .................................. 53
4.3
THE CONTEXT OF EVALUATION [B2].............................................................. 56
4.4
THE EVALUATION METHODOLOGIES [B3] ....................................................... 57
4.5
INFORMATION USED IN THE EVALUATION PROCESS [B4]................................. 58
4.6
EX ANTE EVALUATION AND SOCIAL ACCEPTANCE [B5] .................................... 59
4.7
LEARNING POWER OF THE EVALUATION PROCESS [B6] ................................... 60
4.8
MONITORING THE IMPLEMENTATION [B7]...................................................... 62
4.9
EX POST EVALUATION AND PERFORMANCE [B8] ............................................. 63
4.10
MATCHING FORECASTS AND ACTUAL SYSTEM PERFORMANCE [B9].................... 64
THEME C - PROMOTION OF ALTERNATIVE URBAN MOBILITY SOLUTIONS..................... 66
5.1
6
CASE STUDY ALEXANDROUPOLIS - TRANSPORT & TRAFFIC STUDY ............................... 50
5.1.1
CASE STUDY CSEPEL - SOME SPECIAL ALTERNATIVE TRANSPORT MODES ..................... 66
5.1.2
(CAST)
CASE STUDY WEST ATHENS – THE CENTRAL AXIS OF SUSTAINABLE TRANSPORT
71
5.2
SCOPE OF THE PLANNING CONTEXT [C1] ....................................................... 74
5.3
IMPORTANCE OF THE ALTERNATIVE [C2] ....................................................... 81
5.4
POTENTIAL OF THE ALTERNATIVE [C3] .......................................................... 82
5.5
SUSTAINABILITY OF THE ALTERNATIVE [C4] .................................................. 82
5.6
SUCCESSES AND FAILURES OF THE ALTERNATIVE [C5] ................................... 84
5.7
REQUIREMENTS FOR THE ADOPTION OF THE ALTERNATIVE [C6]....................... 85
THEME D - CITIZEN PARTICIPATION IN URBAN MOBILITY PLANNING & MANAGEMENT .. 90
6.1
6.1.1
CASE STUDY CSEPEL - COOPERATING WITH THE RESIDENTS IN SOLVING THE
PARKING PROBLEMS OF A HOUSING ESTATE ........................................................................... 90
6.1.2
CASE STUDY KALISZ - PARTICIPATION IN THE PROCESS OF INTRODUCING
ELECTRONIC TICKETS IN URBAN PUBLIC TRANSPORT ............................................................... 94
7
6.2
IMPORTANCE [D1] ...................................................................................... 98
6.3
LEGAL / INSTITUTIONAL FRAMEWORK [D2].................................................. 101
6.4
ASPECTS AND PROCEDURES [D3] ............................................................... 103
6.5
THE ROLE OF INFORMATION AND PUBLICITY [D4]......................................... 104
6.6
EFFECTS ON THE PLANNING PROCESS [D5] ................................................. 105
6.7
LEARNING POWER [D6] ............................................................................. 108
CONCLUSIONS AND SUGGESTIONS ..................................................................... 110
7.1
THEME A: INTERFACE URBAN MOBILITY & URBAN PLANNING / DEVELOPMENT .. 110
7.2
THEME B: EVALUATION OF URBAN MOBILITY PRACTICES ............................... 111
7.3
THEME C: PROMOTION OF ALTERNATIVE URBAN MOBILITY SOLUTIONS ........... 113
7.4
THEME D: CITIZEN PARTICIPATION IN URBAN MOBILITY PLANNING &
MANAGEMENT...................................................................................................... 114
7.5
A FINAL OVERVIEW................................................................................... 115
APPENDIX: THE CITUM WORKTEAM
FOREWORD
By Moskos P Diamantopoulos, architect-ingenieur, urban planner, CITUM Project Manager
One of the most agitated and challenging periods of my professional path has been the
time between September 2005 and nowadays (May 2007) because of the CITUM project
that I had the honour and pleasure to lead in the quality of Project Manager.
The CITUM project is a network of European cities characterised by a significant variety as
to their size, location, socio-political features, governance structure and urban history. Yet,
all the CITUM partners have an important common feature: they all face similar problems
and challenges in their effort to plan and manage urban mobility regardless of the nature
of the specific issues. Common problems deal with the limited opportunities that they
dispose when attempting to plan and manage urban mobility according to the citizens’
needs and requirements. Despite their zeal and ambitions, local authorities and planners
have to meet numerous constraints and limitations in terms of:
−
Administrative structures and contexts
−
Financial, technical and human resources
One of the most efficient ways to manage their limitations and constraints is through the
exchange of experience. This has been the main motivation to apply for the CITUM project
when the URBACT Call for Proposals was launched. Learning from each other’s successes,
failures, satisfactions and frustrations is acknowledged by all partners as a good means to
go on and advance.
After 19 months of sincere and cordial discussion, the CITUM partners are now ready to
delver to their colleagues in all European cities the outcome of their collective effort, which
is the present “CITUM Guide for Urban Mobility Practices”. Initially the document planned
was named “The CITUM Good Practice Guide” re the approved Application Form of the
project. Following the process that led to its creation, this document could not focus on
good practices only, because an important part of the base material that reflects the state
of the practice in the partner cities relates to not-so-good, unfulfilled or incomplete
practices. Consequently, the title had to adapt to the content of the document. We hope
that the present document will allow our colleagues, politicians, planners and citizens
throughout Europe to identify their everyday reality in its chapters, think about what their
colleagues in CITUM do or didn’t and, finally, get some useful ideas from our successes and
failures.
On behalf of the CITUM consortium I wish to thank the URBACT Secretariat for their
continuous support throughout the project lifecycle. Special thanks have to be addresed to
Adele Bucella (the CITUM project officer), Maarten van Bemmelen and Pauline Goeghagen
(URBACT experts who supported our project with their ideas) and, last but not least, JeanLoup Drubigny (Head of the URBACT Secretariat) who made this wonderful trip possible.
The CITUM consortium wishes to dedicate this document to the everyday people in our ten
cities who provide all of us with the motivation to go forward.
1
1 IIN
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OD
DU
UC
CTTIIO
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1.1
BRIEF OVERVIEW OF THE CITUM PROJECT
1.1.1
SHORT DESCRIPTION
CITUM is one of the projects of the URBACT Porgramme, co-funded by the European
Commission.
The CITUM project aims to demonstrate how local mobility problems can be dealt with
through an open democratic concertation procedure involving the active participation of
the users concerned, i.e. local SMEs and work force, local authorities and traveling
residents, especially within deprived urban areas in connection with urban centrality and
sustainability.
The CITUM network sets with intensity the issue of “Transport and Environment” within a
local authority context, referred to planning and implementing efficient practices of
mobility and traffic management based on European good practices and the potential of
new technologies. In addition, the ability of local authorities to activate, sensitize,
stimulate and coordinate the implementation process and its numerous stakeholders is
highly sought for.
1.1.2
MISSION
OBJECTIVES
STATEMENT,
STRATEGY
AND
Mission statement
The CITUM Mission Statement, as shown in the Application Form of the project approved
by the URBACT Secretariat, is presented below:
Elaborate and disseminate a common framework for planning, implementing and managing
urban mobility measures and policies that take into account the social sensitivities and
constraints occurring in European cities with similar mobility problems, through the
exchange and common assessment of the partners’ experiences.
Objectives
The CITUM consortium has established the following objectives for their common and
individual work within the project:
Identify the achievements, on one hand, and the problems and barriers, on the other
hand, of European cities as regards the more salient issues of urban mobility planning
within the perspective of aqn integrated urban planning approach.
Review of current methods and processes regarding Urban Transport System
Management (UTSM) as a tool for urban development focusing on the experience of the
participants in the URBAN, UPP and related programs, using a commonly agreed
format. This will be achieved by a series of case studies proposed by the project
partners and agreed in common as representative of the context under study. This work
is to be carried out (a) by each participant separately, based on a common template
developed by the project expert and (b) by thematic groups in which of participants
should be represented based on the interests expressed by each.
1
Carry out a cross-city survey regarding the more salient issues of urban mobility
planning to enrich the knowledge base of the project and validate and validate, the case
being, the case studies elaborated within the network.
Development of a common frame of reference to evaluate achievements, failures, risks
and opportunities.
Organize workshops to present and discuss the results of the assessment carried out
(a) in each participating city and (b) the ensemble. Outcome: lessons learned and
issues arising.
Identify and suggest new approaches to raise citizens’ awareness, interest and
activation for different contexts, individually and by cluster. Who decides and how democratic procedures (government vs. governance) -citizen’s participation.
Produce a Guide for Urban Mobility Practices, based on the case studies involved and
the outcome of the cross-city survey, to be discussed with the associations of local
authorities, the central authorities and NGO’s in the respective countries of the
participants, as well as the European-level bodies concerned.
Organize a European-level conference to present and discuss the results of the activities
carried out at all levels. Outcome: The pan-European Handbook for Citizen-Friendly
Mobility Planning and Management, which will present the proceedings of the final
congress.
Strategy
The CITUM project strategy comprises the involvement of the main stakeholders
(intermediate- and end-users) of mobility plans directly in its activities so that their
viewpoints are clearly reflected on the project outcome. To achieve this, (a) users’
representatives will be invited to participate at the project meetings and present their
viewpoints on the issues discussed therein, and (b) users’ and non-users’ attitudes and
expectations will be dealt with during the surveys mentioned above (re. project
objectives), the results of which will be assessed and incorporated into the project
procedures and outcome.
Wide dissemination of the project outcome to the representatives of the social groups will
facilitate their involvemnt and ensure an open and democratic dialogue between the users
and policy and decision makers.
1.2
THE CITUM FRAME OF REFERENCE
The domain of urban mobility is very wide and interfaces with an even wider spectrum of
domains related to urban realities. This domain makes the object of many on-going works
where thousands of European politicians, citizens, academics, planners, consultants and
managers spend a considerable effort.
The need for a more integrative planning approach has led the CITUM consortium to
concentrate on the controversies, gaps and bottlenecks of every day planning and
management practice.
The thematic selection has been thus dictated by many factors, as follows:
•
The URBACT Programme is dedicated to the city and its problems of all sorts,
emphasising on the social and the planning aspect. URBACT deals with technical,
technological and financial issues to a lesser extent; those issues are dealt with
within a wider contextual scope if they are necessary accompaniments of the
main focus themes.
2
•
CITUM operates within the interface of urban mobility with the social and
planning aspects. Consequently, our focus is not at the core of mobility as a
technical domain but, instead, at its wings where interfaces lie, so as to (i) better
respond to URBACT requirements, and (ii) better communicates with fellow
projects.
•
The four themes chosen for a deeper analysis by the workteam are among the
most critical and controversial ones in the contemporary urban society. A large
part of the interest of the media and of the citizens is given daily to the four
selected themes.
The document therefore tackles themes which European stakeholders are faced with in
their effort to achieve more sustainable, efficient and thorough solutions within a frame of
reference that embraces integrated urban planning, social concerns and comprehensive
approaches. Consequently the themes chosen are (a) the interface between mobility and
spatial planning, (b) evaluation and monitoring, (c) promotion of alternative urban mobility
solutions, and (d) citizen participation.
The contribution of CITUM to the domain is targeting the state of the practice. More
specifically, CITUM focuses on four specific mobility-related Themes that, according to the
CITUM partners and the wider URBACT Community, are worth a more particular emphasis.
These Themes are the following:
9
THEME A: INTERFACE URBAN MOBILITY & URBAN PLANNING / DEVELOPMENT
9
THEME B: EVALUATION OF URBAN MOBILITY PRACTICES
9
THEME C: PROMOTION OF ALTERNATIVE URBAN MOBILITY SOLUTIONS
9
THEME D: CITIZEN PARTICIPATION IN URBAN MOBILITY PLANNING & MANAGEMENT
The CITUM themes are challenging but, clearly, they do not exhaust the long list of
mobility-related issues worth of in-depth investigation. The project, therefore, is only a
starting point of a more ambitious effort initiated by its ten participants, whose aims
extend beyond the project up to a more consolidated forum of exchange and dialogue.
Here following is a concise outline of the conceptual framework that shows the CITUM view
on each of the four Themes.
1.2.1
THEME A: INTERFACE URBAN MOBILITY & URBAN
PLANNING / DEVELOPMENT
The interaction among transport and urban development has traditionally been a complex
issue. To date, the domain is dominated by two extremes, i.e.
(a) A very complex model-based and data-hungry approach suitable only for academic
research, and
(b) A naïve “journalistic” approach mainly based on professional experience as well as nonsystematic observations.
In recent years there has been a considerable effort towards an integrated approach that
embraces both urban mobility and urban development within a more or less coherent
planning context. One of the main difficulties to achieve such an endeavour is the need for
relevant data which requires considerable human and material resources that most local
authorities cannot afford. As a consequence, current practice in most European cities relies
on the conventional context, according to which the interaction between urban mobility
and urban development / planning is seen in either way, i.e. either the effects of a
3
mobility-related practice1 on the urban environment or the effects of an urban
development practice1 on urban mobility.
Taking into account the above limitations and realities, as well as the wider context of the
URBACT Programme, the CITUM network focuses on the institutional and procedural
aspects of the interaction among urban mobility and development. Such an option implies
that the assessment of the institutional and procedural context encountered in today’s
cities could provide specific information as to:
(a)
the good and not-so-good practices
(b)
the problems that inhibit a more integrated approach
(c)
the resulting needs
Resulting from the lack of practical evidence, CITUM is restricted at the contextual level
only. Clearly, in CITUM is assessed the contextual framework within which the interaction
among mobility and development is dealt with in urban planning, focusing on the concept
of an integrated urban planning approach.
Main issues that are worth investigating:
A1.
Legislation or administrative motivation regarding the assessment
of the impact of (a) mobility on development and (b) development on
mobility
A2.
Procedures adopted for the assessment of the interaction between
mobility and development
1.2.2
A3.
Types of benchmarking used
A4.
Consequences of procedures on planning
A5.
Feedback of impact assessment on planning
A6.
Procedures of response / adaptation in case of negative impact
A7.
Influence of social intervention
A8.
Variance due to the involvement of the private sector
THEME
PRACTICES
B:
EVALUATION
OF
URBAN
MOBILITY
One of the most important issues in contemporary urban mobility planning and
management is the evaluation of urban mobility practices.
Evaluation is the process by which the impact (effects) of a practice is assessed with
respect to those players (social groups, institutions, groups of individuals) who benefit or
suffer from the impact.
The impact of a practice is perceived through the changes, positive or negative, resulting
from the practice onto the environment (natural, built, social and economic).
Evaluation can be performed either at the planning/design stage (ex ante evaluation) or
after the implementation (ex post evaluation) of a practice.
The ex ante evaluation of a practice leads to the selection of the BEST among the
alternative solutions available or feasible.
1
A practice may be a measure, a policy, a plan or a single project
4
The ex post evaluation of a practice shows to which extent the objectives of the practice
have been met, if and to which extent the foreseen impact have been realised and often
leads to corrective actions depending on its outcome. In general terms, ex post evaluation
is a process of high political importance and, hence, it is very often avoided or shortcircuited for obvious reasons.
On-going evaluation is not dealt with in CITUM because this type of evaluation is restricted
to physical projects and does not apply to a large number of urban mobility practices, such
as traffic or demand management etc.
Based on the above postulates, the CITUM network aims at discussing:
Which mobility practices are or are not subject to evaluation (context)
In which context urban mobility practices are assessed (motivation and procedures)
How urban mobility practices are assessed (methods)
The influence of the evaluation process on the overall planning and implementation
process (results)
B1.
Legislation and administrative
evaluation of urban mobility practices
procedures
that
govern
the
B2.
The context of evaluation: which mobility practices are or are not
subject to evaluation
1.2.3
B3.
The evaluation methodologies
B4.
Information used in the evaluation process
B5.
Ex ante evaluation and social acceptance
B6.
Learning power of the evaluation process
B7.
Monitoring the implementation
B8.
Ex post evaluation and performance
B9.
Matching forecasts and actual system performance
THEME C: PROMOTION OF ALTERNATIVE URBAN
MOBILITY SOLUTIONS
To ensure a sound conceptual and methodological background, the term “Alternative” is
used in contrast to the current “mainstream” options in Europe (road infrastructure,
conventional traffic & parking management, parking infrastructure and conventional public
transport infrastructure such as rail, buses and trolleybuses). In any case, this is an issue
with many definitions: in a given city, a new mobility practice considered as alternative can
be common practice in another city.
Consequently, the following Urban Mobility Solutions describe the context of “Alternative”:
(i) Walking;
(ii) Cycling;
(iii) “Soft” policies (such as demand management, zone access control, awareness /
promotion campaigns, etc.);
(iv) IT -based policies and measures;
5
(v) Transport modes using Renewable Energy Sources (RES) such as alternative fuels,
electric vehicles etc.;
(vi) Non-conventional urban transport modes that really act as alternatives to the
mainstream
C1.
Are Alternative Urban Mobility Solutions a major planning concern
in urban mobility planning and management? (actual experience and
perspectives for further development)
C2.
Are Alternative Urban Mobility Solutions a serious alternative to the
dominant mainstream modes or are they a marginal effort, based on their
performance to date?
C3.
What is the potential of Alternative Urban Mobility Solutions to
improve urban mobility for all user groups, including the handicapped?
C4.
Do Alternative Urban Mobility Solutions lead to higher sustainability
in urban mobility or do they have limited effects?
C5.
Which are the main reasons for the successes and, respectively,
failures identified to date?
C6.
Are citizens disposed to adopt Alternative Urban Mobility Solutions
and under which conditions?
1.2.4
THEME D: CITIZEN PARTICIPATION IN URBAN
MOBILITY PLANNING & MANAGEMENT
Citizen participation is a vital component of democratic planning. Since urban mobility
takes up an ever-growing importance in European cities, the CITUM partners consideration
focuses on ensuring that the voice and attitudes of the citizens is duly accounted for in
order to ensure that the decisions of local authorities in the matter become more realistic
and efficient and, consequently, more implementable.
During the work within CITUM it was commonly agreed that citizen participation requires
that the information provided to the citizens must be thorough and simple at the same
time. The information stems from the design and evaluation studies carried out and is
consequently provided by expert engineers and scientists. To be disseminated to the
citizens, information is handled by authorities and their staff. This process incurs that two
filters are interfering between the generators (studies) and the recipients (citizens):
¾
the technical filter, i.e. the technical reports and maps delivered to the authorities
by the authors of the studies, and
¾
the political filter, i.e. the information material, oral, printed or electronic, that is
disseminated to the citizens invited to the participation procedures.
The CITUM viewpoint is that those two filters are usually very strong and result in
deforming the actual information before it reaches the recipients. The deformation is either
deliberate or not. Deliberate deformation is often related to political considerations and to
the various interests that interfere in the planning process, while non-deliberate
deformation is due to lack of culture and incomplete knowledge or means of the actual
performance and impact of the mobility practices under consideration.
The investigation of the matter carried out in CITUM aims at identifying (a) the nature of
the abovementioned filters in real-world practice, (b) their specific origins and causes, and
(c) the requirements and ways for improvement.
6
D1.
Is citizen participation a major issue in urban mobility planning?
D2.
Is citizen participation deriving from a corresponding legal /
institutional framework in vigour?
D3.
Which are the main aspects and procedures adopted?
D4.
What is the contribution of information and publicity in achieving
effective citizen participation?
D5.
Which are the effects resulting from the actual citizen participation
in the overall planning and implementation process regarding urban
mobility practices?
D6.
1.3
Does citizen participation lead to better decisions?
ABOUT THIS DOCUMENT
The CITUM Good Practice Guide is the product of an exciting collective effort which is
collectively prepared by 27 European planners from 8 European cities. The authors tried to
reflect not only their personal experiences and opinions, but hope that this document
represents the viewpoints of the dozens of political representatives and citizens who
participated at the 10 meetings held throughout the project lifecycle.
The document is based on two consecutive streams of work:
I.
A set of 19 thematic case studies produced by the CITUM cities (see Annex 2)
II. The assessment of responses to four template-based surveys that were carried out
across the CITUM cities (see Annex 2).
It is by no means representative of the much more complex and varied European reality;
however it represents the state of the practice in eight CITUM cities in a most clear and
transparent way.
The document was produced through an interactive procedure coordinated by the CITUM
Thematic Expert. The Thematic Expert designed the guides (templates) of each case study
and the draft templates of each thematic cross-city survey which were then discussed, in
vivo or using the facilities of e-mail, with the cities’ representatives before, during and
after the CITUM technical meetings. The city planners filled the consolidated templates (for
both the case studies and the surveys) with information that reflects their knowledge and
perceptions over the wider geographical area of their respective city. The filled templates
form the raw material over which the present document has been gradually built using the
same iterative process as the guides and templates’ design, namely, the Thematic Expert
prepared the consecutive draft versions which were discussed in group until this final
consolidated version.
The CITUM Guide for Urban Mobility Practices comprises 7 main chapters.
Chapter 1 provides an introduction to CITUM, namely (i) a brief overview of the project,
(ii) the outline of its frame of reference and the four themes around which the whole work
is structured, and (iii) a navigation guide for the whole document.
Chapter 2 provides a concise urban and mobility profile of the CITUM city partners to allow
for a better understanding of their input reflected in the subsequent chapters.
Chapters 3 to 6 have a comon structure. Each chapter presents the main findings from the
related collective work carried out throughout the project (case studies and cross-city
survey). Namely, each one from those chapters presents a concise summary of the two
7
more salient case studies followed by a detailed presentation of the findings across the
main issues of interest. Namely:
Chapter 3 focuses on the Interface between Urban Mobility and Urban Planning and
Development.
Chapter 4 focuses on the Evaluation of Urban Mobility Practices.
Chapter 5 focuses on the Promotion of Alternative Urban Mobility Solutions.
Chapter 6 focuses on Citizen Participation in Urban Mobility Planning and Management.
Chapter 7, finally, presents the conclusions and suggestions from the baseline work
classified by theme as well as those of more general interest and scope.
The collective nature of this work incurs that all those who contributed to it are clearly
mentioned. The list of contributing partners is presented, together with a brief CV for each
one, in Appendix.
Last but not least, Annex 1 presents the summary of ther raw cross-city material while
Annex 2 shows a guide for the CITUM Case Studies, which are presented in detail in
another CITUM document, the “Compendium of CITUM Case Studies” expected to be
available by July 2007.
The CITUM Guide for Urban Mobility Practices has been a wonderful trip made of fruitful
discussions in which new knowledge was intensively and continuously circulating among its
travellers. This interplay has created solid links and sincere friendship within the group,
whilst it generated higher ambitions to create a more sustainable forum that wishes to
welcome new friends in order to (a) promote the principles of sustainable urban mobility
and (b) identify new and improved ways that would make everyday practice more efficient
and beneficial to the urban society in Europe.
8
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PR
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2.1
OVERVIEW OF THE CITUM CONSORTIUM
The CITUM Consortium is composed from 10 European cities, namely West Athens
(Greece, Lead partner), Alexandroupolis (Greece), Catania (Italia), Csepel (Hungary),
Kalisz (Poland), Larnaca (Cyprus), Sevilla (Spain), Szekszárd (Hungary), Valladolid (Spain)
and Valletta (Malta).
The CITUM Good Practice Guide is based on contributions of eight from the ten participant
cities, whose urban and mobility profiles are given below for better understanding the
background of the present work.
2.2
ALEXANDROUPOLIS, GR
9
2.2.1
URBAN PROFILE
Alexandroupolis is the capital of the Prefecture of Evros, in the North-East part of Greece,
borders at the East with Turkey and at the North with Bulgaria. The city is built on a flat
land and is delimited by hills at the west, north and east side, by the Thrakiki Open Sea at
the south and by the Delta of the river Evros at the south-east. The city spreads out
linearly and in parallel to the sea.
Alexandroupolis is the first
city and transport node of
Europe
to
the
East,
combining the harbour
and the railway with the
airport and the “Egnatia”
expressway, which is the
biggest Greek road work.
Its population comes up
to
48.885
residents,
according to the Census of
2001. The city population
increased
by
29%
between 1991 and 2001.
Main activities in the city
include administration, small industry, trade, tourism and other tertiary services.
2.2.2
MOBILITY PROFILE
Alexandroupolis, as most Greek cities, could not face in the framework of a cohesive urban
and transport planning, the rapid residential growth, the increase of the population and as
a consequence the number of the vehicles. Hence, the city suddenly had to confront
multiple traffic and environmental problems that influence negatively the quality of life.
Mobility-related planning and management are undertaken by the Municipality, while
projects involving construction (such as roads) are mainly carried out by the Prefecture.
Main mobility problems are the following:
9
Lack of a tangential road to undertake
through traffic, resulting in high traffic
volumes crossing the city centre.
9
The railway lines which are still crossing
the city centre.
9
Little infrastructure for pedestrians: only
a small number of pedestrian precincts
are implemented not forming a network;
sufficient and well-designed sidewalks are available only on a small part of the road
network.
9
No infrastructure for bicycles, although
the city is highly apt for cycling (flat
soil, Hippodamean network structure)
10
9
Insufficient enforcement of traffic regulations resulting in insecure crossings, illegal onstreet parking extending upon the sidewalks.
9
Low safety on the road network mainly due to (a) the co-existence of through- and
local traffic, (b) the low visibility on crossings from illegal parking and (c) inadequate
and insufficient signing.
9
The public transport of the city is of the semi-urban type characterised by low
frequencies, inadequate service of residential areas. The fleet comprises 9 urban
buses, 2 of which serve exclusively the local University campus. Daily ridership reaches
1.500 passengers (650 - 750 of which are students), resulting in an average
occupancy rate of hardly 20%. The majority of users don’t own a private transport
mode (car or 2-wheeler).
9
Lack of parking spaces in the city centre characterised by ineffective management of
the parking zones and low enforcement.
The above mobility situation results in high air and noise pollution, visual intrusion and
aesthetic degradation. Local authorities are engaged in facing those problems through a
traffic and transport study whose proposals are currently under implementation. Main
features of that study are as follows:
•
Three new mini-bus lines to link the city centre with the residential areas currently
under-served
•
Creation of a network for non-motorised traffic (pedestrians and cyclists)
•
A new traffic organisation scheme comprising deviation routes
•
New parking lots in high-density areas
•
Upgrading of the signalling system and adequate signage, horizontal and vertical
2.3
2.3.1
CATANIA, IT
URBAN PROFILE
Catania is located on the Eastern coast of Sicily, directly on the slopes of the volcano Etna.
The city counts more than 400,000 inhabitants, which grow up to 800,000 including all the
metropolitan area, and is therefore the second biggest city in Sicily and the ninth in Italy.
Nevertheless, thanks to its dynamism, its commercial activity and the high number of
industries located in its territory,
Catania can be considered the economic
capital of Southern Italy.
In the recent years, Catania has
become famous through the high
number of hi-tech initiatives and the
industrial plants of some hi-tech
multinational companies, which have
given the city the name of “Etna
Valley”, making a suggestive paragon
with the Californian “Silicon Valley”. The
11
presence of these companies has led the city to a new role in Southern Italy economic
scenario.
For the next years the City has bet its chances to the exploitation of structural funds,
particularly in the fields of hi-tech and tourism. In the latter field, some big infrastructures,
such as a new international airport (which currently hosts more than 5,000,000
passengers per year), the motorway connection with the city of Syracuse and a new tourist
harbour, will enable the city to a considerable step forward.
2.3.2
MOBILITY PROFILE
Catania’s metropolitan area is a regional centre whose hinterland comprises the whole
Eastern Sicily. This situation – due to the presence of important infrastructures such as the
international airport, the harbour, the central station, the interport, the main hospitals, the
University, the industrial area and so on – causes the desire lines of Eastern Sicily, till Gela
and Agrigento, to point on Catania.
The northern part of the city
suffers the biggest stress
through which a complex
system of radial roads –
intended for a much smaller
traffic flow – bring to the city
about 100.000 cars per day
(60.000 only in the rush
hours).
Given
the
huge
traffic
problem of the city of
Catania, the Italian Prime
Minister has appointed the
Mayor
of
Catania
as
“Commissioner for the Traffic
Emergency”. The programme
which the Commissar has to
carry out forecasts:
9
9 interventions on the big roads and their connection with the Sicilian motorways
system;
9
21 parkings which can act as exchange point (private cars – public transport) or as end
stations;
9
3 new tram lines;
9
The planning and the insertion, within the city’s urban planning, of the programmes
forecasted within the so called “Catania Node”, which is the complex project
comprehending the transformation of the railway line in a metropolitan underground
arriving till the airport.
2.4
2.4.1
CSEPEL, HU
URBAN
12
PROFILE
Csepel, the 21st district of Budapest is located in the southern part of the Hungarian
capital (Csepel Island), between the large Danube branch and the Soroksár-Ráckeve
branch.
Currently, the population of
Csepel is 77000 inhabitants.
Traditionally a residential area,
Csepel has been transformed
into an industrial settlement
after 1892. The original face of
Csepel has been transformed
into a typical socialist full
operating industrial zone after
the Second World War. Between
1960 and 1990 about 22.000
new flats have been built,
mostly in large scale housing
estates. The industrial entity
(Csepel Works) doesn’t function nowadays as it used to. The complexity of the area is due
to the cohabitation of totally different quarters.
Csepel is subject to the two-tier administrative system of Budapest: the organisational
structure, operation and duties of the Budapest Municipality are separated from the 23
district governments. This double structure is present in most planning, regulating,
maintaining and financing processes, causing many difficulties for the districts and also for
the municipality of Budapest.
2.4.2
MOBILITY PROFILE
Csepel is an island that is why the connections to the other parts of Budapest are
transportation bottlenecks. There is only one bridge (2*2 lanes) towards the heart of
Budapest, and there is another one (1*1 lanes) towards another district to the east.
Csepel faces many suburbanisation phenomena. Very important mobility need comes from
the agglomeration settlements in order to reach the inner city. Due to the underdeveloped
road network and the partially built suburban railway network, the heavy traffic flowing
through Csepel is a key issue due to its polluting nature. There are various levels that
highlight mobility problems in Csepel:
−
Sub-local level: mobility between neighbourhoods in the central area of Csepel (i.e.
housing estates – bus terminal – suburban railway station)
−
Local level: traffic crisis in the area of Csepel.
Mix of sub-local and local traffic from the
transversal
traffic.
Little
usage
of
environment friendly transport modes.
−
Transversal level: need for bypasses for
individual traffic, and better light-rail links for
the public transport.
The public transport network is quite developed
in the District of Csepel: one light-rail line
connecting the centre of Csepel to the southern
part of the downtown. This line will be part of a
future metro line – sometime in the next 20 years.
13
The urban bus network includes 5 highly
frequented lines linking Csepel with other
districts of Budapest, and 6 lines running inside
Csepel. The suburban bus network connects
Csepel to the Southern agglomeration area.
Despite the highly developed bus lines, the road
network to the agglomeration incurs serious
bottlenecks to bus traffic.
Recently,
the
Integrated
Transportation
Association – for Budapest and its agglomeration
settlements - has just been established. Due to
the two-tier municipal governance system,
mobility planning requires the engagement of
many actors, including the municipality of District
21 (Csepel) and the Municipality of Budapest.
Also rooting from the above mentioned fact
Municipality of Budapest has the responsibility of
the management, maintenance, operation and
planning of the public transportation system and
districts – like Csepel – can barely influence it.
That is why Csepel has a few direct experiences
in urban mobility practices, but the general topic
to be solved is clear: how to switch people from
the individual transport to use a well developed
public transport system, giving real alternatives.
2.5
2.5.1
KALISZ, PL
URBAN PROFILE
Kalisz has almost 110.000 inhabitants. Kalisz is the second largest city in Wielkopolska
Region. It is located in the middle-west part of Poland (centre point of triangle formed by
three major cities – Poznań, Łódź and Wrocław).
Kalisz is considered to be the oldest town in Poland.
Kalisz is one of important economic centres in
Wielkopolska and in Poland, due to rapid growth.
There is high proportion of private businesses in
relation to the population (13.000 entities).
The most popular sort of industries in Kalisz is light
industry, the food industry and motor and aviation
industries.
Unemployment rate in Kalisz is running at 9,8%
(April 2007).
2.5.2
MOBILITY PROFILE
The road network in Kalisz comprises: 22,6 km of
national roads, 8,7 km of provincial, 80,0 km of
district and 178,3 km of communal roads. There are
14
a lot of canals, resulting in that an important part of connections in the city is ensured by
over 30 bridges. The accessibility of the city isn’t its strong point. Both internal and
external accessibility are at a low level. The railway station doesn’t provide enough
connections with major cities in Poland (not to mention major cities in Europe). There is a
lack of connections with motorways and external ring roads, but there are two stretches of
internal ring roads constructed for last few years.
Local transport is provided by the Kaliskie Linie Autobusowe Sp. z o. o. (29 lines - 563 km,
614 bus stops, of which 286 inside Kalisz) and 10 private taxi associations.
An important problem of the city is through traffic, which should be mitigated by the
construction of the internal ring road. Other mobility-related problems are:
−
Low increase of road infrastructure opposed to the dynamic development of
motorization (apart from investment activity in this area)
−
The city’s tight buildings (especially in the city centre)
Kalisz planning effort focuses on planning and building regional and ring roads. The city is
about to develop an efficient transportation strategy. Kalisz also concentrates on
improvement of the public transport quality and pedestrian and cyclist traffic conditions.
Furthermore, the most important problems which need to be solved are: rationalization of
car parking system, reduction of negative influence over the environment and
rationalization of heavy goods transport system.
Presently the document about transport policy is being elaborated.
2.6
2.6.1
LARNACA, CY
URBAN PROFILE
The city of Larnaca with a total population of 46.666 (2001) and an average density of 16
inhabitants/Ha, could be described as a low density city.
Regarding the District, the Municipality of Larnaca concentrates: 41% of the population;
33% of the total number of industries; 58% of the total shops; 47% of the administration
establishments; 41% of the tourism accommodation capacity (the District receives the 8%
of total tourist arrivals in Cyprus).
15
Larnaca comprises the main
airport and the second port
in Cyprus. It can thus be
characterised as the main
gateway of Cyprus.
Most of the economic activity
is concentrated in the Central
Business District-CBD area.
More specifically the CBD
area concentrates: 2,3% of
the area; 5,5 % of the total
population; 7% of the total
households;
an
average
density of 38 inhabitants/Ha;
19% of total number of
employees; 22% of the
commercial areas; 24,7% of
28/05/2007
20
the
administrative
establishments; 25% of the
total students; 46% of the tourism accommodation capacity of the total tourism
establishments.
The main problems of the area are summarised below:
−
Conflict of land use between industry, tourism and residential development
−
Disorderly, sporadic development and lack of maintenance of vacant building plots
−
Conflict between traffic and tourism environment
−
Lack or inadequacy of basic infrastructure such as footpaths, car parks, street lighting,
access to the beaches, parks and gardens
−
Coastal erosion resulting in a loss of good beaches
−
Poor quality of the environment, particularly along the coast
−
Traffic congestion especially in the summer months due to absence of a primary
distributor road
2.6.2
MOBILITY PROFILE
Most of the urban structure problems currently present in Larnaca are the result of the
rapid growth that the city has experienced post the Turkish invasion in 1974. The road
network in the municipality area has been developed over the years in an ad hoc fashion
as the city itself was developing without much town planning until 1990.
The total daily trips in Larnaka are 77.500, distributed in:
Modal split
%
Trips
The general trends of the
mobility flows addressed to the
Private transport
75
58.000
CBD in private transport are: (i)
Public transport
5
3.500
72,5% of the flows to the CBD,
have their origin within the
On foot
20
16.000
municipality; 20,5% of the total
flows have their origin within the CBD. The average distance in private transport within
the CBD is 780 meters.
Urban bus service operates in a limited schedule, that does not cover most of the nonsystematic trips in the evenings (when shops are still open) nor does it cover Sundays. To
increase the competitiveness of the bus service, the frequencies and the regularity of the
service should improve.
16
Taxis provide urban and interurban services. In areas where bus services are inadequate,
the taxi becomes the public transport par excellence, the students being its main user.
70% of the taxi fleet is less than 5 years old, in comparison with 16% of bus fleet.
The global car park supply is:
Type
(free
Present
Future
Total
2500
-355
2145
There is a deficit of around 500 car
park places in the whole CBD area.
The parking pressure is higher
(with
parking
426
355
782
close to the old part of the CBD
1.305
958
2.263
and the commercial area, so
4231
958
5189
around 1.800 cars park illegally.
On-street parking with parking-meters has an occupancy of 100%.
On-street
estimation
On-street
meters)
Off-street
Total
parking)
Mobility objectives of the Municipality are:
•
To promote the centrality of the CBD and its economic and tourism activities thus
avoiding specialization.
•
To rationalize and decrease the use of private transport within the CBD, namely:
- To allow cohabitation of traffic with the different social activities.
- To adapt air quality and noise levels to the limits fixed by EU regulations.
•
To establish a ring network system to deal with through pass movements.
•
To promote sustainable means of transportation (Public Transport – Bicycle – On
foot), by:
- Increasing the attractiveness as well as the competitiveness of Public Transport.
- Increasing road safety and infrastructures for pedestrians and cyclists.
•
To define a parking policy with higher fares to regulate the demand and use
revenues to invest in the global mobility policy.
2.7
2.7.1
VALLADOLID, ES
URBAN PROFILE
Valladolid
is
the
capital
of
the
Autonomous Community of Castilla and
León. Population: 318.500
Valladolid has many historical buildings
and museums.
The University of Valladolid (with more
than 25,000 students) is one of the
oldest in Spain and has great recognition.
The industry is mainly devoted to car
manufacturing, to make metallic spare
parts and wood works. There are several
urbanized industrial estates and one of
them is specifically devoted to the telecommunication technology.
17
Valladolid has fast land communications towards and from cities of our region. From
Valladolid it is easy to connect fast and comfortably with the rest of Spain, both by land easy access using main roads and motorways, and by rail or by air – Villanubla airport.
The immediate plans for urban development include the creation of a 5,000 Ha new
residential, activity, free space and leisure complex in the place of the existing surface
railway line & station which will go underground. This project aims at unifying the urban
tissue currently disrupted by the railway line along the traditional city centre.
2.7.2
MOBILITY PROFILE
Number of vehicles: 348,3 / 1000 persons. Daily mobility rates: 844.656 journeys per day
or 2,48 journeys / person. Journeys on foot are 53,5% of total , while the private transport
share is larger than public transport (69,4% vs. 30,6%).
Mobility issues are dealt with almost autonomously by the Municipality (Urban Mobility
Office & Municipal Police). The city possesses a high-technology traffic control system
regulating 269 intersections and 172 permanent valuation points, controlled through 19
cameras.
There are 446 taxis and 130 buses (of which 100 run on GLP) serving 18 regular lines, 9
business lines and 5 night services. The public transport system is equipped with a
contemporary information system (SAE) comprising 65 info-kiosks.
In the traditional city centre there is a controlled parking system
with 6.000 places, comprising 5.740 resident cards in addition.
2.800 parking places are available in collective underground
parking lots (plus 600 under construction).
Current problems can be summarized as follows:
−
−
Congestion in the city centre
−
Shortage of car parking
neighbourhoods of the city
for
residents
in
the
oldest
Increase of offences against road safety rules and increase of the accident rate
The Valladolid City Comprehensive Plan of Urban Mobility (PIMUVA) is established with the
following objectives:
•
Pedestrian mobility: Traffic management within
the Historical Centre; Creation of Pedestrian Nets;
Management of the traffic lights cycle; Actions on
schools and hospitals surroundings
•
Public Transport: Improvement of commercial
speed; Improvement of routes; Improvement of
net coverage; Increase of bus lanes
•
Parking: Improvement of parking management;
new supply
•
Road network: Creation of a ring road;
improvement of signalling; improvement of the
information & guidance system; improvement of
intersection capacity and new intersections.
18
2.8
2.8.1
VALLETTA, MT
URBAN PROFILE
The policy submissions for the CITUM project were developed by the Ministry of Urban
Development and Roads from November 2005 through to February 2007. The submitted
analysis reflects urban, transport provision and policies of the time and within the study
timescales required by the CITUM project.
It is forecasted that there will be major changes to transport and mobility behaviour /
attitudes within Malta following the implementation of the CVA (Controlled Vehicular
Access) system for the Capital of Valletta, during the spring of 2007.
Valletta is the capital of Malta. It is UNESCO-proclaimed World Heritage City. Valletta was
built in 1565 by the Knights of St. John, following the Great Siege, originally designed as a
military city intended for defence against the Ottoman Empire.
Characteristics of Valletta: The Grand
Harbour; The grid pattern of streets (a
network of parallel streets laid out in an
orthogonal
grid);
Fortifications
clearly
delineating the city boundaries; the city is a
peninsula, with only one access point from
the surface and no through movements.
The population is currently stable with
approximately
7.000
residents,
while
workplaces exceed 35.000.
Main characteristics of the city: Open spaces
and piazzas; Main artery which crosses the
length of the entire city; Palazzos and Auberges / Knights’ inns; Strict planning and
building regulations adhered to at the time when Valletta was originally built; Stone colour,
stepped pavements, closed wooden balconies; Churches & religious buildings (Jesuit
influence).
2.8.2
MOBILITY PROFILE
Different modes of transportation to Valletta comprise:
−
Ferry connections between Sliema & Valletta
−
Restricted car entries (holders of V-licence only); V-Licences are granted for free to
residents.
−
Scheduled bus service: The central bus terminus is located at Valletta City Gate; a total
of 508 buses, all privately owned and managed by the Public Transport Association.
−
Other modes such as chartered coaches, taxis and karozzini (Horse - drawn cabs)
Movement from one part of the city to
another is restricted to cars, walking and
horse
drawn
cabs
for
tourists.
Full
pedestrianisation is provided for only in
Republic Street (the main street).
Main problems regarding Valletta are:
19
−
All modes of transportation, with the exception of cars, are perceived by the Maltese as
adequate only for tourists. Maltese public transport system is not meeting the
expectations of the Maltese public – as a result, the large majority use a car as a mode
of transport, not withstanding the short distances. Recent public opinion survey
revealed Maltese people are dissatisfied with the current public transport system.
−
Obstacles for pedestrians include cars parked on pavements and the open market stalls
during the day
To solve the above problems, the Maltese Government is adopting a strategy based on
Transit Orientated Development (TOD) for the Maltese Islands and the Grand Harbour hub.
TOD is a form of urban development that clusters a greater mixture of land uses around a
high quality transport service. The transport node, either train, light rail or bus terminus is
designed to be the focus for the development and ideally becomes the community 'heart'.
It is where people shop, work, meet, relax and live.
2.9
2.9.1
WEST ATHENS, GR
URBAN PROFILE
West Athens is at the fringe of the metropolitan area. It is physically separated from the
main metropolitan area by the river of Kifissos, which is actually being transformed into a
highway. It is one of the five (5) main geographical sectors of the metropolitan area,
namely Central Athens, Piraeus, East Athens, North Athens and West Athens. Its
population rises up to 750.000, including a rather large proportion of immigrants (legal
and illegal) and repatriates. The West Athens society is multi-coloured and multi-cultural,
albeit with a low level of integration regarding the many ethnic minorities.
The area, which has mainly developed the last 30 years, includes the municipalities of Agia
Varvara, Agii Anargyri, Egaleo, Zefyri, Ilion, Kamatero, Korydallos, Peristeri, Petroupoli and
Chaidari. The agglomeration of West Athens is one of the most downgraded areas of the
Athens Basin, with regards to the quality of urban environment, of social infrastructure and
of the spectrum and quality of services offered.
ASDA
is
an
organisation set
up by the 10
local authorities
y Ministries
y Second degree (prefecture)
of West Athens
y Governmental Organisations
y First degree (municipalities) to
deal
with
y Regional Authority
urban
affairs
such
as
planning
and
management,
social and economic development. The governance structure of the Athens Metropolitan
area is shared between the central government and local authorities as follows:
CENTRAL GOVERNMENT
LOCAL AUTHORITIES
As from the size of the area and the structure of government in Metropolitan Athens, ASDA
in all its activities has partners at the higher levels of representativeness because it is
impossible to establish co-operation with the hundreds of organisations operating at the
base level, such as neighbourhood associations, local commercial and manufacturing
associations.
The ASDA partners comprise : the central government; governmental organisations; local
authorities of first and second degree; Technical and Commercial associations (Chambers)
of national range; labour unions at the metropolitan level.
20
2.9.2
MOBILITY PROFILE
The transport network of West Athens has a structure that enhances the dependency of
the area from the Athens CBD2.
This dependency has, during the past decades, resulted in a systematic downgrading of
the area. In recent years, local development that owes a lot to the efforts of the local
society and authorities has occurred and led, in turn, to the development of a less
concentric transport network which supported the emergence of powerful sub-metropolitan
centers in West Athens.
Some of the salient urban mobility parameters are given below:
−
Car ownership 420 vehicles / 1000 inhabitants
−
Modal split 43/57 (public/private)
−
One metro terminal (one more under construction) and 3 stations overall (2 more under
construction) linking to the Athens CBD
−
More than 120 bus and trolleybus lines
Urban mobility problems are perceived by citizens as most important for a good life quality
when basic social and technical infrastructure is provided. Hence, they become milestones
at the political arena.
Complex administrative and competency structures, together with financial limitations,
lead the local authorities to search for easy, immediate and cheap solutions to urban
mobility problems, which are often inadequate.
On
the
other
hand,
transport infrastructure is
more welcome by the
central administration for
many
reasons,
in
opposition
to
softer
solutions
(system
or
demand
management)
which may even be more
efficient.
Enforcement
and
monitoring of applications
is equally, let alone more,
important than planning
and implementation.
Apart from the Urban Pilot
Project SWANS, very few
actions regarding urban
mobility
have
been
undertaken
in
West
Athens during the past 5
years, mainly due to the
rush
for
infrastructure
resulting from the 2004
Olympics. However, there
is a generalised conclusion
that the Olympic Legacy
has set the foundations for
2
CBD: Central Business District
21
a more sustainable and user-friendly mobility in the whole of the metropolitan area. ASDA,
hence, will focus its efforts in improving urban mobility by management-oriented actions in
the near future.
22
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Resulting from the lack of practical evidence, CITUM is restricted at the contextual level
only. Clearly, in CITUM is assessed the contextual framework within which the interaction
among mobility and development is dealt with in urban planning, focusing on the concept
of an integrated urban planning approach. However, given that a real integrated planning
approach is lacking in all CITUM cities, as in most European cities actually, the subject will
be tackled via its two facets, namely:
[A] FROM the Development domain TO the Mobility domain, and
[B] FROM the Mobility domain TO the Development domain.
The ultimate goal for the CITUM team of planners is, in any case, to achieve a more or less
integrated approach which shall treat urban development and the associated mobility
system (needs, policy and means) as a global task governed by the principles of citizenfriendliness and sustainability. Such an early attempt is the Transit-Oriented Development
(TOD) approach already adopted in Valletta and whose summary presentation precedes
the material of this chapter due to its importance for all.
By all means, TOD remains a distant goal for the rest of the practices, as it shall be clearly
shown throughout this chapter. In their majority, the experiences prove that the current
piecemeal approach, despite its increasing concern for sustainability and environmental
safeguarding, focuses on assessing the impact from a practice in either domain (urban
mobility or urban development) in a rather static manner, which fails to identify the
dynamics of evolution of the city and its vital components.
3.1
3.1.1
CASE STUDIES RELATIVE TO THE THEME
CASE STUDY
DEVELOPMENT
3.1.1.1
VALLETTA:
TRANSIT-ORIENTATED
Summary of the Practice
¾
Background Information and General Context
The Maltese Government ventured to create a system of regeneration projects under a
land concession regime in the 1990s by implementing Development Briefs and Action Plans
concentrated around the Harbour region. Between 2004-2006, the Government of Malta
had also launched two major regeneration and redevelopment projects of major brownfield
sites. In addition to the above a number of areas have been earmarked for large scale
regeneration.
One of the principle problems with the launching of the first projects was that there was
that there was more concentration on the economic drive without a holistic vision. Original
development briefs or plans did not refer to quality transit as a means regenerating areas.
Until recently no alternative transit modes were designed for Valletta. The launching of the
Park and Ride service and the Valletta Vertical Connection towards the end of 2006, have
been new alternative transit modes offered to curb this accessibility and mobility problems
through soft solutions.
23
Mobility options were previously limited to two modal choices:
9
Private motorcar.
9
Public bus system.
A general textbook description of TOD refers to a system of:
‘Urban development that clusters a greater mixture of land uses around a high quality
transport service. The transport node, either train, light rail or bus terminus is designed to
be the focus for the development and ideally becomes the community 'heart'. It is where
people shop, work, meet, relax and live.’
It is viewed that the implementation of TOD within the Valletta and Harbour area, will
resolve the pressing problems in regeneration projects by securing:
9
Transit components.
9
Economic and social regeneration.
9
Node and inter node redevelopment.
Benchmarking applied to the TOD concept has been conceived as the key driver to deliver
contemporary best practices in transport and land-use planning.
¾
Main issues / problems addressed
The issues to be addressed were on the following;
9
Addressing the ‘policy gaps’ in urban development and improving mobility.
9
Supporting Capital Projects of the regions through TOD, through a long term strategy.
9
Building new communities through TOD.
9
Rejuvenate the city of Valletta and thus stimulating further economic investment.
9
Instilling a change in culture.
9
Creating new transport routes around the region.
9
Improving connections between the cities and towns.
9
Halting the decline in public transport patronage.
9
Stimulating modal shifts to public transport.
9
Reducing congestion and dependence of the private motorcar.
9
Developing an efficient public transport system for all.
9
Launching new alternative transit modes.
9
Integrating regeneration and transit means.
9
Upgrading and regulating extant modes of transport.
3.1.1.2
Prorities and Solutions
The priorities were set and defined through a long process of internal and external
consultations and development briefs. MEPA initiated a review of Strategic Policy through
Public Consultation (i.e. Household Survey). ADT was involved in the short term to devise
a strategy and White Paper was compiled for a Transport Strategy.
Further prioritisation was undertaken with the formation of the MUDR and the National
Projects Committee which provides political direction in an integrated holistic approach at a
high level.
24
Part of the policy development process and priorities was refined further as the MUDR had
developed three project strands with TOD elements as part of the ADT’s participation in
the EU Project PAGUS (Assistance and Sustainable Urban Management Programme) which
is funded under INTERREG IIIC.
Working in conjunction with the ADT the MUDR has co-developed three project
components which comprises of:
9
Component 3A MOBILPLAN: Mobility Demand and Planning - The objective of the
study is to analyse the traffic patterns in the area and develop a feasibility study for
the introduction of an Urban Traffic Control (UTC) system in study area.
9
Component 3B C-ENTER: Mobility to and from Historic Centres - The objective of the
study is to analyse the impact of an access and parking charging system that is
planned for introduction in Valletta in the spring of 2007- referred to as Controlled
Vehicular Access (CVA) system.
9
Component 3C INNOTRANS: Innovative and non-polluting transport systems - The
objective of the study is to analyse the impact of the new innovative and
environmentally friendly modes of transport that are being planned for the Inner
Harbour area (centring on the Valletta and Floriana peninsula).
TOD policy has been developed further through the participation in the CITUM project and
the roll out of the CITUM survey. It has been normal practice for MUDR personnel to write
a report after each workshop event, highlighting transferability practices from the host
city.
3.1.1.3
Objectives and Strategies
The purpose of this Strategic policy was developed to address the Public Transport and
Urban Development issues through an integrated approach by developing a long term
Strategy based on the principles of ‘Transit Orientated Development’ (TOD).
25
This main objective evolves from the parameters set in the Ministry’s mission;
‘Regenerating the urban environment in the Maltese Islands through sustainable
development and safe, efficient and cost-effective land transportation.’
The objectives of the practice are:
9
Promote a positive centre/node image.
9
Protect, Rehabilitate, Regenerate and enhance local character.
9
Introduce a diversity of housing and residential units.
9
Ensure an active public realm.
9
Create a pedestrian-friendly environment.
9
Create permeable street networks and legible built environments.
9
Provide cycling facilities.
9
Bring eco-friendly traffic and promote new technology.
9
Encourage travel behaviour change.
9
Provide effective and inviting public transport services.
9
Provide direct and inviting links to public transport nodes.
9
Enhance connectivity between different travel modes.
9
Give public transport a high public profile.
9
Promote higher-density, mixed use development around public transport and urban
lifestyle amenities.
Publications produced by MEPA concentrating on the mobility issues and problems facing
the region were combined into the final TOD templates. In addition to this benchmarks as
set by the EU set out by the Commission White Paper on Transport: "European transport
policy for 2010 : time to decide" was incorporated into the above-mentioned policy papers
of the MUDR.
In the case of the first TOD-based Valletta Vertical Connection, the actions were taken
after the public consultation phase and when all the stakeholders had agreed to launch the
project. The National Project Committee (NPC) made the final decision to develop the
project and to launch the public consultation and tendering process.
3.1.1.4
Process and implementation of the project.
The R&D project involved a stepped approach;
9
Research of the local situation including evaluation of previous polices adopted,
historical analysis.
9
The benchmarking of operational practices abroad.
9
Recommendations produced in the Ministry’s policy papers.
The adaptability of the TOD policy thus contributed in the first TOD-based transit mode:
the Valletta Vertical Connection. The following stepped approach was undertaken:
9
Government led counter proposal following the rejection of the Cable Car project.
9
Valletta Transport White Paper Compilation.
9
Consultation Process.
9
Cabinet Committee (NPC) vetting.
9
New parameters and Objectives.
9
Site visit of the funicular railway operation in Budapest (during the CITUM workshop).
9
Technical and Feasibility Study.
9
Presentation of Results to Cabinet Committee (NPC).
9
MEPA Outline Permit application.
9
Draft Tender compilation.
26
9
Approval by Cabinet
.
9
Launching of Tender.
9
Negotiation.
9
Award of Tender and Implementation.
9
Regulation.
3.1.1.5
Interaction among transport and urban development and
the current legislative context.
¾
Assessment of impact on traffic and transport
A Traffic Impact Statement (TIS) is required and mandatory through secondary legislation
and primary legislation as part of the Development Planning Act and Structure Plan
Policies.
The TIS is a holistic approach which includes Environment Impact and the practice involves
a stepped approach as part of the planning application system and the consultation
process.
¾
Impact assessment methodology
Traffic impact and Environmental Impact Assessments are mandatory especially under the
legislative parameters set out in LN 204/2001 Development Planning Act CAP.356
Environmental Impact Assessment Regulations, 2001.
These can be fully amended as part of the consultation process. In some cases negative
TIS’s and EIA’s have directed MEPA (Malta and Environment Planning Authority) to decide
for an outright refusal.
3.1.1.6
Transferability, Conclusions and Benefits
¾
Lessons learned
TOD policy advocates the orientation of future transport systems to facilitate journeys and
increase accessibility and the urban environment. The transport network becomes the spin
off for housing rehabilitation, large-scale developments (retail or culture) in historical and
suburban areas.
TOD also concentrates on integrating transit infrastructure construction with both new
developments and area renewal policies. In the case of Valletta, this has been applied to
the Cruise Liner Terminal. The Vertical Connection will once again restore a link that
previously existed. The system would sustain the Cruise Liner Terminal and vice-versa. The
application of the new system linking the sites will also regenerate derelict and underutilised space and restore the fortifications in that area.
Specific research found in Italy and the USA has highlighted how with the advent of TOD,
there has been many positive effects post policy interventions. The local real estate market
recorded positive results due to the opening of new quality transit connections.
¾
Main innovative aspects
9
Increased accessibility and transportation option through effective land use.
9
Reduced the distance required for car trips, allows a greater portion of trips to be
made by walking and cycling or public transit.
9
Developments shaped by transit and vice versa.
9
The creation of compact, mixed-used communities, with shops, other services within
convenient walking distances within the TOD neighborhoods.
9
TOD may revitalise declining neighbourhoods and urban centres.
27
9
Improved accessibility to jobs
9
Positive impacts on the local real estate market, as areas become fully supported
through transit.
... thus leading to:
9
An efficient and modern public transit system.
9
The improvement of the environment.
9
Enhancing existing investment.
9
An attractive area for leisure and tourism.
9
Regenerating depressed communities.
¾
Potential for transferability
Examples of specific TOD policy application whereby urban renewal and transport
improvements are linked and vice versa are found in the following European cities:
9
Stockholm (Sweden),
9
Karlsruhe (Germany),
9
Naples (Italy).
Beyond the European context other notable TOD examples being implemented are found
in:
9
Perth (Western Australia).
9
Melbourne (State of Victoria, Australia)
9
Portland (State of Oregon, USA)
9
Denver (State of Colorado, USA)
9
Calgary (Canada)
9
Vancouver (Canada).
The first specific TOD based transport mode for Valletta and the whole of the island itself is
the Valletta Vertical Connection. Although the system development is currently in the
tendering stage and will be operational after the CITUM project concludes its findings, the
principles of the policy may be transferred to a city or town that has set objectives to
regenerate and improve its functionality whilst integrating
the improvements to
environment of the suburban ambiance.
3.1.2
CASE STUDY VALLADOLID: SHARE CAR, PARK
FREE
3.1.2.1
The center of Valladolid is characterized by being the destination of most business, leisure
and shopping trips. The high number of vehicles in movement searching for a parking
place generates difficulties to managing mobility. The low occupancy rate of vehicles
(around 1,2 passengers / vehicle) is a factor that increases the high number of accesses of
private vehicles to the city. The Urban Deterrent Parking has as its aim to deter private
vehicles from accessing to the city center.
Valladolid has now 1,032 parking places in 4 Urban Deterrent Parking (ADU) placed near
the city center.
The four ADU have a very low fare in order to promote their use and to continue the
journey up to the city center using other ways of transport.
In spite of the very low fare, the good connection with the city center through public
transport and the short period of time on foot (12 minutes), the ADU placed in the “Feria
28
de Muestras”, presents a low occupation (25%) and an average place occupation of 70
minutes.
3.1.2.2
Priorities and solutions
A study was made in order to obtain data about the previous situation about the urban
goods distribution. This study was the “CITY Freight” Project
From the study it was obtained:
1. The data necessary to assess the present situation
2. Several measures for the solution of the problem.
The better solution was to improve the regulation of the L&U zones, because the incorrect
use of the reserves generated a lot of problems:
9
Illegal parking
9
Reduction in the capacity of the roadway
9
Insecurity in the circulation.
3.1.2.3
Objectives, strategies and mobilisation of resources
One of the actions that improve the efficiency of the transport system is to increase
occupation for any of the vehicles integrated in this system, a good measure of
encouraging the use of a car shared is “PARK FREE”.
For drivers and / or passengers of the car shared the advantages are several:
9
The expenses of using the vehicle are reduced both concerning to inversionamortization and its use (fuel, maintenance, repairs and parking)
9
When not driving, stress is reduced.
3.1.2.4
Process and implementation of the project
It is necessary to say that the municipality of Valladolid has conceded the parking
regulation of vehicles to a private enterprise (among to manage the ADU), so this
enterprise is engaged to control the work of the new measure.
The first step was to start with the advertising campaign. Then it has been necessary to
install a stall, place some staff in it and install technical and technological equipment to
control and manage the parking place.
The initial investment amounts to an estimated overall cost of 67.000 €:
9
Control stall an its appropriate furniture
9
Civil work, electric connection included
9
Control equipment
9
Informative sign at the entrance.
9
Advertising campaign
The yearly operating cost amounts to an estimated overall cost of 50.000 € (including the
advertising campaign to reinforce its use, maintenance, etc )
3.1.2.5
Results achieved in relation to the objectives
The pilot implementation started in January 2006, but the installation it is not completed
yet. (The Control equipment does not work yet, at the moment the control is manual). At
the moment the occupation of the ADU has not increased much, about 10%
29
3.1.2.6
¾
Impact on Urban Development
Effects of the practice on the natural environment.
At the moment the occupation of the ADU has not increased much, about 10% , but these
vehicles don’t enter the city center
¾
Justification of these effects
In order to have better effects it is necessary to try to increase the use of the parking. This
is difficult to achieve due to current car occupancy rates which are low.
¾
Modifications to the practice to abate its eventual negative effects
To increase the use of the parking we are going to change the number of necessary
passengers, the number of passengers will be 3 or more.
3.1.2.7
The design of the advertising campaign and its adequate dissemination or its insertion in
the media is definitive to achieve the pursued aims in a new mobility experience .
Recurrent journeys, in cities mainly, mean almost 60% of the reasons for traveling and
around 80% of the journeys in private vehicles are carried out because of one of these
causes.
The natural deduction then is that the most adequate place to promote and favor the car
shared are job and study centers because in them we can find both assumptions and it is
possible to put in touch people that live close and in this way to fulfill the first requirement.
3.2
LEGISLATION
MOTIVATION [A1]
OR
ADMINISTRATIVE
Legislation (lack of …) is often replaced or supplemented by the motivation of local
administrations, at least where genuine democracy prevails over formal procedures and/or
where local societies feeling neglected by central authorities wish to show a reliable and
citizen-friendly profile.
Q: Is there a legislation or administrative motivation regarding the assessment of the
interaction among Urban Spatial Planning and Urban Mobility?
A - Impact O
ONN U
Urrbbaann M
Moobbiilliittyy resulting FROM U
Urrbbaann PPllaannnniinngg // D
Deevveellooppm
meenntt
practices
YES
ALEX’POLIS
x
X
CATANIA
CSEPEL
x
LARNACA
x
VALLADOLID
x
30
NO
YES
VALLETTA
x
WEST ATHENS
x
NO
B - Impact O
ONN U
Urrbbaann PPllaannnniinngg // D
Deevveellooppm
meenntt resulting FFRRO
OM
MU
Urrbbaann M
Moobbiilliittyy
practices
YES
ALEX’POLIS
x
CATANIA
x
NO
X
CSEPEL
LARNACA
x
VALLADOLID
x
VALLETTA
x
WEST ATHENS
x
Some useful comments:
•
ALEX’POLIS
[A]:
The procedure of impact assessment on urban mobility exists only at the strategic
level of spatial planning (Metropolitan Master-Plan, Law 2508/97 on "Sustainable Urban
Development"). Moreover, the impact on urban mobility resulting from urban planning is
assessed, in a smaller degree, also in lower levels of spatial planning (Municipal Territorial
Plan, Town Plan, Regeneration Plan).
[B]:
Even though it is acknowledged that the relation between urban planning
/development and urban mobility is a relation of interdependence, there is not any formal
determination of this relation in administrative terms. The only exception arises from the
obligation of an environmental impact assessment almost for every project at the preimplementation stage, which involves among others the impact on urban planning /
development.
•
CSEPEL
[A]:
As a preface: The administrative system of the city of Budapest is characterised by
a two-tier structure, where the organisational structure, operation and duties of the
Budapest Municipality are separated from the system of the 23 district governments. (One
of these 23 districts is Csepel). This double structure is present in most planning,
regulating, maintaining and financing processes, causing huge difficulties both for the
districts and also for the Municipality of Budapest. In case of management, maintenance,
operation and planning of the mobility system, the Municipality of Budapest has the
responsibility, and districts – like Csepel – can barely influence it.
The topic of the effect of urban planning to mobility planning may be evaluated in two
dimensions:
The problem may be evaluated in two dimensions: (1) on city wide level – strategic
development plans, and (2) on large scale urban development level, where the direct
mobility impact may be assessed.
31
On city wide level urban mobility planning and urban development planning should go
hand in hand, where mobility plans are based on urban development plans (strategic plans
– concepts, programmes) and vice versa. The mobility planning is based on national or EU
directives like the white paper of 2001. But these strategies are sometimes too soft, and
do not create a real framework for sectoral planning. In some cases, exact mobility plans
or ideas exist before a wider strategy is created, or strategies must follow and support the
existing mobility plans.
In case of large scale development projects the direct impact of the investment on urban
mobility practice is measured or assessed by different means. Overall there are no efficient
tools for measuring the mobility impact and giving feedback to the realisation of the
investment.
[B]:
The answer is no concerning the legislative aspect or administrative motivations.
As for the practical aspect, there are cases where impacts on urban development result
from urban mobility practice, but not linked to a special legislative background.
Normally the need for urban mobility practices arises from urban development strategies.
But sometimes urban mobility projects determine urban development strategies in an
unhealthy way. This is when a sectoral element is placed above a higher level strategy by
political will and the urban strategy has to incorporate it without strict control. As the
implementation of urban development projects hardly follows any conceptual guidelines
(except for spatial planning) we may state that large scale mobility developments are
mostly just following urban development procedures.
In parallel, new mobility developments also generate new urban development projects. In
most of the cases there is a time lag which is represented by the share of the development
costs: the public sphere finances the mobility projects while the private sphere finances
private investments. The public sphere does not benefit from the increase of the value of
the urban space caused by its mobility type of investments.
•
[A]:
CATANIA:
---
[B]:
A framework for the assessment of the Urban Mobility practices is sought for from
the Urban Traffic Plan, which the city of Catania has yet not adopted, since its Mayor has
been delegated Traffic Commissioner by the Italian government and this gives him powers
otherwise devoted to the Plan
•
[A]:
LARNACA
---
[B]:
An environmental impact assessment is carried out at the planning stage which
includes urban development issues
•
VALLADOLID
[A]:
Valladolid has a GENERAL TOWN PLANNING. This plan defines how and what can
be in terms of urban development in each zone of the city. In this PLAN are also defined
street rights-of-way, locations of parkings and other mobility-related issues.
[B]:
Valladolid has an INTEGRATED URBAN MOBILITY PLAN. The objective is to plan
different actions to develop both the urban network and the collective public transport
network to meet transport demand.
•
VALLETTA
32
This assessment framework falls under two organisations, i.e. the Malta Planning and
Environment Authority (MEPA) & the Malta Transport Authority (ADT).
However the problems identified with the procedures adopted are as follows:
−
Reporting benchmarks are not compatible with each other; they tend to compete with
each other.
−
There are no set annual performance measures and targets with published results.
−
History has shown that in some cases reporting assessments tend to be “reactionary”
to events, which had occurred previously and thus has had a detrimental effect to the
environment.
Although reports developed ‘in house’ by the above two organisations have identified a
number of initiatives and policy ideas, successive papers have been unsuccessful in linking
the concept of effective urban planning with clean modern forms of transit or have not
engaged in a structured strategy.
Policies produced by MEPA established structure policy frameworks for these to be
implemented, however these have not been devised due to external factors beyond its
control. A lack of ownership and fragmentation hampered policy implementation.
•
[A]:
WEST ATHENS
---
[B]:
The legislation in vigour requires that all major projects are subject to the
environmental impact assessment before final approval (major projects are defined clearly
in the legislation). This procedure involves impact on the urban tissue and functions as
well. However, all other practices are excepted from that obligation and everything is left
to ad hoc initiatives of (a small number among) the authorities concerned.
3.3
PROCEDURES [A2]
Procedures adopted for the assessment of the interaction between mobility and
development.
Q: What type of procedure is usually adopted for assessing the impact?
•
ALEX’POLIS
[A] Development >>> Mobility
In all the above-mentioned planning instruments, first step is to examine the system of
land-uses (type, density, spatial allocation etc.) and then to determine the form and the
size of system of transport /urban mobility that will correspond in the needs of region.
[B] Mobility >>> Development
According the type and the size of the projects, it could be a complementary study (Type
A: big scale projects - multicriteria impact assessment methodology) or a simple
questionnaire (Type B: small scale projects - questionnaire with dummy variables YES or
NO)
•
CATANIA
33
--[B] Mobility >>> Development
They have to be set by the Urban Traffic Plan
•
CSEPEL
On level 1, urban development strategies contain mobility chapters (priorities) and these
priorities must be converted into exact mobility plans and later into projects. If the
implemented practice fits the original goal of the urban planning document and a positive
feedback can be done, urban and mobility planning has a healthy relationship, neither of
them having a real dominance above the other. The next revision of the mobility strategies
can answer to the more comprehensive urban development strategy, if original goals were
to be achieved.
On level 2 we should differentiate between types of legal obligations:
−
The interaction between urban development and mobility needs are handled
through spatial development plans. However there are no legal obligations to
secure that certain developments are not implemented while the transport
infrastructure needed is not completed.
−
From 2006 there is a new possibility laid down in the construction law that
municipalities are allowed to make contracts with the developers in order to force
them to finance certain public investments connected to their projects. Mostly
transport infrastructure needs are financed this way.
−
According to the construction law it is compulsory to create certain number of
parking places for each new residential unit and also for a certain office space. This
would indicate that at least the parking effect of large scale urban developments is
to be handled.
−
There are regulations that make it mandatory to carry out environmental impact
assessment before the construction of shopping malls above a certain size. This
assessment deals with mobility needs as well. (There are no similar obligations in
case of sky scrapers as it is practically prohibited to construct a building above a
certain height).
---
•
LARNACA
At planning stage an environmental impact assessment is carried out which includes
mobility issues and mobility simulations. After completion of the urban practice a traffic
census is carried out to assess the suitability of the practice
---
•
VALLADOLID
The projects of the new developments “theoretically” must contain information about the
impact of the new mobility generated. The standards about mobility generation limits
relative to these projects are fixed in the PIMUVA (Urban Mobility Planning). They must
calculate the number of new generated trips, the impact of those trips in the present
routes and then propose solutions.
34
For assessing the impact on urban mobility resulting from Urban Planning, after its
completion, the only procedure is through observation (new traffic jams, new accidents…).
When the town planning department decides to work in an area of the city, it has to
consult the mobility department. The mobility department suggests solutions about
mobility (type and size of the roads, number of lanes, parking places...). Following this,
the department of public transport sets up bus services based on the demand.
•
VALLETTA
With the formation of the Projects and Coordination Unit within the Ministry of Urban
Development and Roads, the importance of having such assessments is realised on the
future policy development of combining both transit and urban planning through Transit
Orientated Development (TOD).
Thus, this ‘policy gap’ is to be addressed. Currently this Unit is in the research and
development stage of defining performance and inspection regime, which have been
labelled as the ‘Regeneration Performance Assessment’ (RPA).
The framework behind this principle is based in successful policy reform measures found in
the UK and the State of Victoria, Australia, known as ‘Best Value,’ relying on performance
indicators. It is envisaged that the measure will be developed through a possible joint
venture with a European partner over the next year
•
WEST ATHENS
Any urban development project (commercial center, parking, industrial or leisure complex)
needs a traffic license before the building permit is issued. This license results from the
obligation of the developer to build a parking within the development. As a consequence,
the traffic impact assessment related to the normal operation of the parking and does not
comprise access to the development by other transport modes (taxis, buses, motorcycles
etc.). This is a serious gap, because of the ever-increasing usage of motorcycles and taxis
for that sort of trips.
Assessment of impact on traffic is based on static uni-dimensional traffic assignment
models and normative graphs. Therefore the product of the assessment is usually
ambiguous and rather downscaled. Impact on traffic is limited to the overcharge of the
adjacent links and interchanges but does not extend to e.g. the occupation of on-street
parking supply or the effects on pedestrian crossings.
The above procedure is applied in parkings of capacity higher than 200. Smaller
developments are not subject to the legislation.
There are 2 types of environmental impact assessment procedures, depending on the type
and the size of the projects concerned (defined clearly by legislation).
Type A procedure is a strict multicriteria impact assessment methodology specified by the
legislation, which requires a lot of resources and effort and is usually the subject of
additional studies.
Type B procedure, which refers to smaller scale major projects, is a simple YES/NO
questionnaire that has to accompany the technical studies. This questionnaire is long and
embraces all the relevant parameters, but the answer provided does not need to be
supported by relevant evidence.
35
3.4
TYPES OF BENCHMARKING USED [A3]
Q: What type of benchmarking is used, if any?
•
ALEX’POLIS & CATANIA
None, for the time being.
•
CSEPEL
Generally comparative benchmarking is used when the given planning method or a given
project type is compared to others in order to get the most appropriate results. But the
rules of this process aren’t general,
They depend on the given urban planning project causing impacts on urban mobility.
In general, there are indicators to be shown before and after the investment, like the
increase of the individual car use by office square meter, or the number of the cars by
apartments, etc…
On the other hand, needs for new mobility projects are often higher than the available
financial resources, whereas the project selection methodology is more or less based on
strong political decisions. Clearly, feasibility studies (impact assessments, CBAs, etc…)
have to prove the necessity of a given mobility practice compared to others that are not
financed. That is why the chosen mobility projects can be treated after as parts of a wider
urban development strategy.
•
VALLADOLID
1. Wait for the new practice to stabilise (state of equilibrium).
3. Assess the mobility generated (increases of volume of traffic, new itineraries…) and
related public opinion.
4. Try and solve the new problems (e.g. change one-way streets, install traffic lights, ban
L-Turns or U-Turns, new bus-stops.)
Usually the actions on mobility follow the town planning practices, but the more important
benchmarking is the experience and knowledge of the city. It is very important to compile
previous information about similar projects and check the results
•
VALLETTA
The concept of benchmarking has been identified as the most important element of any
policy development within the MUDR, from the R&D stages through to actual
implementation. The application of benchmarking concepts is used as the key driver for
direction and the launch pad for a number of new and exciting initiatives.
From comparing the processes, the MUDR has achieved an excellent framework, for its
ongoing and future development needs. The application of benchmarking has been the
applied in the following policy papers developed by the MUDR:
1.
A Strategic Policy for Urban Development and Land Transportation
2.
A BRT System for the Maltese Islands.
3.
Valletta Vertical Connection (Funicular Railway and Lifts).
36
4.
A Public Transport Strategy for Malta.
5.
An Urban Regeneration Agency for the Maltese Islands.
As part of the policy development process the MUDR Policy and Research Development
team reviewed not just local, national, Member State & EU policies, but also undertook a
research into the transit and urban planning of international island destinations. This
comparative process compared the island of Malta some of the following examples: Isle of
Wight, Cyprus, Ibiza, Lanzarote, Majorca, Minorca, Tenerife, Crete, Kos, Rhodes, The
Channel Islands, Barbados, Bermuda, Jamaica.
The research included a comparative analysis of the following:
1.
The different types of transit modality within the state.
2.
Location of the public transit points – i.e. Bus Stations, routes etc.
3.
Road infrastructure.
4.
Major tourist hubs in the island.
5.
Large scale infrastructure and construction projects.
6.
Planning strategies and polices.
7.
Transport improvement plans.
8.
Historical transit provision of the island.
9.
Population, demographics and car ownership figures.
By applying the benchmarking concept MUDR officials were able to explore and compare
best practice examples of urban and transport delivery in the island state. A number of
like-for-like benchmarks where identified to compare Malta against the provision found in
others.
Some of the islands reviewed have studied the reopening of former systems or the
introduction of new transit operations. A number of the islands studied are also
undertaking large scale (when compared with the islands size) building and development
projects.
Thus from the perspective of the MUDR in Malta, this saw the adoption of ‘Transit
Orientated Development’ (TOD) as a guiding planning and transit theme in all policy and
publication development. It is felt that the application of TOD will encourage public
transport use through land use planning involves the planning of new land development
and the management of existing land. This continuous process will be continued to be
utilised by the MUDR for future measures, urban, transit projects and policy measures.
•
WEST ATHENS
The benchmarking used is limited to (a) the estimation of peaks based on the standard
graphs devised by the Ministry of The Environment, Physical Planning & Public Works
(MEPPPW) and (b) the 6 levels of service defined by the Highway Capacity Manual. Input
data and the results of the modelling procedures are not checked based on any
benchmarking.
No benchmarking is established. The assessment is a product of negotiations between the
controlling authority and the practice instigators, including their technical and consulting
support.
37
3.5
CONSEQUENCES
PLANNING [A4]
OF
PROCEDURES
ON
Q: Which are the usual consequences of the above mentioned procedures?
•
ALEX’POLIS
In most cases, the practices expected from the planning instruments are not supported by
appropriate urban mobility practices. This results in the absence of an integrated
procedure.
As a rule, urban mobility practices are implemented without any procedure for assessing
the impact on Urban Planning / Development
•
CATANIA
Changing in the planning
•
CSEPEL
The integration of urban and mobility needs is more easy to implement in case of smaller
scale urban development projects, where the investor pays for the new mobility
infrastructure, and when the impact of the development on urban mobility is obvious.
Problem always occurs when large scale projects are implemented, and the mobility effects
are not properly assessed. The tool for integration in this case is the spatial plan, but
there are no obligations for the proper order of investments in order that mobility
investments should precede other large scale constructions, and mobility investments are
usually left over.
•
VALLADOLID
Procedures are not always carried out, as it is faster and easier to launch practices without
concertation with other departments.
•
VALLETTA
Because of previous benchmarking studies and the application of TOD, today the entire
MUDR documents are now branded with ‘TOD’ and the principles of TOD are embraced
throughout as a key strategic driver.
•
WEST ATHENS
Most urban developments create higher-than-forecasted charges to the built and natural
environment in their vicinity. Traffic and accessibility are usually deteriorated thanks to the
underestimation of the impact. Pedestrian space, comfort and safety are continuously
restricted.
38
In the few cases where such phenomena do not occur, it is because of the will of the
developers to offer attractive solutions to their customers and not of the measures taken
by authorities (minimum requirements, which are not sufficient most of the time).
Except a few specific cases, there has not been any change in the planning and studies of
practices subject to the environmental impact assessment as a result of this procedure.
Most assessment procedures lead to the approval of the practices.
In addition, there has not been any request from social, professional or scientific bodies to
the authorities to extend the framework to more practices except those determined by
legislation.
3.6
FEEDBACK OF
PLANNING [A5]
IMPACT
ASSESSMENT
ON
Q: How often the results of the impact assessment modify the initial practice?
Never
Rarely
Sometimes
Often
Always
X
ALEX’POLIS
X
CATANIA
X
CSEPEL
X
LARNACA
X
VALLADOLID
X
VALLETTA
X
WEST ATHENS
Never
Rarely
Sometimes
Often
X
ALEX’POLIS
X
CATANIA
CSEPEL
X
X
LARNACA
VALLADOLID
X
X
VALLETTA
WEST ATHENS
Always
X
•
ALEX’POLIS
Even though the results of impact assessment of urban mobility practises are taken under
consideration in urban planning procedures, there are few cases where the results can
change the initial practices of spatial planning. Urban mobility practices are being
conformed to the specifications of the spatial plan in vigour
39
Every urban mobility practice should conform to the directives given through the planning
instruments (Metropolitan Master-Plans, Integrated Urban Intervention Plans, Municipal
Territorial Plans, Town Plans, Regeneration Studies). Consequently the urban
planning/development works more as a framework, having effects in urban mobility
practices and not the opposite. Generally, concerning environmental impact assessments,
they are elaborated according to the initial practices, minimizing the chances of any
modification.
•
CATANIA
Despite there is no framework for ex post evaluation, the assessment of the urban mobility
practices (which is normally made just through a “visual” observation of its effects) very
often brings to some modifications.
•
CSEPEL
There is scarce information on mobility impact studies that resulted modifications on the
realisation of concrete urban development projects. Mostly not the development project
itself, but the mobility structure changes as a result of the impact studies.
It is more usual that urban mobility practices have impacts on other urban mobility
practices sometimes caused by more general urban development projects (chain reactions
Impact assessment procedures generally support the original ideas, not giving real
alternatives that could result in the restructuring or improvement of the original plans.
New mobility practices generate new needs for urban development. The impact
assessment of the mobility practices in this case is made by the market: new investments
are applied, that increase the need for new transport solutions.
•
LARNACA
In case that the results of the impact assessment show significant deviation from the initial
plans then they are modified accordingly.
•
VALLADOLID
The mobility department suggests solutions, but after the decision to implement a practice
has been taken, resulting in that the solution is suggested after instead of before.
A practice can sometimes be modified, but only in the small scale and/or due to very
important results. The majority of the decisions are difficult to change
•
VALLETTA
The consultation and vetting process (MEPA Planning Applications) determines the viability,
the environmental impact of the project and whether this fits within the planning
parameters for local and strategic policies
40
As yet the public has not availed itself of consultation as a planning process. Although
consultation is a legal procedure it is only on very ‘hot’ local and national projects that
citizen reactions are raised.
•
WEST ATHENS
Changes or abandon of the initial plans are not frequent unless serious planning errors are
identified early.
Except a few specific cases, there has not been any change in the planning and studies of
practices subject to the environmental impact assessment as a result of this procedure.
Most assessment procedures lead to the approval of the practices.
In addition, there has not been any request from social, professional or scientific bodies to
the authorities to extend the framework to more practices except those determined by
legislation.
3.7
PROCEDURES OF RESPONSE / ADAPTATION
IN CASE OF NEGATIVE IMPACT [A6]
Q: What is the usual procedure adopted in case of estimated negative effects?
•
ALEX’POLIS
The directives given by the planning instruments do not allow in any case the generation of
negative effects in urban mobility. This is also ensured by the fact that during the
elaboration and before the approval of spatial plans, all parameters that affect directly or
indirectly the urban mobility of the region is taken under consideration.
•
CATANIA
The practice is often retired.
•
CSEPEL
In Hungary the predicted negative effects of certain developments (either in the planning
or in the realised phase) can mobilize NGOs, some of which are constructive whereas
others are demonstrative. Sometimes these NGOs are mere instruments in the hands of
political forces, used in order to block a given investment. Furthermore, the culture and
the administrative background for making NGOs an equal partner are too weak. Usually
people bow to accept negative effects without fighting for truth. In principle it is possible to
contest against a construction permit if negative effects are estimated, but this is not
frequent. . The more a project is local, and the number of stakeholders is limited, the more
the caused negative effects may be reduced by negotiations.
As impact assessment studies are often financed by the investor, resulting in that the role
of the assessment is more symbolic than real, negative effects are usually shown to be
41
reduced compared to the advantages in order to permit the investment. In case real
negative effects are estimated in the planning period, modified alternatives of the original
version have to be prepared. If negative effects show up after the initiation of the
investment, smaller restructuring measures can be taken, but only if the social pressure is
very intensive. Anyway, protest is not strong enough yet in case of urban mobility
projects.
•
VALLADOLID
The results serve to modify future phases or futures projects
•
VALLETTA
MEPA Boards often propose reconsiderations and changes in the plans for any project,
which does not meet MEPA Directorate conditions. Failing this Boards issue refusals.
•
WEST ATHENS
Revision of the studies and promotion campaigns to alleviate social pressures at equal
proportions.
3.8
INFLUENCE OF SOCIAL INTERVENTION [A7]
Q: To what extent social pressures may interfere in and modify the outcome of the
procedure?
Never
Rarely
Sometimes
X
CATANIA
X
LARNACA
X
VALLADOLID
X
VALLETTA
X
WEST ATHENS
Always
X
ALEX’POLIS
CSEPEL
Often
X
•
ALEX’POLIS
The degree of citizen’s involvement and their role concerning the results of the procedure
(impact of urban planning on urban mobility) are defined through the public consultations /
open discussions that take place for the approval of spatial plans
•
CATANIA
Politicians are very sensitive at citizens’ attitudes. Shop owners, in particular, have often
influenced decisions concerning urban mobility.
•
CSEPEL
42
Social pressure is mostly formulated throughout NGOs (see above). The majority of social
groups, however, are not able to assess the eventual negative mobility effects of urban
development and, hence, there are no protests.
Usually social pressure in Hungary isn’t strong enough to modify urban development
procedures on a larger scale. Only local level projects can be altered by social pressure,
given the fact that the protest has political backing.
•
LARNACA
Social issues are very important and constitute a major part of the initial impact
assessment
•
VALLADOLID
Social pressure is very important, because the politicians have the final decisions.
Nonetheless, authorities tend to adopt a firmer position in order to avoid losing their
credibility.
•
VALLETTA
Public consultation is not viewed positively but is slowly becoming a standard practice with
citizens to get involved in the processing. Often citizens do not avail themselves of this
service
There have been cases where social pressures have determined the processing of project
applications and designs
•
WEST ATHENS
This is very often the case when badly-designed or excessive practices incur obvious
effects on their vicinity, which are easily apprehended by neighbours or by social /
environmental associations
This is very often the case when badly-designed or excessive practices incur obvious
effects on their adjacent transport networks (e.g. excessive congestion, perceived or
actual), which are easily apprehended by neighbours or by social / environmental
associations
3.9
VARIANCE DUE TO THE INVOLVEMENT OF
THE PRIVATE SECTOR [A8]
Q: Regarding the above procedures, are they differentiated as a function of the level
of involvement of the private sector?
43
ALL OTHER CITIES: NO
VALLETTA: YES. The private sector often reacts differently and safe guards its interests
planning and development through direct involvement in the planning process.
General comments and statements
•
ALEX’POLIS
A better integration of spatial and transport planning is a key to achieving better
accessibility and to manage the need for travel. At the urban planning level, this
can be achieved by, for instance, a better spatial mix of economic activities
backed by improvements in public transport, cycling and walking facilities, and
by restrictions on parking. («Are we moving in the right direction? Indicators on
transport and environment integration in the EU», European Environment Agency,
Environmental issues series No 12, Feb 2000).
•
LARNACA
Environmental impact assessments which encompass economic, social and technical /
environmental issues are checked by an independent government department to ensure
impartial decisions
•
VALLETTA
The MUDR policy of TOD has combined urban regeneration with transit modes. Thus, this
embracement of a number of these ideas will help Valletta and the Harbour Area to reform
effective land use planning, supported by a modern 21st century transit system.
This policy adoption has a comprehensive and holistic approach towards achieving one
common Government strategy. The adaptation of the Transit Orientated Development
concept, applied locally is sought to create a synergy between all the major capital projects
in Malta the land transport issues, whilst revitalising urban and suburban neighbourhoods,
communities and the economy of Maltese Islands.
It is viewed that the development of the RPA performance measures based on the
principles of TOD would help build the relationship between the impact on urban mobility
resulting from Urban Planning / Development practices and vice versa. The results from
this policy development will enable the MUDR to plan effectively for the future needs of
transit, mobility and the urban development of Valletta and the Harbour Area.
The development of this strategy is taking ‘a fresh approach’ in devising alternative ideas
to those presented in previous studies, policies and plans. This fresh approach will not seek
to re-invent systems but constructively regenerate, re-vamp and re-manage established
elements. These will form the basis of a flexible set of implementation plans as an
assurance of catalysing a projects orientated strategy.
•
WEST ATHENS
In summary:
-
Current practice and legislation impose a more or less effective environmental
impact assessment to transport physical projects above a certain threshold defined
by law.
44
-
All other practices are not assessed, although they should.
-
It seems that the effects on the urban tissue from softer practices, such as traffic
management schemes, are not perceived by authorities, professionals and citizens
as being important, although they are in a lot of cases, as shown by reality.
45
44 TTH
BIILLIITTY
HE
EM
Y
ME
E B
B:: E
EV
VA
ALLU
UA
ATTIIO
ON
N O
OFF U
UR
RB
BA
AN
N M
MO
OB
P
PR
RA
AC
CTTIIC
CE
ES
S
Findings from the baseline work in this chapter reveal that urban mobility practices are
evaluated for the sake of formality rather than for the sake of learning and improving.
There are two main shortcomings identified:
i.
Ex ante evaluation is often uni-dimensional or with a narrow, and certainly static,
scope.
ii.
Ex post evaluation is restricted in the majority of cases at the physical object and
its financial features. Cities very scarcely evaluate the performance of an urban
mobility practice through a multi-criteria approach which encompasses all its main
performance indices and its impact.
Resulting from the above, planners are missing a unique opportunity to learn and improve
their practical tasks and skills, as, despite the general acknowledgment that the ex post
evaluation can lead to a better planning and ex ante evaluation in the near future, such
instances occur very rarely, due to lack of both resources and political will.
Nowhere in the base material can a systematic and dynamic approach, as outlined above,
be seen and, consequently, this chapter is mainly dedicated to assess the gaps and
bottlenecks of current practice rather than provide good practice examples.
4.1
4.1.1
CASE STUDY WEST ATHENS – EVALUATION
PROCESS OF THE CENTRAL AXIS OF SUSTAINABLE
TRANSPORT (CAST)
4.1.1.1
The CAST is a concept of conviviality between all users of urban transport: pedestrians,
cyclists, public transport passengers and even slow car drivers. On the other hand, the
CAST runs all along the urban area of West Athens linking the municipal cores to the dense
residential areas and public spaces.
The Urban Pilot Project SWANS (Sustainable West Athens Novelty Scheme) proposed the
establishment of a large number of distinct but complimentary interventions (23 individual
actions in total), structured around a number of core components. The Intermunicipal
Centre for Information Management forms the functional backbone of SWANS, whilst the
Central Axis of Sustainable Transport (CAST) is the physical backbone. The Unit
for Support to SMEs, an action area explicitly endorsed in the EC Framework for Action
document, is the organisational backbone of the UPP, while all financial and management
functions were the responsibility of the SWANS Management Fund. Each of these actions
performed different functions, complementing and reinforcing each other.
The integrated approach not only cut across the core competencies, but is also reflected in
the formulation of key actions. For example, CAST was planned and designed using a
multi-criteria approach comprising of Bioclimatic performance, transport compatibility
(both private and public) and urban planning. The nature and needs of the locality also
influenced the final decision for the sustainable transport route.
46
4.1.1.2
Objectives and strategies
A synergetic multicriteria approach has been adopted for the planning and design of the
CAST - Central Axis for Sustainable Transport (together with the Info Bus System, another
parallel Action of the UPP SWANS). This approach is based on 3 main criteria: (a)
proximity to the sub-metropolitan centers of the area as well as to the main urban
functions such as educational and social facilities, leisure and sports etc. to enhance
centrality; (b) prioritization of sustainable travel means (mini buses, pedestrians
and cycles) on the CAST, and (c) adoption of bioclimatic design principles for the
micro-design of the CAST space and bioclimatic parameters for the selection of its
specific links.
The above approach is further supported by the usage of Renewable Energy Sources in the
user information devices such as intelligent bus stops, info-kiosks and variable message
signs. UPP SWANS was meant to be the starting point of a larger urban plan embracing the
whole West Athens, which would be implemented based on the lessons learned from the
current pilot implementation.
Bioclimatic research supported the planning and design features of the UPP SWANS.
Namely, the approach focused on the analysis of the solar and aerial characteristics of the
road links which were initially selected as parts of the CAST. This analysis results in the
assignment of each link to a specific bioclimatic priority class depending on their physical
characteristics (height and width) and their orientation.
4.1.1.3
The CAST has been conceived within the U.P.P. SWANS, but budget limitations have
constrained the implementation to two street sections among the dozens that constitute
the project.
These two streets have a total length of 1100 meters and have been chosen to act as a
pilot for the remaining sections due to their centrality features in Peristeri and Aegaleo, the
two larger municipalities of West Athens.
Both streets (Markou Botsari in Aegaleo and Emiliou Veaki in Peristeri) have been designed
using bio-climatic principles (wind direction, natural shading, reflecting materials and
colors, fountains, wooden shades) in terms of materials and furniture. These principles
allow for decreasing local temperatures by 5 degrees at least compared to adjacent
streets.
Street surface does not separate physically the movements of the various users. These
separations are achieved by color indications only.
The CAST concept generated the interest of the Athens Prefecture Authority (second-level
local authority) which funded ASDA with 1.750.000 euros to implement the project.
The two streets constructed are, naturally, part of the mini bus route network.
Construction time lasted longer than expected, mainly due to administrative issues,
resulting in the opening of the two streets in late 2000.
Both streets are operational since December 2000.
4.1.1.4
¾
Procedures Adopted
Motives
Imposed by the approved proposal and the contract for all actions, additional emphasis
was put to the issue of the CAST, due to its high political and social importance for West
Athens.
47
¾
Method
Multicriteria evaluation comprises 3 dimensions (criteria):
•
Priority for urban development & renovation - Urban criterion
•
Compatibility with transport functions – Transport criterion
•
Environmental performance – Environmental criterion
The Urban Criterion assigns high score to links that :
o are located inside any of the 6 city cores (sub-centers) of West Athens
o have multiple roadside attractive activities (commerce, leisure, recreation, social
amenities etc.)
The Transport Criterion assigns high scores to links that:
o are used by frequent public transport lines
o do not cause high negative effects to the traffic operation of the wider surrounding
area
The
Environmental
Criterion
assigns high
Centrality
scores
to
links that
Π
Χ
ΠΚ
are characterized by
bioclimatic
TRANSPORT
Public transport leve high
Traffic Effects
potential, i.e. high
Μ
ΜΚ
ΜΣ
wind potential and
low solar (or, in other
ENVIRONMENT
words, high shading)
Bioclimatic performance
Β
Β
qualities. It must be
stressed,
however,
that the bioclimatic potential can be enhanced through additional technical amenities such
as fountains etc.
URBAN
Π
Adjacent activities
The multicriteria process is represented by the following diagram where are shown the 3
main dimensions (criteria) and the partial performance indices:
¾
Ιάσονος
Περιστέρι
Ιάσονος
Επιδαύρου
Περιστέρι
Επιδαύρου
Ακροπολεως
Περιστέρι
Ακροπολεως
Π Τσαλδάρη
Περιστέρι
25ης Μαρτίου
Μεγ. Αλεξάνδρου
Περιστέρι
Σπετσών
Τοσίτσα
Περιστέρι
Βάρναλη
Παρασκευοπούλου
Περιστέρι
Τοσίτσα
Σαρανταπόρου
Περιστέρι
Μεγ. Αλεξάνδρου
Πλ.Μπουρναζίου
Περιστέρι
Π.Τσαλδάρη
Βεάκη
Περιστέρι
Πλ.Μπουρναζίου
Μαδύτου
Περιστέρι
Μαδύτου
Π.Τσαλδάρη
Περιστέρι
Ο
O
O
O
O
O
Ο
3
2
1
1
1
1
3
1
2
1
3
1
2
1
1
1
3
1
1
1
1
1
Συνολική επίδοση
Μεσολογγίου
Βιοκλιµατική
καταλληλότητα
∆ήµος
Περιστέρι
Πολεοδοµική
προτεραιότητα
Μέχρι …
Βάρναλη
Παρόδιες χρήσεις
Από …
Βεάκη
Μεταφορική
συµβατότητα
Οδός
25ης Μαρτίου
Αιµ.Βεάκη
Αιµ.Βεάκη
Αιµ.Βεάκη
Αιµ.Βεάκη
Βάρναλη
Μαδύτου
Μεγ. Αλεξάνδρου (Π)
Π.Τσαλδάρη
Παρασκευοπούλου
Σαρανταπόρου
Σπετσών
Τοσίτσα
1
2
2
2
3
2
3
4
3
3
3
2
3
2
3
10
7
7
9
8
9
10
2
2
3
6
2
6
8
8
10
Kεντρικότητα
Α&Β
Α&Β
Α&Β
Α&Β
Α&Β
Α&Β
Α&Β
Α&Β
Α&Β
Α&Β
Α&Β
Α&Β
Α&Β
Συµβολή στην εξυπηρέτηση
An
example
of
link
classification is presented
below for a random sample
of links. Links belonging to
Cluster I are considered as
most
desirable
for
implementation.
Γραµµή
Bασικό δίκτυο
To facilitate the selection
process, candidate links were
grouped
to
3
clusters
according to the scores in
each criterion.
Επίδραση στην κυκλοφορία
Indices [ΠΚ], [ΠΧ], [ΜΚ], [ΜΣ] and [Β] are assigned scores from 1 (best) to 3 (worst),
resulting from a Delphi-type process involving a multitude of professional and scientists.
5
2
2
4
3
4
3
1
1
1
1
1
1
2
1
1
1
2
1
3
2
4
2
2
1
1
1
1
2
1
3
3
Ν
Ν
Ο
Ο
O
O
2
3
2
ΤΥΠΟΣ
ΙΙ
ΙΙ
Ι
ΙΙ
Ι
ΙΙ
ΙΙΙ
Ι
IV
Ι
ΙΙΙ
ΙΙΙ
ΙΙ
Conclusions
The multicriteria approach adopted resulted initially in the classification of all candidate
links according to their fitness to the model. Following this, ASDA selected the 2 most
“feasible” links, in the sense that the 2 links selected had equal performance scores with
another dozen links, but were located in the 2 larger municipalities and, hence, their
impact was considered as more important in terms of social and political acceptability and
48
prestige. Consequently, it can be stressed that those 2 were the most politically and
socially desirable ones.
4.1.1.5
¾
Major Successes and Justification
Main positive effects
It is estimated that the opening of these 2 streets enhanced the attractiveness of the 2
municipal cores of Peristeri and Aegaleo to a large extent. For example, during the first 3
months of operation, a large number of shops and bars were installed. It is worth noting
that one of the main private radio stations, especially popular with younger audiences,
moved its premises and studios to Emiliou Veaki street, showing thus their interest in the
newly developed area. In conclusion, it is believed that this action has had the greater
impact on centrality than the others of the project.
As a result, pedestrian crowds and, to a lesser extent, cyclist flows, have increased
significantly compared to the situation “before”.
No accidents or conflicts have been reported during the first six months of operations.
¾
Acceptance
The evaluation process must have enhanced the political acceptance of the 2 links
selected, because local authorities felt safe with the forecasted increased usage of the 2
links from their citizens (as customers of the many service providers that were to be
installed there following the implementation). In this case, political acceptance anticipated
the social acceptance. Nonetheless, the ex ante acceptance was supported by the fact that
groups highly concerned by car traffic (circulation and parking), such as adjacent
shopkeepers, expected a very loose attitude from the local authorities as regards the
systematic enforcement of the car-free links and were ex post justified, as it can be seen
actually nowadays. Clearly, had enforcement been announced at the planning stage, it is
believed that there would be more negative reactions by those groups owing to the
restrictions imposed to car traffic and parking.
4.1.1.6
¾
Major Shortcomings and Justification
Main negative effects
(i) The main problem identified is that these two streets are often used for illegal on-street
parking, taking up thus space from pedestrians and cyclists and inhibiting the movement
of public transport vehicles. This problem is inherent to current habits of the population in
Athens more generally, but it is expected that it will decrease as time goes by and people
will learn to use their space according to plan. Enforcement by municipal police is
deliberately very loose, as ASDA and local authorities have opted for the “learning through
experience” way rather than the “stopping through penalties” way.
(ii) Incomplete ex post evaluation.
¾
Reasons
Not imposed directly by the approved proposal and contract. Lack of (a) political
motivation and guidance from the municipalities, and (b) resources to perform the
monitoring and evaluation tasks. Perhaps the perspectives for funding of the full-scale
project were too weak as well, resulting in the discouragement of the players’ concerned
(ASDA technical staff, citizen associations, environmental organisations). A non-formal
evaluation can be performed in the actual stage by looking at the evolution of the street
space, where the change is obvious.
¾
Should it be evaluated?
49
Depending on the actual implementation perspectives.
¾
Why?
If this is seen as a planning exercise, an ex post evaluation should be useful, even
necessary. If, however, the full scale of CAST extends beyond the financial and temporal
limits of ASDA and its 10 municipalities especially, then an ex post evaluation would only
serve as “an appetiser without the main course”.
4.1.1.7
¾
Transferability
The ex ante evaluation method is easily transferable, because it is not data-hungry and is
multi-disciplinary, covering thus most of the main dimensions of the impact.
¾
Conclusions
An ex ante evaluation should always accompany a practice, because it facilitates its
acceptance and enhances its quality and level of service.
An ex post evaluation requires a lot of material and human resources (data collection,
surveys, data processing etc.). This can easily be the pretext for politicians to skip this
risky step. In a sincere and open participation process, though, this is a precious step to be
taken, because it can provide all the information required for improving not only the
practice itself, but the planning / design processes and methods as well.
¾
Benefits
Planning / design professionals have received important lessons from the evaluation
process.
4.1.2
CASE STUDY ALEXANDROUPOLIS - TRANSPORT &
TRAFFIC STUDY
4.1.2.1
The transport and traffic study of Alexandroupolis was assigned with decision of
Municipality Alexandroupolis in 1999, aiming at the short-term and long-term confrontation
of problems of circulation of persons and vehicles in the city of Alexandroupolis.
The traffic study elaborated identified the need to encourage alternative ways of transports
(public transportation means, bicycle, mini bus for the centre etc) set as first priority for
better quality of the life.
4.1.2.2
The examination of the traffic problems and the reasons that create it, through the
qualitative and quantitative recording of the basic elements of the city traffics,
Proposals for immediately applicable solutions that could damp down the current problems.
In the present time, it should be clear that traffic problems have a dynamic nature; they
continuously change (e.g. the increase in cars). This practically means that those problems
should be monitored closely and tackled with the suitable interventions and improvements.
50
4.1.2.3
The first phase of the study included all the components of the traffic system (road
network, parking, road safety, public transport). Recording and processing of all those data
showed the general direction for the solutions proposed in the second phase of the study.
During the elaboration of the study a research was carried out based on questionnaires
referring to the users of the city, in order to investigate their opinions and preferences
regarding the proposed interventions.
The results from this survey were a useful tool in the elaboration process, providing the
decision-makers a clue οn the acceptance of the proposed interventions and preparing the
ground for the imminent changes.
4.1.2.4
Problems detected
The problems detected are the following:
9
The central city arterial crossing almost the entire city, serves apart from internal
traffic and a large proportion of through traffic.
9
The availability of a small number of scattered pedestrian precincts, that don’t
compose a network to connect the basic areas of pedestrian interest (schools, squares,
places of amusement etc),
9
The railway lines are still crossing the city centre.
9
The total absence of cycling facilities in a city whose natural surface favours that kind
of movements.
9
Pedestrian insecurity in crossroads.
9
The dangerousness of the road network, mainly because of the overlapping of through
and local traffic and of the lack of visibility at crossroads (insufficient horizontal and
vertical signalling, pavements etc).
9
Absence of a public transport system designed according to the citizens’ needs. The
current system is of the semi-urban type. Its main features are: low frequencies,
service of areas only adjacent to the main roads etc.
9
Lack of parking spaces in the city centre.
9
Environmental degrading of the city, caused by the effects of traffic (air and noise
pollution, visual intrusion and aesthetic degradation).
4.1.2.5
Proposals
The study proposes the following solutions:
9
A proposal of traffic organisation,
9
Application of vertical labelling in the wide area of the centre,
9
New plan for parking spaces,
9
Proposal for public urban transportation means,
9
Network of cycle roads,
9
Labelling in the areas of school institutions,
9
Informative labelling,
9
Creation of a Traffic Office in the Municipality of Alexandroupolis.
The solutions that were implemented to date for meeting the traffic problems are the
following:
9
The major roads of the city centre became one way
9
Creation of ramps in the pavements: Ramps provide secure and unhindered access of
pedestrians and persons with kinetic problems in the bigger part of city centre.
51
9
Pedestrian precincts network: There was an improvement but not in a considerable
extend.
9
Network of cycle roads: No interventions regarding the creation of a network have
been done until now. It is in process a competition for the construction of cycle roads
along the major streets of the city centre.
9
Labelling: Vertical labelling has been installed in the area of one way roads and the
school areas according to the traffic study. In selectively points of city there is
informational labelling for the citizens’ guidance.
9
Parking: For the restriction of illegal parking applied the widening of pavements in the
main road axes of city. These interventions caused the reactions of the citizens and as
a result, the road came in the initial situation. In the existing organised parking areas
there was no improvement. There was an attempt to construct an underground
parking space in the city centre, but it was abounded due to lack of interest from
investors.
9
Aesthetic interventions: Important aesthetic interventions have been made in the
frame of regenerations of central points of city.
9
Public transport: Municipality is provided with the required mechanical equipment and
remains to place it in operation
9
Fencing of the railway lines in the areas that go through the city and protective bars in
the crossings, as it’s not possible yet their removal outside the city centre.
No measures have been applied until now for the restriction of the high speeds in the
centre of the city and the establishment of a municipal Traffic Office.
Although only part of the solutions were implemented, it should be clear that traffic
problems are dynamic (e.g. the increase in cars). This practically means that those
problems should be monitored closely and tackled with the suitable interventions and
improvements.
4.1.2.6
¾
Procedures Adopted
Motives
Decision of the Municipality of Alexandroupolis aiming at the short-term and long-term
confrontation of problems of traffic of persons and vehicles in the city of Alexandroupolis.
¾
Method
Elaboration of transport & traffic study by external experts. The elements for the study
were assembled:
In collaboration
Alexandroupolis,
with
the
services
of
Municipality
and
Traffic-Police
of
By contacts with the workers in the urban and long distance buses and the taxidrivers, as well as
-
By recordings and measurements that became but also
From the distribution of special questionnaire where were recorded the opinions of
residents in critical subjects of city traffic.
¾
Conclusions
The circulation problems have dynamic nature that’s why they should be monitored closely
and tackled in time with the suitable interventions and improvements.
4.1.2.7
Major Successes and Justification
We cannot assess and measure the results of implemented actions because up to today, as
we mentioned before, they have been materialised hardly the 30% of the proposals of the
52
transport-traffic study. However, the collaboration between the involved parties has been
achieved in a great degree and the rest of the work is being undertaken.
4.1.2.8
Major Shortcomings and Justification
It is obvious that any intervention causes reactions even if it is essential for the effective
operation of the city. For e.g. the restriction of illegal parking by widening the pavement in
the main road axes of Alexandroupolis caused the citizens’ reactions and hasn’t been
applied until now. The reason for not accepting this kind of intervention was the fact that
most of their movements in the city centre are made by car.
4.1.2.9
This study constitutes the first essential and complete attempt for the resolve of the traffic
problems in Alexandroupolis, and to the extent this has been applied, it has the citizens
approval.
The adopted methodology it is focused on the improvement of the quality of life inside the
city, through the comfort in the citizens’ movements and the constraint of the air pollution
caused by the vehicles.
In the present phase it is not possible to export complete conclusions on the practical
results of the implementation of the study, as its implementation is still in early stage.
The dissemination of the objectives and the foreseen results from the implementation of
the traffic study among the local population would probably lead to a more active
involvement of the citizens in the area of urban mobility planning and management in the
city of Alexandroupolis.
With our attendance in the "CITUM - Citizens Urban Mobility" we are looking forward to
exchange knowledge and experiences concerning the traffic problems and their
consequences like environmental debasement which appear in a rapidly developing city, as
Alexandroupolis, and are influencing negatively the quality of the citizens life.
The rest of the cities can however be taught the collaboration and the disposal for offer in
the city of all involved institutions, (the Municipality of Alexandroupolis, the citizens and
the experts that drew up the study). Also, they can come up to useful conclusions from the
methodology, the ideas and our proposals, even if the study was designed based on the
data of Alexandroupolis.
The creation of pedestrian precincts, the creation of cycle roads and new parking areas,
constitute basic solutions for the decongestion of circulation in any city of the world and for
this reason we consider that those are the elements of the study which can be transported
and be adopted easily as solutions for the urban traffic problems of the partner cities of the
program.
4.2
LEGISLATION
PROCEDURES [B1]
AND
ADMINISTRATIVE
Legislation and administrative procedures that govern the evaluation of urban mobility
practices.
Q: Is there a framework (legislation and administrative procedures) that governs the
evaluation of urban mobility practices in your area? If YES, please provide a brief
description.
•
ALEX’POLIS, WEST ATHENS
53
The framework in vigor imposes the assessment of impact, not the evaluation itself, of
large scale physical projects in order to get their environmental license. Intangible
practices (i.e. not incurring constructions) such as management plans, institutional
measures a.s.o. are not subject to any formal obligation for impact assessment or
evaluation.
On the other hand, all projects co-financed by the EC (especially those making part of the
Community Support Frameworks) are subject to the Programme regulations, which impose
3 evaluation processes, namely ex-ante, on-going and ex-post. These evaluations are
clearly carried out at the higher level (programme, axis and measure), but their
performance requires an evaluation at the individual practice level to be thorough. Three
important cases are: (i) the Urban Pilot Project SWANS (re the corresponding Case Study);
(ii) the Integrated Urban Development Intervention of Alexandroupolis and (iii) the Local
Integrated Program for Sustainable Development of Alexandroupolis re the HABITAT
AGENDA.
Nonetheless, evaluation or impact assessment of urban mobility practices is sometimes
carried out ad hoc, i.e. in the context of the specifications of studies required by the
contracting authorities. This is not, however, very frequent.
•
CATANIA
According to the Italian legislation, the framework for the urban mobility practices
assessment should be set by the Urban Traffic Plan (“Piano Urbano del Traffico – PUT”.
•
CSEPEL
There are several rules and regulations that influence the ex-ante and ex-post evaluation
of mobility practices. Unfortunately these rules are not able to overcome the priority of
political decisions.
Basically the importance of ex-post evaluation is lower than that of ex-ante, as there are
no obligations towards it.
Ex-ante evaluation takes place in four cases: 1- Urban mobility systems (The evaluation
takes place mostly in concepts or even in Operational Programmes); 2- Large scale
projects (The predicted effects of mobility projects are integrated in spatial plans); 3Individual projects (There are compulsory impact assessments – ex-ante evaluations - in
order to get environmental, building and other permits); 4- Small-scale local projects
(There are no real ex-ante evaluations but basically the evident need for intervention leads
to the investments.)
The political and administrative responsibility in the planning and evaluation process
concerning Budapest-Csepel is limited to small scale, local mobility projects because of the
two-tier governmental system. Their only chance to exert their influence in bigger scale
projects is in the negotiation process before the initiation, implementation of a given
project, during the planning phase. There are obligatory negotiations between the city and
the district (involving planners), between citizens or NGO’s and the city/district, etc…
These negotiations are mostly formal and basic decisions cannot be taken without political
will.
•
KALISZ
The document concerning transport policy of the city (including urban traffic) called
“Development Transport Strategy for Kalisz 2007-2020” is going to be prepared in 2007. It
is going to include elements in the field of analysis of current state and the model of
optimal, according to the city and the citizens, transport development.
•
LARNACA
There is no legal framework concerning evaluation of urban mobility practices in the
central government. In the Larnaca Municipality there is a rule of thumb that any practice
54
with an estimated cost over a certain threshold is subject to investment appraisal and
alternatives’ study.
•
VALLADOLID
The Advisory Board of Mobility has been created recently and comprises representatives of
all the players implied in mobility (taxi drivers, bus companies, cyclists, politicians and
associations of neighbours). Its mission is to meet every three months to assess mobility
problems and to discuss about solutions. Their task, however, is to evaluate mobility in
general, not specific practices.
•
VALLETTA
Evaluation of urban mobility practices is delivered locally by the Malta Environment and
Planning Authority (MEPA) through its own Transport Planning Unit (TPU). The TPU itself
has the Transport Co-ordinating Committee (TraCC). The Committee brings together
representatives from MEPA, the Malta Transport Authority and local police.
In order to deliver long-term goals, a regime of annual and achievable performance-based
indicators is being implemented so as to help define and measure progress toward
organizational goals which will evaluate urban mobility practices on an annual basis. On its
side, the MUDR is currently developing the ‘Regeneration Performance Assessment’ (RPA).
Q; How harmonised is this framework with the respective European framework?
•
As regards practices within the Community Support Frameworks, the framework derives
directly from Programme regulations.
As regards the rest, the legislation concerning environmental impact assessment is
harmonised with the respective European framework (directives etc.), whereas the traffic
impact assessment of urban development or similar practices is carried out independently
of the European framework and practice.
•
CSEPEL
As regards practices within the “respective European Framework, the framework derives
directly from Programme regulations. In the pre-accession period, the local evaluation
framework has been harmonised with the EU framework at least formally. The OP-s
themselves are subject to ex-ante and ex-post evaluations, but these evaluations concern
more the complexity of projects concerning the content of the OP. Large scale European
financed projects are also monitored ex-post as the fulfillment of the project indicators
should be controlled.
However, the more we approach the local level, the more negotiation and evaluation
processes become diverse and differ from institutional EU expectations in practice.
•
VALLADOLID
European legislation is taken into consideration.
•
VALLETTA
The MUDR policy agenda takes into consideration the benchmarks already set out by the
Commission White Paper on Transport: "European transport policy for 2010 : time to
decide". These have been incorporated into the above-mentioned policy papers of the
MUDR. Policy has also been directed at comparing ‘like for like’ benchmarks for Malta from
published statistics from the EU DG TREN. Examples of this evaluation include public
transport patronage (modal splits), performance of passenger transport and the promotion
of use of bio fuels and other renewable fuels for transport. Further benchmarking is also
55
undertaken against the standards set individually by Member States in their own published
White Papers, for suitable evaluation and integration into the R&D for the MUDR.
Q: If there is NO FRAMEWORK, how important is THE EXISTENCE OF such a
framework for your city?
CATANIA: The adoption of the Urban Traffic Plan will be absolutely necessary when the
Mayor’s role of Extraordinary Traffic Commissioner will expire.
KALISZ: It is important because it allows for planning the transport system with
consideration to the set priorities.
LARNACA: A common policy that will govern all mobility practices will be very important
and will provide uniform evaluation criteria.
WEST ATHENS: Despite its existence, the framework refers to impact assessment, not
evaluation. It should, thus, be extended to cover all sorts of evaluation (especially ex-ante
and ex-post) so as to allow for comparison of alternatives. In addition, all urban mobility
practices from the local authority level upwards should be included in the above
framework, so that all mobility practices are dealt with. The importance of such an
endeavor is obvious: authorities of all levels should be able to dispose of thorough and allembracing information on the envisaged practices, while citizens could be better informed.
4.3
THE CONTEXT OF EVALUATION [B2]
The context of evaluation: which mobility practices are or are not subject to formal
evaluation?
Q: Which mobility practices are usually subject to formal ex ante evaluation?
Apart from practices co-financed by the EC (ALL CITIES) …
ALEX’POLIS: Large physical projects (roads, rail, parkings above 200 capacity).
CATANIA: While a growing importance is given to the ex ante evaluation of urban mobility
practices, the ex post evaluation is rather limited to an empirical / subjective assessment
of the effects of practices, except for analysis of the effect of anti-pollution policies.
CSEPEL: If we consider the EU nomenclature, each project is evaluated ex ante, but the
depth and seriousness of the evaluation varies (see previous issue)
KALISZ: All practices involving alternative options are assessed by all transportation and
traffic-related players.
LARNACA: All projects estimated to cost over the set threshold are subject to ex ante
evaluation
VALLADOLID: All mobility practices and projects are subject to ex ante evaluation.
VALLETTA: Recently the following transport improvement measures have been subject to
evaluation and scrutiny: Controlled Vehicle Access; Park and Ride; Valletta Vertical
Connection. The proposed Cable Car system was also audited in a similar fashion.
WEST ATHENS: Large physical projects (roads, rail, parkings above 200 capacity); any
urban mobility practice incurring a major financial investment (e.g. the new signalling
system of Athens)
56
4.4
THE EVALUATION METHODOLOGIES [B3]
The scope here is wide and multi-coloured and is not limited to the usual cost-benefit
analysis.
Q: Which is the dominant ex ante evaluation methodology? Are there any
shortcomings?
•
ALEX’POLIS
The basic methodological components of ex ante evaluation are: Evaluation of socioeconomic analysis and determined needs; Evaluation of the effects of a strategy;
Examination of cohesiveness with National policies and the Community Strategic
Directives; Evaluation of expected results and impacts (quantification of the objectives);
Examination of proposed systems/procedures.
The Method: Determination of the impacts; Adoption of indicators; Data capture;
Calculation of indicators at the starting point; Estimate of indicators progress after the
implementation of the practice.
One of the frequent shortcomings is the over-estimation of the expected results and
impacts. There are also cases where the evaluation is biased as a result of the evaluative
framework and the socio-economic interests.
•
CSEPEL
At the conceptual level, ex ante evaluation of documents is a continuous activity seeking to
achieve optimal results. It is noted however that implemented practices often do not verify
the outcomes of the ex ante evaluation.
At the project level, the most commonly used ex ante evaluation methods are the
environmental impact assessment and cost-benefit analysis, while social impact analysis
can be ordered as regards some developments. Unfortunately the results of such technical
studies are in many cases politically influenced.
•
KALISZ
Methodology contains elements in the field of analysis of current state with indication of
flaws and its strong points.
The main shortcomings are the divergences among (a) decision centres and (b) financial
means for implementation.
•
LARNACA
The dominant ex ante evaluation methods used are investment appraisals and feasibility /
option studies. These methods might include citizen questionnaires, traffic census,
environmental impacts, economics issues and social issues.
•
VALLADOLID
The more important shortcoming is that there is never enough time to assess a practice
thoroughly.
•
VALLETTA
The predominant monitoring and assessment procedures involve the evaluation of the
following indicators: 1- Traffic patterns (including congestion estimates); 2- Parking
57
patterns; 3- Public Transport Patronage; 4- Travel Behaviour; 5impact; 6Environmental impact.
Social
economic
A lack of cross co-operation between local actors responsible for the delivery of this
methodology, tends to develop benchmarks ‘on separate levels’, without the real
integration and evaluation of previous assessment methods
•
WEST ATHENS
There are 2 approaches to ex ante evaluation methodology:
One, the cost-benefit analysis which is the dominant methodology for practices of the
Community Support Frameworks
Two, the multicriteria approach inherent to the environmental impact assessment imposed
by legislation.
The shortcomings of both can be summarised as follows:
One, CSF-related practices are evaluated short-sightedly, i.e. only in financial and
economic terms
Two, the methodology deriving from the legislation is rather exhaustive but is subjective
when it comes to social aspects, that is, the impact are not assigned to social groups
because the approach is physical-geographic, not social-geographic.
4.5
INFORMATION USED IN THE EVALUATION
PROCESS [B4]
Q: What type of information is usually used for the ex post evaluation of urban
mobility practices?
•
ALEX’POLIS
Ex post evaluation analyses the use of funds, the effectiveness and the efficiency of
practices and their impact as well as the usefulness and duration of these impact.
Evaluation of the actions as they were completed (comparison of contract-result,
justification of divergences)
Evaluation of impacts (Change of starting point indicators, estimate of future impacts)
•
CATANIA
Traffic flows; Crossroads level of service; Public transport lines; Number of parking places;
Number of no-parking areas; Number of accidents and places where they more often
happen; Electronic car-counter machines; Car flows analysis; Car parks analysis; Urban
police data analysis concerning accidents
•
CSEPEL
The ex post evaluation of urban mobility practices is not common practice in Budapest,
although the EU transport policy (White paper 2001) and other EU documents provide the
corresponding framework.
Ex post evaluation focuses in comparing the evolution of the indicators established before
and after the implementation of the practice (User satisfaction; level of adoption of the
implemented practice; modal shifts)
58
•
KALISZ
Stated preferences related to mode choices, regularity of urban traffic, parking zones for
private vehicles etc.
•
LARNACA
Traffic volumes, pollution measurements, parking availability
•
VALLADOLID
Observations; new complaints made by citizens; opinions of the municipal police (as they
are spending more time in the streets than engineers)
•
VALLETTA
Analytical benchmarks have yet to be developed for scrutiny and evaluation purposes.
However the following ex post evaluations are envisaged:
Definition of traffic volumes and congestion needs (prior and following the implementation
of the CVA system); parking surveys to assess the usability of parking space; public
transport ticket sales; monitoring of travel behavior of commuters and mode choices;
socio-economic impacts through surveys.
•
WEST ATHENS
For those few practices where ex post evaluation is carried out, the information used
derives from the specifications of the respective programmes. This information is restricted
to the physical indices of the practice (e.g. kilometers added to the respective network,
area served) and some economic parameters (e.g. work posts created) that deal with the
developmental aspect of the programmes. Such an approach needs robust benchmarking if
genuine evaluation is to be achieved, whereas such benchmarking does not exist.
4.6
EX
ANTE
EVALUATION
ACCEPTANCE [B5]
AND
SOCIAL
The following profile shows the actual experience on the matter from the CITUM cities and
their greater area.
Q: To what extent the ex ante evaluation process enhances the social acceptance of
the proposed practices?
Not at all
Relatively little
Average
X
ALEX’POLIS
CATANIA
X
CSEPEL
X
KALISZ
X
X
LARNACA
VALLADOLID
X
X
VALLETTA
WEST ATHENS
X
This is how the ratings are justified and/or supported…
59
Relatively
much
Very much
…among those who report A
E
G
A
R
E
V
A
E extent:
GE
AG
RA
ER
VE
AV
•
The most iimportant factor were the public consultations that took place at the
planning stage as a complementary action in the evaluation process (ALEX’POLIS)
•
If ex ante evaluation gives real alternatives and provides sustainable solutions for a
given investment, then the likelihood of social acceptance is high. If the evaluation is
more or less formal and basic problems aren’t answered, then social acceptance
cannot be anticipated and won’t function at all. In that case (if the scale of the
practice is large) NGOs are able to protect citizens’ and environmental interests and
can legally enforce real alternatives based on a correct evaluation process (CSEPEL)
•
The public presentations of practices are open to all citizens but attendance is low,
thus people remain unaware of the results of the evaluation. The results of the ex
ante evaluation need to get more publicity in order to have increased social
acceptance (LARNACA)
•
Whilst already there is a number of published statistics in place, there remains a
problem of communicating effectively these results and policy measures to the
public. Despite a relatively little marketing campaign patronage increased mainly
from individuals perception of the high satisfaction of the service, leading to word-of
mouth communications being the driver behind this success.
Social acceptance is a vital ingredient for any policy initiative to be successful.
Perhaps one of the most overriding factors is that the real and perceived benefits of
new practices tend not to have been branded and marketed in a more positive,
persuasive and effective manner. This is something that should be considered for
future schemes to be implemented (VALLETTA)
E
L
T
T
L
Y
L
E
V
T
A
L
E
R
E extent:
LE
TL
TT
LIIIT
YL
LY
EL
VE
TIIIV
AT
LA
EL
…among those who report R
RE
•
Citizens do not take scientific analysis into much account, but mostly their personal
experiences and beliefs (CATANIA)
•
Practices are accepted based on their results, which it takes long to actually
evaluate. However, if results are not positive then citizens don’t care if the
procedures and studies are of good quality (VALLADOLID)
•
The influence is small because the information provided to citizens does not derive
from the impact assessment procedures but from the results of the technical studies
interpreted by politicians and opinion leaders at their will. The results of the impact
assessment are not publicised unless there are obvious environmental problems
(urban rupture, excessive pollution etc.) which in any way inhibit the practice’s
licensing by default (WEST ATHENS)
4.7
LEARNING POWER
PROCESS [B6]
OF
THE
EVALUATION
The following profile shows the perceptions and opinions on the matter from the CITUM
cities.
Q: To what extent does ex ante evaluation influence urban mobility planning
(learning power of the evaluation process)?
Not at all
Relatively little
ALEX’POLIS
60
X
Average
Relatively
much
Very much
Not at all
Relatively little
CATANIA
X
CSEPEL
X
KALISZ
X
Average
Relatively
much
LARNACA
X
VALLADOLID
X
VALLETTA
X
WEST ATHENS
Very much
X
H
C
U
M
Y
L
E
V
T
A
L
E
R
H extent:
CH
UC
MU
YM
LY
EL
VE
TIIIV
AT
LA
EL
RE
•
Depending on the outcome of the evaluation the planning might change or even
abandoned (LARNACA)
•
The information achieved through the ex ante evaluation of a practice can be
different from the information that would appear as favourable (VALLADOLID).
E
L
T
T
L
Y
L
E
V
T
A
L
E
R
E extent:
LE
TL
TT
LIIIT
YL
LY
EL
VE
TIIIV
AT
LA
EL
RE
•
Little experience in practice (ALEX’POLIS)
•
A scientific approach is crucial for the efficiency and the efficacy of the new practices
to be adopted (CATANIA)
•
Ex ante evaluation can be efficient if it achieves to realise certain investments. If the
mobility investment is previously decided, and the ex ante evaluation is created later
only to justify the original investment, then it remains more symbolic than useful. An
actual example is Metro line 4 of Budapest, where a new CBA would be necessary for
an on-going investment. (The metro is already under construction) (CSEPEL)
•
Due to sporadic/individual examples of participation in relation to number of
implemented tasks in urban traffic and recently implemented processes of social
communication by ex ante evaluation (KALISZ)
•
It seems that there is a lack of evaluation culture within the planning community,
which in turn affects the authorities and the citizens. As evaluation incurs additional
efforts, delays and costs in planning, it is often overlooked or, worse, perceived as a
risky and cumbersome burden. As an example, it took almost 10 years before the
central government adopted the legislation regarding environmental impact
assessment in the 80s mainly due to the high pressure exercised by the media and
the public opinion after the pollution in Athens and the great cities reached high
levels.
This unfortunate situation is further aggravated due to the narrow-minded view in
education, especially engineering schools, which tend to overlook urban, social,
geographical and functional aspects in engineering as “romantic” and “secondary”.
This does not allow planning professionals to acquire a global view of urban mobility
practices and spread that view to their working environment including the
authorities. On the other hand, authorities are happy to implement plans and
projects quickly and at a low cost relying very much on promotion campaigns that
use unfounded information and speculation (WEST ATHENS)
61
4.8
MONITORING THE IMPLEMENTATION [B7]
Monitoring the practices implemented is a theoretically necessary step in the planning
process which (a) incurs high human and financial resources, and (b) risks to unveil
politically undesirable facts. How do cities cope with this paradox?
Q: Is there a mechanism (permanent or ad hoc) for monitoring the performance of
urban mobility practices?
ALEX’POLIS
YES
Re the Local Integrated Program for
Sustainable Development of the HABITAT
AGENDA, where there was a complete
recording of the quantitative and qualitative
data (indicators) concerning urban mobility in
the Alexandroupolis and in which was
proposed the set-up of an observatory aiming to
support the sustainable development policies in
the area via the monitoring of the selected
indicators
CATANIA
NO
CSEPEL
YES
KALISZ
YES
- SPOKE electronic system (electronic ticket
system) in urban traffic (public buses)
- Systematic measurements of intensity of noise
and intensity of traffic (at the moment only
irregularly)
- Electronic system of management and control
of public buses ( planned for 2008)
LARNACA
NO
VALLADOLID
NO
VALLETTA
NO
; there is no steadfast and formal
monitoring mechanism
WEST ATHENS
NO
Monitoring of urban mobility
practices is totally absent from
planning
Q: Given the existence of a monitoring mechanism, how is this mechanism used for
evaluating urban mobility practices ex post?
•
The monitoring mechanism (observatory), once set up, will monitor the evolution of
urban mobility indicators. More specifically, by means of desk and field researches,
the observatory will collect, record, analyze, present, disseminate, inform and
comment the factors or the data that characterize the longitudinal evolution and the
dynamics of the area (ALEX’POLIS)
•
In reality the more a practice is local the more the monitoring is ad hoc, and is set
up mainly to validate or support the practice. The monitoring process – counting the
passengers etc - provides a basic observation of the public transportation system
rather than assessing specific effects (CSEPEL)
•
System operating in real time (KALISZ)
62
Q: If there is no monitoring mechanism, should there be one?
YES
NO
ALEX’POLIS
-
-
CATANIA
X
CSEPEL
-
KALISZ
X
LARNACA
X
VALLADOLID
X
VALLETTA
X
WEST ATHENS
X
-
Here are the justifications of those who think that A MONITORING MECHANISM IS
USEFUL…
… Because ex post evaluation can highly increase the efficiency of urban mobility practices
(CATANIA)
… To check performance and revise plans or develop action plans through data gathering
(LARNACA, VALLETTA)
… And it is a good notion but frequently there is not enough time for monitoring the
performance of urban mobility practices (VALLADOLID)
… A mechanism for monitoring the performance of urban mobility practices is absolutely
necessary for the following reasons:
1 – The ex ante assessment of the performance and the impact based on current models
and methods is usually static and allows for a simplistic cross-sectional view of the city
valid for a brief period of time (state of equilibrium) even if it’s accurate. Albeit, the
adaptation of the system and its users is by definition dynamic and often unpredictable,
depending on which parameters of behaviour have been taken into account at the
study/planning stage.
2- The data used in models are often imperfect and, thus, forecasts are frequently
erroneous.
Nonetheless, it is difficult for a city to acquire such a mechanism because of (a) the high
costs and resources required, and (b) the lack of political will, which is accentuated by the
abovementioned high costs. Politicians are not willing to acquire accurate information on
the results of practices because they wish to control the information disseminated to the
media and the citizens and be able to speculate at will on their “achievements” (WEST
ATHENS)
4.9
EX POST EVALUATION AND PERFORMANCE
[B8]
It is commonly accepted that a monitoring mechanism is the ideal framework AND toolbox
to perform a thorough and objective ex post evaluation. Nevertheless, few cities state that
they have the experience of such an evaluation process. Here is their assessment of the
usefulness of ex post evaluation.
63
Q: How useful has ex post evaluation been in urban mobility planning?
•
The ex post evaluation process has to date been applied exclusively to practices cofinanced by the EU. The absence of ex post evaluation in other urban mobility
practices does not allow for the determination of usefulness of this process in urban
mobility planning (ALEX’POLIS)
•
In the case of Budapest the usefulness of ex post evaluation is more symbolic than
realistic, but sometimes it can produce useful information that can be used in other
projects. Generally, real and long term conclusions are forgotten (CSEPEL)
•
Ex post evaluation of one practice can serve as ex ante evaluation for another
(LARNACA, VALLADOLID)
•
Analytical benchmarks have still yet to be developed for evaluation purposes
(VALLETTA)
4.10 MATCHING FORECASTS AND ACTUAL SYSTEM
PERFORMANCE [B9]
The following profile reflects the experience of the CITUM cities on the issue.
Q: To what extent the results of ex post evaluation (actual performance) match the
results of ex ante evaluation (forecasted performance) in urban mobility planning?
Not at all
Relatively little
Average
Relatively
much
Very much
X
ALEX’POLIS
CATANIA
CSEPEL
X
KALISZ
X
LARNACA
VALLADOLID
X
VALLETTA
WEST ATHENS
X
…among those who believe that the matching is R
H
G
H
Y
L
E
V
T
A
L
E
R
H:
GH
HIIIG
YH
LY
EL
VE
TIIIV
AT
LA
EL
RE
High matching is due to the existence of interim evaluation which offers crucial information
for potential essential adaptations (ALEX’POLIS)
A well thought, professional ex ante evaluation will lead to a solution that will provide the
required actual performance, and this is the case for most of the practices that were
subjected to ex ante evaluation (LARNACA)
…among those who believe that the matching is R
W
O
L
Y
L
E
V
T
A
L
E
R
W:
OW
LO
YL
LY
EL
VE
TIIIV
AT
LA
EL
RE
It depends on the type of practice and cannot be answered generally (CSEPEL, KALISZ,
VALLADOLID)
Ratings are based on a few examples of isolated practices and, hence, their value is
limited. The main explanation is that the data, methods and models used at the ex ante
64
stage were inaccurate and incomplete, making that forecasting has been weak, as usual
(VALLETTA, WEST ATHENS)
----------------------------------------------------------------To summarise the issue:
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65
55 TTH
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This chapter deals with the theme where the CITUM planners feel more satisfied and
accomplished with. Clearly, in most cases cities try their best to promote Alternative Urban
Mobility Solutions to decrease the usage of individual motorised travel modes (car,
motorcycles) and, at the same time, to provide more opportunities to the less favoured (in
terms of mobility) citizens. Resulting from this, the selection of two case studies has been
a difficult task. Despite the wealth of choices, we opted to present the contribution from
one of the cities which shed light on important aspects of mobility planning and on the
very notion of ‘alternative’, in the aim to incite the reader to reflect on this very important
matter.
Another interesting finding is that although the CITUM planners feel rather comfortable in
promoting Alternative Urban Mobility Solutions, there are hints that such solutions are not
sustainable and efficient if taken alone. It seems that any practice oriented towards the
promotion of Alternative Urban Mobility Solutions has to be accompanied by car-restrictive
practices in order to be efficient. This is due to the captivity that most European citizens
exhibit towards their cars. It also appears that captivity is not a result of a long-time
relationship, but it also characterises newcomers, i.e. users that have been able to acquire
this dubious privilege only recently. This situation is mostly apparent in the ex-socialist
countries that are currently on the way to maturity as regards the market economy.
5.1
5.1.1
CASE
STUDY
CSEPEL
ALTERNATIVE TRANSPORT MODES
5.1.1.1
SOME
SPECIAL
Summary
Western European countries, having traditional transport systems with stable financing
basis and mostly good infrastructural networks, are leaders in innovative solutions for
strengthening sustainability in transportation. Transport innovation towards alternative or
completely new solutions is less developed in post-socialist countries where there are
lacking basic infrastructural elements, and the approach to alternative methods is
different. As for Budapest, alternative modes are not used up to its possibility given by the
existing geographical and infrastructural facilities. However a lot of alternative ways of
transportation already exist, but not in such a scale that they may be considered as real
alternatives. (Alternative solutions are intensively used in transportation of tourists like
ships, funiculars, cog-wheel railway)
In Csepel there are few examples that can be considered as alternative transport solutions
and there are others that should be alternatives but do not exist by now. As for the
realised project, the night public transport service of Budapest, concerning also Csepel has
been modernised in 2005, and the new network means real alternative to the individual
transport possibilities. The case study provides general information about alternative
transport modes, and specific examples for its current and future realisation in Csepel.
5.1.1.2
How to define alternative transport modes – general context
of the topic
The development of a sustainable urban transportation system is one of the primary goals
of cities with a serious traffic crisis, who suffer from its damages, among other things its
66
unfavourable environmental effects. However, what alternative modes exactly mean can
be rather varied; their definition can reflect a variety of different aspects: alternative mode
can prefer pedestrian transportation to car use, or the introduction of new systems,
methods, fuels or powering to the existing public transportation services. Cities in this
working group have to know exactly the problems they face, and come up with an
alternative solution suiting it. Furthermore, it is important to know both the innovative
ideas of other cities using new, alternative transport modes, and those, which can be
realized in the existing financial, conceptual, and urban management system.
¾
Sustainability in the White Paper
The White Paper, which is the sustainable transport policy for the EU (2001), defines some
basic targets proving the necessity of alternative modes. These principles are the
following:
-
Intermodality (change of transport modes) is of
developing competitive alternatives to road transport.
fundamental
importance
-
Research and development work has also brought progress in the development of
new vehicles which run on lower-emission alternative energies. Urban transport is
already providing a useful market for expanding the use of vehicles running on
(natural gas, bio-diesel or zero-sulphur diesel.) alternative energies.
-
We therefore need to make the alternatives to the car more attractive in terms of
both infrastructure (metro lines — trams — cycle tracks — priority lanes for public
transport) and service (quality of service, information given to users).
-
Public transport needs to achieve levels of comfort, quality and speed that come up
to people’s expectations. This quality option has been the choice of many European
cities which have decided to innovate by bringing into service new metro or tram
lines or new buses with easier access for people with reduced mobility.
(WHITE PAPER - European transport policy for 2010: time to decide, Luxembourg: Office
for Official Publications of the European Communities, 2001)
¾
Sustainability according to the UITP
Cities having put the brakes on car use by investing in non-road transport modes have
shown that the proportion of car use can be reduced by 1 % per year, whereas in most city
centres it is growing by more than that. Some cities have adopted by-laws to keep to the
strict minimum the number of parking spaces to be provided with each new office building,
making car use less practical. Some local authorities are planning to allocate priority lanes
to public means of transport (buses and taxis) and also to private vehicles being used for
car pooling, for example, while increasing the number of lanes reserved for cyclists and
even motorcyclists. In cities and conurbations, initiatives could be encouraged to persuade
the largest employers (firms or administrations) to help organise their employees’ journeys
or even to pay for public transport.
Alongside the development of new means of public transport, the reduction of urban
congestion must also involve setting up urban infrastructure-charging schemes, the most
simple form of which is charging for parking. Some cities, including London, are envisaging
other, more elaborate forms involving road charging based on electronic vehicle
identification technology and an electronic payment collection system, which could be
harmonised at Community level. However, urban roadcharging schemes are well received
by the local population only if competitive alternatives are on offer in terms of public
transport services and infrastructure. This is why it is essential to use the revenue to help
finance new infrastructure for all-round improvement of urban transport services.
(Public transport for sustainable mobility, UITP Focus Position paper, Brussels, 2004)
¾
Administrative framework of Budapest – the starting point
67
Csepel is one of the 23 districts of Budapest, and as such it is part of the two-tier
administrative system of the capital. In this framework the organisational structure,
operation and duties of Budapest Municipality are separated from the institutional system
of the 23 district governments. This double structure is present in most planning,
regulating, maintaining and financing processes, causing huge difficulties both for the
districts and also for the Municipality of Budapest. In case of the management,
maintenance, operation and planning of the public transportation system the Municipality
of Budapest has the responsibility, and districts – like Csepel – can barely influence it.
5.1.1.3
¾
Why should the use of alternative transport modes be strenghtened?
Csepel, an outer district of Budapest, suffers from the consequences of suburbanisation. It
forms part of a South-North mobility axis that connects the city centre of Budapest to the
Southern agglomeration areas. Despite the very important mobility need that comes from
the agglomeration settlements in order to reach the inner city, the road network is underdeveloped and the suburban railway network stops at the centre of the district, far away
from the agglomeration belt. Consequently, Csepel suffers from heavy traffic, and even its
district centre, the St. Imre square is subjected to a daily traffic crisis. Therefore, the
pollution it causes is a key issue in the district.
The public transport network is quite developed in the District of Csepel: the Budapest
Transport Limited (owned by the Municipality of Budapest) operates one light-rail line
connecting the centre of Csepel to the southern part of the downtown. This line will be part
of a future metro line – sometime in the next 20 years - but opposite to the recent plans,
it should be extended till the borders of Budapest.
The urban bus network includes 5 highly frequented lines linking Csepel with other districts
of Budapest, and 6 lines running inside Csepel. The bus system should be completed by a
special local line connecting important institutions and barely served areas in the future.
The suburban bus network has a well-developed system, which connects Csepel to the
Southern agglomeration area. (Despite the highly developed bus lines, the road network to
the agglomeration is a serious bottleneck that is why the busses are stacked in the traffic
jam all the time) The night bus service system was reformed in 2005, and the new
network provides real alternatives compared to individual car use or taxi use during night
periods.
Recently the Integrated Transportation Association – for Budapest and its agglomeration
settlements - has just been established in the area. But because of the two-tier municipal
system, the solution for the mobility problems requires the engagement of many actors,
including the municipality of District 21 (Csepel) and the Municipality of Budapest. This
area needs complex mobility projects like a new light-rail line extension or bypasses and
needs some alternative transport possibilities to be realised in partnership.
¾
Planning
background
–
interaction
among
transport
and
urban
development in Budapest and Csepel
Budapest has a strategic development concept (that was approved by the General
Assembly of Budapest in 2003) that has a precisely defined goal to strengthen
environment friendly transport developments. Based on it, the medium term development
programme (Podmaniczky Programme, 2005) was elaborated, focusing on the
development of public transportation as one of the determining element of the sustainable,
liveable city. Both the Concept and the Mid-term Plan strongly based on the Transport
Development Plan of Budapest – approved in 2001 – which defined several transport and
road developments that seem to be too ambitious to implement.
68
In
Budapest,
urban
planning
is
sometimes partly misunderstood, and
considered as planning of transport
infrastructure elements. Nevertheless
there are lacking basic network parts of
the fixed rail track and road network,
but these are planned separately from a
complex urban planning structure. To
be more realistic, transport projects are
strongly based on conservative political
ideas that are exceeded by modern
urban and transport planning methods.
I.e. the new metro line (No.4) will be
constructed on planning ideas of the
late 70’s, not considering the needs of
interoperable
and
real
intermodal
systems.
The actual legal documents focusing on transport questions are planning sustainable
systems on the long term. Due to the shortage of investment possibilities, small steps can
be realised for the environmentally sustainable transport networks considering also needs
for alternative modes.
Transport and urban development plans for the city of Budapest have traffic restrictions
mainly in the central part of the city, and the focus (theoretically) on alternative modes,
like energy efficient and environment friendly urban transport, as a priority. In these plans
fixed rail transport solutions, P+R parkings on the outer sides of Budapest have an
absolute priority, and Csepel is a favourable area for realising these projects. But the exact
realisation period of those ideas is more possible in the long term than in the medium one.
In order to understand the consequences of the two-tier system (in transport planning and
urban development), figure No.1 shows some basic transport tasks concerning the
municipal responsibilities (for the city and for Csepel as an independent district). Figure
No.2. draws up a potential platform for the possible alternative modes related to Csepel’s
transportation. It shows that cooperation is necessary for all stakeholders comprising the
municipalities, the inhabitants and the private sector as well. Without their partnership
really effective, well-functioning alternative transport projects cannot be realised.
¾
Alternative modes and solutions for Csepel
The main directions of the alternative modes in Csepel - on the basis of the White paper
and the UITP recommendations - are the following:
Type of
alternative
transport means
Example for the
given mode
Example realised in
Csepel
A future possibility for
Csepel
Alternatives to
personal car use
Well developed public
transport (sustainable,
environment friendly) –
day and night services
Night bus service
(detailed in the next
chapter )
North-South Regional
Railway (Metro5) with the
transformation of the
existing suburban railway
P+R parking places on the
southern border of Csepel
Restricted traffic areas
– P+R parking places,
intermodal nodes
Alternatives to the
existing public
transport system,
transport elements
Better quality vehicles
and services
Night bus service
(detailed in the next
chapter)
Non-polluting (Clean)
vehicles (natural gas
powered, biogas
powered, electricity
powered)
A few number of new
buses (equipped by
Euro-IV motors) on
line 138 since April
2006.
69
Municipality initiated
local bus services (Csepel
Works, Schoolbuses,
detailed in the next chapter)
After the realisation of new
bypasses (Gerincút), for inner city
bus traffic in Csepel.
Streets or lanes
dedicated to public
transport only
Separated bus lane to the
agglomeration belt
New modes
of public
transport
Boat (ferry) between Csepel and
the heart of Budapest (revitalising
a former system)
Ferry lines between
different parts of
the city
Creation of
(ambitious) high
quality pedestrian
areas
Bicycle lanes
New pedestrian zones in
the central area of Csepel
(Karácsony Sándor street,
Áruház square)
Complete bicycle lines alongside
the “Small Danube”. Bicycle lines
in the restricted traffic areas in
the heart of Csepel
5.1.1.4
Special cases
of alternative modes in
Csepel
¾
The night bus service
in
Budapest
and
Csepel
The city of Budapest maintains a
really
extended
transport
network with more than 190 bus
and trolleybus lines, almost 30
tram lines, 3 metros and 4
suburban railway lines operated
by Budapest Transport Ltd.
Compared to the extended daily
operation , night bus service was outdated, and unpopular. Up to the autumn of 2005,
night bus service was provided on 220 km with 18 special lines not having good changing
points (junctions) among each other, and frequencies were not acceptable for lines going
to outer districts. Csepel was
accessible only by one of these lines
(179É). This bus started to the centre
of Csepel from a southern junction
point of Budapest (Boráros tér) six
times a night. That network was
formulated in the late ’80-s without
reflecting
to
the
fundamental
changes during the times.
At the beginning of 2005 a civil
organisation (VEKE – Urban and
Suburban
Transport
Association)
proposed the extension of the night
bus service and has prepared a
detailed programme for the improvement of the service. They established a completely
new network with maps, frequencies and detailed timetables without causing extra costs
for the transport company. They added to the public service all the lines that served only
the transportation of the workers of the Ltd. before. The civil association presented its
plans to the public, and to the transport company, who had to formulate an official version
of the night service network by political pressure of the Budapest Municipality. The
transport company had 2-3 months to work out the system. In august 2005, the company
presented the reformed network building into it many elements of the suggestions of the
civil association. Even if the realisation was made by the company, the whole city
considers the reform as a civil initiative.
¾
Results
The activity of the civil association had a very good reputation, the network has grown up
from 220 km to 444 km in Budapest, and Csepel got 2 main (952 and 979) and a
temporary night bus line (938) providing good accessibility to many points of the city. Each
line goes in each 30-60 minutes during the whole night. The city has now 30 lines, and
vehicles join many parts of the city where there was not night service before, or there was
insufficient service, like in Csepel.
The actual night service of Csepel and of the whole city means real alternatives compared
to individual car use, or taxi use, and it is treated as one of the most successful transport
changes of the last few years.
¾
Local alternatives – extension of the bus network for special cases
The
municipality
of
Csepel – not being
operator
of
the
transport services –
cannot easily meet the
needs
rising
in
connection with local
transportation.
For
extra services provided
by
the
transport
company of Budapest,
districts – or any other
entities - have to pay
extra costs depending on the type of service. Nowadays
municipality of Csepel considers two kinds of services to be
implemented in Csepel: one is a schoolbus network
collecting and transporting students to/from the school,
creating an alternative to the actual case, when they reach the school by public transport
(not achieving all schools in Csepel), or by car, or on foot.
The second idea is to order a service within the Csepel-Works (enormous industrial zone
not having public transport connections), and between the Works and some frequented
area of Csepel.
These future examples show that local authorities can create alternatives for existing and
sometimes polluting individual transport modes in order to disencumber the road network
having an insufficient capacity.
5.1.2
CASE STUDY WEST ATHENS – THE CENTRAL AXIS
OF SUSTAINABLE TRANSPORT (CAST)
5.1.2.1
The CAST is a concept or conviviality between all users of urban transport: pedestrians,
cyclists, public transport passengers and even slow car drivers. On the other hand, the
CAST runs all along the urban area of West Athens linking the municipal cores to the dense
residential areas and public spaces.
5.1.2.2
Background information and General context
West Athens comprises ten municipalities (ranging in size from 130,000 to 8,000
residents). As a consequence of the democracy deficit in governing local planning and the
problems relating to co-ordination of resources, the ten municipalities created the
Association for the Development of West Athens (ASDA) in 1989. ASDA’s primary function
is to co-ordinate local administrative functions, including urban affairs such as planning
and management.
ASDA was responsible for the management and implementation of the SWANs Urban Pilot
Project. Additional and project-specific participatory and consultative structures have been
successfully developed to assist in the effective implementation of the project. The
Monitoring Committee, made up of all central and local authorities concerned, local
professional and syndicate unions, together with academic and technical institutions of the
area, provided social and political guidance. The Peer Group, made up of 7 international
scientists and professionals, offered external scientific and technical guidance and quality
control. Both bodies were also responsible for assessing the UPP SWANS, based on the
Logical Framework set up by the EC, DG XII, in 1993. The project has to date received a
fair level of political and social acceptance.
5.1.2.3
Starting point
West Athens is one of the five main geographical sectors of the metropolitan area, located
on the fringe and physically separated from the main area of the city by the river Kifissos.
The area suffers from high unemployment rates, low educational standards and low
income in comparison to the wider Metropolitan area. It is one of the most downgraded
areas of Athens in terms of the quality of the urban environment, social infrastructure and
spectrum and quality of services offered. West Athens has also received the biggest
percentage of immigrants and repatriates during the last five-year period, who often
remain relatively isolated from the rest of the local society.
The Urban Pilot Project SWANS (Sustainable West
Athens Novelty Scheme) aimed to be an example of
how Information Technologies can contribute to the
global improvement of local living conditions and socioeconomic
development.
The
project
tried
to
demonstrate how local problems of mobility, centrality,
environmental quality, modernisation of the market,
employment and social inclusion can be dealt with by
means of specific targeted low-cost actions which rely on information management and the
adequate usage of renewable energy sources.
5.1.2.4
SWANS proposed the establishment of a large number of distinct but complimentary
interventions (23 individual actions in total), structured around a number of core
components. The Intermunicipal Centre for Information Management forms the functional
backbone of SWANS, whilst the Central Axis of Sustainable Transport (CAST) is the
physical backbone. The Unit for Support to SMEs, an action area explicitly endorsed in
the EC Framework for Action document, is the organisational backbone of the UPP, while
all financial and management functions were the responsibility of the SWANS Management
Fund. Each of these actions performed different functions, complementing and reinforcing
each other.
The integrated approach not only cut across the core competencies, but is also reflected in
the formulation of key actions. For example, CAST was planned and designed using a
multi-criteria approach comprising of Bioclimatic performace, transport compatibility (both
private and public) and urban planning. The nature and needs of the locality also
influenced the final decision for the sustainable transport route.
5.1.2.5
Objectives, strategies and mobilisation of resources
A synergetic multicriteria approach has been adopted for the planning and design of the
CAST - Central Axis for Sustainable Transport (together with the Info Bus System, another
parallel Action of the UPP SWANS). This approach is based on 3 main criteria : (a)
proximity to the sub-metropolitan centers of the area as well as to the main urban
functions such as educational and social facilities, leisure and sports etc. to enhance
centrality; (b) priorisation of sustainable travel means (mini buses, pedestrians and
cycles) on the CAST, and (c) adoption of bioclimatic design principles for the microdesign of the CAST space and bioclimatic parameters for the selection of its specific
links.
The above approach is further supported by the usage of Renewable Energy Sources in the
user information devices such as intelligent bus stops, info-kiosks and variable message
signs. UPP SWANS was meant to be the starting point of a larger urban plan embracing the
whole West Athens, which would be implemented based on the lessons learned from the
current pilot implementation.
Bioclimatic research supported the planning and design features of the UPP SWANS.
Namely, the approach focused on the analysis of the solar and aerial characteristics of the
road links which were initially selected as parts of the CAST. This analysis results in the
assignment of each link to a specific bioclimatic priority class depending on their physical
characteristics (height and width) and their orientation.
5.1.2.6
The CAST has been conceived within the U.P.P. SWANS, but budget limitations have
constrained the implementation to two street sections among the dozens that constitute
the project.
These two streets have a total length of 1100 meters and have been chosen to act as a
pilot for the remaining sections due to their centrality features in Peristeri and Aegaleo, the
two larger municipalities of West Athens.
Both streets (Markou Botsari in Aegaleo and Emiliou Veaki in Peristeri) have been designed
using bio-climatic principles (wind direction, natural shading, reflecting materials and
colours, fountains, wooden shades) in terms of materials and furniture. These principles
allow for decreasing local temperatures by 5 degrees at least compared to adjacent
streets.
Street surface does not separate physically the movements of the various users. These
separations are achieved by colour indications only.
The CAST concept generated the interest of the Athens Prefectural Authority (second-level
local authority) which funded ASDA with 1.750.000 euros to implement the project.
The two streets constructed are, naturally, part of the mini bus route network.
Construction time lasted longer than expected, mainly due to administrative issues,
resulting in the opening of the two streets in late 2000.
5.1.2.7
Both streets are operational since December 2000.
5.1.2.8
Impact
It is estimated that the opening of these 2 streets enhanced the attractiveness of the 2
municipal cores of Peristeri and Aegaleo to a large extent. For example, during the first 3
months of operation, a large number of shops and bars were installed. It is worth noting
that one of the main private radio stations, especially popular with younger audiences,
moved its premises and studios to Emiliou Veaki street, showing thus their interest in the
newly developed area. In conclusion, it is believed that this action has had the greater
impact on centrality than the others of the project.
As a result, pedestrian crowds and, to a lesser extent, cyclist flows, have increased
significantly compared to the situation “before”.
No accidents or conflicts have been reported during the first six months of operations.
The main problem identified is that these two streets are often used for illegal on-street
parking, taking up thus space from pedestrians and cyclists and inhibiting the movement
of public transport vehicles. This problem is inherent to current habits of the population in
Athens more generally, but it is expected that it will decrease as time goes by and people
will learn to use their space according to plan. Enforcement by municipal police is
deliberately very loose, as ASDA and local authorities have opted for the “learning through
experience” way rather than the “stopping through penalties” way.
5.1.2.9
Although there is a strong desire to expand the CAST throughout its whole extent, the
implementation pace depends strongly on budget availability. As a consequence, the
number of streets to be constructed in the near future is a straight function of the funds
available, mainly through the Athens Regional Plan of the 3rd Community Support
Framework, which have finally been limited.
5.2
SCOPE OF THE PLANNING CONTEXT [C1]
Are Alternative Urban Mobility Solutions3 a major planning concern in urban mobility
planning and management in European cities? (actual experience and perspectives for
further development). The profiles below show the perceptions from the CITUM cities.
Q: To what extent Alternative Urban Mobility Solutions are, overall, dealt with in
your area? Are they a major or a marginal concern of ALL COMPETENT
AUTHORITIES, including your Organization?
No action
ALEX’POLIS
Marginal

LARNACA
VALLADOLID

VALLETTA
WEST ATHENS
Major

CATANIA
CSEPEL
Fair

…by those who report a F
R
A
F
R level of concern:
AIIIR
FA
3
Alternative Urban Mobility Solutions are: (i) Walking; (ii) Cycling; (iii) “Soft” policies (such as
demand management, zone access control, awareness / promotion campaigns, etc.); (iv) IT -based
policies and measures; (v) Transport modes using Renewable Energy Sources (RES) such as
alternative fuels, electric vehicles etc.; (vi) Non-conventional urban transport modes that really act as
alternatives to the mainstream
•
CATANIA: The structure of the city does not lend to traditional heavy solutions.
Alternative Mobility Solutions are, therefore, the best way to reach a satisfactory
goal, even if their adoption is, until now, rather slow due to citizens’ habits.
•
LARNACA: The consideration of has grown considerably over the last few years but it
is still not considered as a major factor. Most of the government-initiated projects
take into account alternative urban mobility solutions (mostly walking and cycling)
but not to the desired level.
•
VALLETTA: The development of ADT (the national transport agency) and the
inception of the Ministry for Urban Development and Roads in the last 5 years
created the platform for a revised transport strategy including alternative transport
and multi-modal systems. The strategy is based on Transit-Orientated Development
(2004) and includes: Park and Ride Systems; Ferries; the Vertical Connection
(funicular); Mini cabs; Bus Rapid Transit; Pedestrianisation Schemes.
…by those who report a M
L
A
N
G
R
A
M
L level of concern:
AL
NA
GIIIN
RG
AR
MA
•
ALEXANDROUPOLIS: The elaboration and the implementation of the transport –
traffic study for the city of Alexandroupolis was the first attempt of introducing and
encouraging the use of alternative urban mobility solutions such as Urban Mass
Transportation System (4 mini-bus routes), cycling network and development of
pedestrian areas.
•
CSEPEL: The Municipality of Budapest has the main responsibility for management,
maintenance, operation and planning of the mobility system; hence districts like
Csepel have a limited influence to the main decisions. There has been an overall lack
of environmental consciousness in the whole transport planning. During the last
decades, alternative solutions were realised mainly on a special local or sub local
levels (at district level: walking and cycling areas, on city wide level: cycling areas,
IT based solutions, intermodal junctions, P+R).
However, nowadays urban and transport planners recognise the necessity to
promote the use of alternative modes, mainly through EU-funded projects
•
VALLADOLID: Alternative urban mobility solutions have a marginal treatment
perhaps due to limited social pressure
•
WEST ATHENS: With the exception of the Urban Pilot Project SWANS very few AUMS
have taken place during the past few years. On the other hand, ASDA has prepared
adequate plans for an extended car-free road network, while a number of pedestrian
roads are planned by individual municipalities.
The limited implementation activity is mainly due to the following reasons: The
dominance of the private car where most of the implementation is focused (traffic &
parking management); Low enforcement potential; Lack of financing means; Low
maintenance potential.
Regarding the specific Alternative Urban Mobility Solutions:
o
WALKING
No action
Marginal
ALEX’POLIS

CATANIA

VALLADOLID
VALLETTA
Major

CSEPEL
LARNACA
Fair

No action
Marginal
Fair
Major

WEST ATHENS
R
O
A
M
R concern:
OR
AJJJO
MA
•
VALLADOLID: Implemented practices include new pedestrian areas, facilities in
traffic lights and crossroads, extension of sidewalks etc.
R
A
F
R concern:
AIIIR
FA
•
CSEPEL: In Budapest, and in the district of Csepel as well, some new pedestrian
areas have been developed, and there are a few mixed-use areas as well (for
pedestrians and for restricted traffic, or for cyclists). These are successful projects,
but the need for these solutions is higher than the number of the implemented
projects so far. Generally speaking the cooperation between the different districts
and the city level has also produced some successful results both in the city centre
of Budapest and e.g. in the central area of Csepel so far.
•
WEST ATHENS: The practices refer mainly to the partial implementation of an
integrated plan for car-free spaces.
L
A
N
G
R
A
M
L concern:
AL
NA
GIIIN
RG
AR
MA
•
ALEXANDROUPOLIS:
Lack
of
integrated planning leads to single
pedestrian streets not forming a
network.
•
CATANIA: Strong opposition from shop
owners. This is why the implementation
was partial and incomplete, ending in
the reopening of the pedestrian streets
to traffic.
•
VALLETTA: Pedestrianisation of Republic
Street (main central axis), new pedestrian zone at the Valletta Cruise Liner Terminal,
and improved paving at the recently regenerated public gardens of Upper Barrakka
and Hastings. However, as a whole the state of pavements within city centre itself
remains rather poor. New pedestrian zones approved at Merchants Street amongst
others.
¾
Special Care for handicapped Users
•
ALEXANDROUPOLIS: Ramps for the handicapped in all re-amended crossings.
•
CATANIA: Slides for the handicapped in all sidewalks.
•
LARNACA: Adjustments to existing pavements to allow access to wheel chairs
•
VALLADOLID: Reduced kerb in pedestrian crossings; Different paving near crossings
for the blind; sonar warnings for the blind in traffic lights; urban furniture eliminated
•
VALLETTA: Handicapped are consulted on all projects and policy development
through the National Committee for Disable Persons KNPD; all projects should follow
Guidelines developed in the past 5 years; the projected Vertical Connection has been
designed with diagonal lifts and not escalators
•
WEST ATHENS: Ramps at the crossroads; most of traffic signalling is equipped with
sonar warnings for the blind
o
CYCLING
No action
Marginal
ALEX’POLIS

CATANIA

CSEPEL

Fair
Major

LARNACA

VALLADOLID
VALLETTA

WEST ATHENS

R
A
F
R concern:
AIIIR
FA
•
LARNACA: A few bicycle lanes on new roads built over the last three years.
•
VALLADOLID: Many kilometres of bicycle lanes created; new streets are desiged with
a bicycle lane
L
A
N
G
R
A
M
L concern:
AL
NA
GIIIN
RG
AR
MA
•
ALEXANDROUPOLIS: Partial implementation
achieved so far (750 Meters long).
•
CATANIA: Topography does not lend itself to cycling; some
pilot initiatives underway.
•
CSEPEL:
Typically,
the
development
of cycling
paths is regarded as a
“luxury” mobility practice
that can be eradicated
from the municipal budgets
in
case
of
financial
restrictions.
Some
of
the
recent
road
reconstruction works produced a few new
bicycle lanes, but there is no real cycling road
network to be used, and the busiest roads in the
downtown don’t comprise these lanes.
of
the
plan
•
VALLETTA: A cycle lane connecting the P&R site with Valletta ~ “Park and Cycle”; 20
bikes available for free usage. However, only 0,3% of all trips carried out by bicycle.
•
WEST ATHENS: 3 car-free road links implemented including bicycle lanes, while a
network has been planned
o
SOFT PRACTICES
No action
Marginal
Fair
Major

ALEX’POLIS

CATANIA

CSEPEL

LARNACA

VALLADOLID

VALLETTA

WEST ATHENS
R
A
F
R concern:
AIIIR
FA
•
CATANIA: Alternative Urban Mobility Solutions already
adopted or on the way to the adoption in the city of
Catania: Incentives for electrically aided bicycles (€
250,00) or electrical scooters (€ 500,00) - 450 vehicles to
be financed. Exchange parkings; Parking fare policy; Carpooling; Car-sharing
•
VALLETTA: The present “V-Licence” system (city access
fee) to be soon replaced by a pay-per-use system, the
Controlled Vehicular Access (CVA) system.
L
A
N
G
R
A
M
L concern:
AL
NA
GIIIN
RG
AR
MA
•
ALEXANDROUPOLIS: Limited to awareness campaigns.
•
CSEPEL: A few zone access controlled areas in the city
centre of Budapest; a few bus lanes; traffic control on
some central roads; intelligent traffic lights for priority
to tramways or buses. Promotion campaigns only in
recent years, without a well organised marketing
system. Not mentioned in this category, but important
in the context of Budapest (not in Csepel) are some
P+R and B+R parking places that were developed at
the end of the 90’s. However, the need for them would
be the multiple compared to the existing quantity of
such parking places
•
VALLADOLID: Public transport campaigns; special bus
ticket policy (free transfers); a project for rent of bikes
¾
•
CSEPEL: Intelligent traffic lights for the blind.
•
VALLADOLID: All new buses are low-floor.
o
IT-BASED PRACTICES
No action
ALEX’POLIS
Marginal
Major

CATANIA

CSEPEL

LARNACA
Fair

VALLADOLID
VALLETTA

WEST ATHENS

R
A
F
R concern:
AIIIR
FA
•
VALLADOLID: Fleet management and passenger
information system for all new buses. Accessibility
management for specific types of vehicles in sensitive
areas. Institutional measures such as increase of
vehicle taxes proportionally to their age.
L
A
N
G
R
A
M
L concern:
AL
NA
GIIIN
RG
AR
MA
•
WEST ATHENS: 6 Intelligent Bus Stops, 6
Info-Kiosks and 6 Variable Message Signs
are implemented in the context of the UPP
SWANS.
•
LARNACA: A new IT/SMS-based parking
system currently under consideration
•
CSEPEL: Some older traffic control
systems, and a newer GPS-based system
used for traffic control. An integrated
ticketing system was to be tendered, but
due to the high costs and a conceptually
problematic background, it was suspended.
•
VALLETTA: Controlled vehicular access (CVA)
system due for March 2007. The system will
allow for automatic access fee charging based
on travel time. Charges to vary by time of
day. In addition, an ITMS (Intelligent Traffic
Management System) including an AVL
(Automatic Vehicle Locator System) is
envisaged, to integrate the control of private
cars and public transport.
•
CATANIA: Several projects on the way, i.e.
Zone a Traffico Limitato and traffic monitoring.
¾
•
CSEPEL: Blind leading lanes in some metro line 2 stations were introduced. New
trams and buses are designed to be accessible for handicapped users.
o
RENEWABLE ENERGY SOURCES
No action
ALEX’POLIS
Marginal
Fair
Major

CATANIA
CSEPEL

LARNACA

VALLADOLID
VALLETTA

WEST ATHENS

R
A
F
R concern:
AIIIR
FA
•
VALLADOLID: 100 of the 130 buses of the city use liquefied gas
L
A
N
G
R
A
M
L concern:
AL
NA
GIIIN
RG
AR
MA
•
VALLETTA: Electric Cars for local city transit.
Electric Minicabs over the coming year to serve the
capital. Park and Ride service vehicles to be
propelled by RES in the long term.
•
CATANIA: Electric minibuses serve the inner parts
of the historic centre. Many methane buses in
operation.
•
CSEPEL: Even though some of the biggest cities in Hungary (Szeged, Debrecen)
have had extensive experience in RES for 10-15 years, the leadership of the BKV
doesn’t want to introduce this innovation. Only newer or modernised electric vehicles
(trolleys, tramways) are equipped with energy regenerating systems.
•
WEST ATHENS: In UPP SWANS: 2 Bioclimatic Car-Free Road Links; 6 Intelligent Bus
Stops equipped with photovoltaic arcs. Most conventional bus lines operate on LPG
o
NON-CONVENTIONAL PRACTICES
No action
ALEX’POLIS

CATANIA

CSEPEL

LARNACA

VALLADOLID

Fair
Major

VALLETTA
WEST ATHENS
Marginal

Some important comments:
•
VALLETTA: Water Taxis and Horse Drawn Cabs for the tourist market only. The
Vertical Connection launched in December 2006 as an alternative mode to bus loops
•
VALLETTA: Water Taxis and Horse Drawn Cabs for the tourist market only. The
Vertical Connection launched in December 2006 as an alternative mode to bus loops
and conventional transport schemes from the Valletta and Floriana waterfront. In
2006 a tender for the sea ferry service to connect the Harbour area was issued by
the Malta Maritime Authority (MMA).
5.3
IMPORTANCE OF THE ALTERNATIVE [C2]
Are Alternative Urban Mobility Solutions a serious alternative to the dominant mainstream
modes or are they a marginal effort, based on their performance to date? The profile below
shows the perceptions from the CITUM cities.
Q: To what extent the experience from your area has proved that Alternative Urban
Mobility Solutions can be a serious alternative option to the usage of individual
motorised modes (especially private cars)?
-3
-2
-1
0
ALEX’POLIS

CATANIA

+1
CSEPEL

LARNACA

VALLADOLID

VALLETTA

WEST ATHENS

+2
+3
…by those with a R
E
V
T
S
O
P
R
E
H
T
A
R
E opinion:
VE
TIIIV
SIIIT
OS
PO
RP
ER
HE
TH
AT
RA
CSEPEL: In the context of Budapest, the alternatives – mainly soft policies (bus lanes,
intelligent traffic lights, recently started transport association’s activities, rhythmic
timetables on the suburban railway lines) have slowed down the worsening of the modalsplit. In some cases even increasing passenger numbers can be measured as a result of
the aforementioned actions. Unfortunately, Csepel doesn’t benefit from these actions on
the short term because of its location on an island.
LARNACA: From the limited experience of the few bicycle routes created recently, it can be
concluded that they can prove to be a great alternative to the conventional mobility
solutions as people are already using them to access other areas. A more planned
approach in the creation of alternative mobility solutions combined with a systematic
‘mentality change’ scheme will vastly decrease the adoption of conventional mobility
solutions.
ALEX’POLIS: The scale of the existing interventions is so limited that could not change the
habits of the citizens.
CATANIA: Citizens of Catania (as in most Italian cities) are rather diffident in leaving
private cars at home. Real results can therefore be achieved only if there is a legal
constraint to car usage. Strong promotional / educational campaigns are also very
important for higher effectiveness.
VALLADOLID: Car sharing or cycling have not proved to be serious alternatives to the
private car; they just change the mentality of people. Other measures were more efficient:
new pedestrian zones in the city centre, management of rotation parking and deterrent car
parks.
81
WEST ATHENS: No effect at all, due to (i) the limited scale and (ii) limited awareness
efforts.
5.4
POTENTIAL OF THE ALTERNATIVE [C3]
What is the potential of Alternative Urban Mobility Solutions to improve urban mobility for
all user groups, including the handicapped? The profile below shows the perceptions from
the CITUM cities.
Q: Based on your experience, please state and justify your opinion regarding the
importance of Alternative Urban Mobility Solutions in achieving MORE
SUSTAINABLE URBAN MOBILITY in your area, especially for disadvantaged social
groups
-3
-2
-1
0
+1
+2
+3
ALEX’POLIS

CATANIA

CSEPEL

LARNACA

VALLADOLID
VALLETTA

WEST ATHENS

CATANIA: Despite the little experience, the effects have been very positive effects.
CSEPEL: In the context of Csepel no alternative urban mobility solutions have been
implemented at a valuable level. At the metropolitan level, no meaningful improvement of
the conditions of disadvantaged social groups. However, all alternative transport solutions
in Budapest can be regarded as small steps in the development of a more sustainable
urban mobility system
LARNACA: Adoption is restricted to specific user groups (especially tourists and
disadvantaged social groups); hence contribution is marginal.
VALLADOLID: Alternative Urban Mobility Solutions should focus on a more intelligent usage
of cars because other solutions like e.g. bicycle lanes affect a little share of the population
VALLETTA: Despite a short period of the P&R (one month), car entries to Valletta have
been already reduced. The advent of CVA is somehow more promising following its
integration with the P&R scheme.
WEST ATHENS: The importance of AUMS is limited if it is not accompanied by a voluntarist
policy restraining the usage of private cars.
5.5
SUSTAINABILITY OF THE ALTERNATIVE [C4]
Do Alternative Urban Mobility Solutions lead to higher sustainability in urban mobility or do
they have limited effects? The profiles below show the opinions from the CITUM cities.
Q: Based on your experience in your area, please state and justify your opinion
regarding the importance of Alternative Urban Mobility Solutions in achieving A
BETTER URBAN ENVIRONMENT
82
-3
-2
-1
0
+1
+2
+3
ALEX’POLIS

CATANIA

CSEPEL

LARNACA

VALLADOLID

VALLETTA

WEST ATHENS
CATANIA: First, the perceptions of citizens are positive. Second, the pollution monitoring
stations show a better air quality in the reduced traffic zones.
CSEPEL: The recent practices in the heart of Csepel, and even more in the whole Budapest
contribute to a healthier urban environment. In Csepel, however, higher positive impacts
are expected when the new bypass road is open, allowing the integrated development of
the city centre.
LARNACA: Small contribution due to the limited scale of the practices; increase expected
after the expansion of the system to a network.
VALLADOLID: Given that the main pollutant are particles, mainly emitted from diesel
engines, additional measures were taken to complement the reduced effect of the
abovementioned Alternative Solutions implemented, such as: prohibition of heavy vehicles
in the centre; increase of vehicle taxes proportionally to their age; restrictions to access,
circulation and parking in the historical centre.
WEST ATHENS: AUMS have improved very much the surrounding environment at the
micro- and meso-scale. Nonetheless, their contribution to pollution abatement (macroscale) is marginal because they are not accompanied by drastic restrictions in car usage.
Q: Based on your experience in your area, please state and justify your opinion
regarding the importance of Alternative Urban Mobility Solutions in supporting the
UPGRADING OF DISADVANTAGED AREAS and/or the ACCESSIBILITY OF
CENTRAL AREAS FROM THE URBAN FRINGE
-3
-2
-1
0
+1
+2
+3
ALEX’POLIS

CATANIA
CSEPEL

LARNACA

VALLADOLID
VALLETTA
WEST ATHENS

CATANIA: Combination with heavy infrastructures is necessary to achieve substantial
effects.
CSEPEL: Mainly due to the bus lanes and traffic restrictions.
LARNACA: Size of the effect proportional to the geographical extent of the practices
83
VALLADOLID: Main practice that increased the accessibility of the urban fringe is car
sharing, namely “share car and park free”
VALLETTA: Size of effects proportional to the duration of the implemented practices: more
substantial effects expected in the longer term
WEST ATHENS: The AUMS implemented have contributed to the upgrading of their
surroundings, which were quite underdeveloped before the implementation. This upgrading
led to an increased attractiveness but the accessibility of those areas increased
significantly only in combination with the Metro station that was built there.
5.6
SUCCESSES
AND
ALTERNATIVE [C5]
FAILURES
OF
THE
The profiles below show the opinions from the CITUM cities.
Information and publicity

Citizen participation

Coordination of competent authorities

Geographical extent of the interventions

Social benefits of the interventions

WATH
Quality of studies and plans
VLTA

VLDD

LARN
CSEP
Integrated planning approach
CATA
ALEX
Q: As regards the more successful Alternative Urban Mobility Solutions implemented
in your area, please state the main success factors.

Other success factor
CATANIA: An integrated planning approach is definitely the proper way to achieve concrete
results.
LARNACA: Success mostly due to citizen support in combination with the extracted social
benefits.
VALLADOLID: Need to be accompanied by a restriction of the use of private cars
VALLETTA: Main factor, the “Joined-Up Government” approach which brought together a
number of public sector bodies to work across organisational boundaries towards the
common goals
WEST ATHENS: The success of the AUMS implementation is limited despite a high quality
planning and studies context which did not totally counterbalance the negative factors
listed below
84
CSEP
LARN

WATH
CATA
Partial/incomplete planning approach
VLTA
ALEX
VLDD
Q: As regards the less successful Alternative Urban Mobility Solutions (e.g.
unfulfilled, incomplete or abandoned policies or measures) implemented in your area,
please state the main failure factors.

Other failure factor – please mention
ALEX’POLIS: In order of precedence: 1 - Coordination of competent authorities; 2- Partial /
incomplete planning approach; 3 - Quality of studies and plans; 4 - Citizen participation; 5
- Information and publicity
LARNACA: Initial thoughts for implementing walking as an alternative mobility option has
failed due to lack of expertise and incomplete planning
WEST ATHENS: It is believed that with better awareness, coordination among local
authorities (in terms of enforcement) and with more direct citizen involvement, the AUMS
would be more successful and they could be expanded consequently in larger areas.
5.7
REQUIREMENTS FOR THE ADOPTION OF THE
ALTERNATIVE [C6]
Are citizens disposed to adopt Alternative Urban Mobility Solutions and under which
conditions? The profiles below show the perceptions from the CITUM cities.
Q: To what extent are your fellow citizens favourable to Alternative Urban Mobility
Solutions (in terms of attitudes)?
-3
-2
ALEX’POLIS
CATANIA
-1
0
+1
+2

CSEPEL

LARNACA

VALLADOLID
85

+3
-3
-2
-1
0
+1
+2
+3
VALLETTA
WEST ATHENS

•
ALEXANDROUPOLIS
Insufficient information and publicity measures concerning Alternative Urban Mobility
Solutions, often causes the negative reaction of citizens.
•
CATANIA
Almost all citizens declare to be in principle favourable to the concept of Alternative Urban
Mobility Solutions. A different situation occurs with concrete measures. In this case, strong
opposition from the ones mostly influenced is not rare. A good example is the opposition
made by shop owners against the pedestrianization of the historic centre.
•
CSEPEL
If the question concerns citizen satisfaction with the existing alternative solutions, then we
can say that people are unsatisfied with the existing ones due to the limited scale. Neither
bicycle lanes, nor walking areas form a real network in Csepel. The overall social attitude
towards alternative urban mobility solutions is positive; the more flagship projects are
successful, the easier the acceptance of a similar project in the future. However, due to the
lack of large scale alternative solutions, citizen attitudes are difficult to measure. They
seem positive now, but in case of a regulated or restricted personal car use – due to an
alternative solution - general citizen attitude could become less positive and open..
•
LARNACA
Citizens are urging the authorities to implement as much as possible. This is verified by
their participation in the open discussions and the enthusiasm they display.
•
VALLADOLID
Almost all citizens declare to be in principle favourable to the concept of Alternative Urban
Mobility Solutions. Opposition arises when cars are restricted.
•
VALLETTA
-
In terms of innovative technologies for transport, respondents appeared to be
quite receptive (48.3% of positive attitudes, vs. 12.8% of negative ones).
-
A 16.7% intend to shift to public transport from cars once the pay-per-use system
is introduced for Valletta.
-
The use of ferry service is likely to be very limited.
-
There may be some potential for cycling.
-
Important shift intentions to Park and Ride.
However a number of the above factors will certainly change with the advent of the CVA
system to be implemented from March 2007.
•
WEST ATHENS
Very few citizens would state an opposition to AUMS, especially when they don’t restrict
their freedom to private modes movement and parking, but this is theory; in practice …
(see next topic)
86
Q: To what extent have your fellow citizens already shown a fair adoption level as
regards Alternative Urban Mobility Solutions (in terms of actual PREFERENCES OR
choices)?
-3
-2
-1
0
+1
+2

ALEX’POLIS

CATANIA
CSEPEL

LARNACA

VALLADOLID

VALLETTA
WEST ATHENS
+3

CATANIA: Citizens (in Catania) have to be forced to adopt new mobility measures. After a
period of adaptation, they nevertheless accept the change and appear quite satisfied.
CSEPEL: Bicycle lanes and walking areas are well accepted and adopted by citizens, but
this is only a preliminary level for the introduction of real alternative solutions. In the
context of the city of Budapest, soft policies implemented in the last 5-10 years (bus lanes,
access controlled zones, etc.) show a fair reception, if positive impacts are attractive and
sufficiently communicated
LARNACA: The limited options of alternative mobility solutions that exist in the Larnaca
area (mainly a few bicycle routes) and the use of these options by numerous citizens has
shown that they are likely to adopt the mobility solutions
VALLADOLID: Citizens adopt an Alternative Urban Mobility Solutions when they don’t have
another possibility, they (if they can) prefer the use of private car.
WEST ATHENS: (In practice)… citizens did not adhere to the car-free spaces when they
used them, as visitors and adjacent shop owners violated the regulation, even being
favourable in theory.
Integrated planning approach

Other success factor
87

WATH
VLTA
VLDD
LARN
CSEP
CATA
ALEX
Q: Which factors could lead to a higher level of adoption of Alternative Urban
Mobility Solutions in your area?

[*]
[*]: Maturity of the socio-political context
ALEX’POLIS: In order of precedence: 1- Funding opportunities; 2- Social benefits of the
practices; 3- Integrated planning approach; 4- Information and publicity; 5- Quality of
studies and plans; 6- Geographical extent of the practices; 7- Coordination of competent
authorities; 8- Citizen participation
LARNACA: Planned and systematic publicity into the benefits gained by the use of
alternative mobility solutions will enhance their adoption. This has to be supplemented by
high quality of plans
WEST ATHENS: It seems that the local society needs time to mature and adopt AUMS.
Maturity coincides with the acknowledgment that private modes are not the panacea for
mobility and, hence, with the end of captivity. To this aim, authorities must proceed to
intensive awareness campaigns accompanied by extensive reliable AUMS efforts.
Q: Main legal provisions concerning Alternative Urban Mobility Solutions
•
CSEPEL
In the Hungarian Transport Policy 2003-2015, alternative solutions are only mentioned in a
general way, focused on the use of alternative fuels, on the development of bicycle lane
networks and on the suppression of the personal car use.
The city of Budapest has its strategic development concept (that was approved by the
General Assembly of Budapest in 2003), which central is to strengthen environmentfriendly transport developments. Based on it, the medium term development programme
(Podmaniczky Programme, 2005) was elaborated, focusing on the development of public
transportation as one of the determining element of a sustainable, liveable city. Both the
Concept and the Mid-term Plan are strongly based on the Transport Development Plan of
Budapest – approved in 2001 – and aims at the development of public transport systems,
the use of soft policies and ITS for making public urban mobility a real and better
alternative of personal car use.
In the Hungarian legal documents concerning mobility there are recommendations for
environment-friendly transport modes and for the use of renewable energies, but these
have no mandatory force.
•
LARNACA
There is no legal framework that covers alternative urban mobility solutions, but only
guidelines issued by the central Government.
•
VALLADOLID
The urban mobility planning of Valladolid involves different detailed plans, and detailed
project documents (executive plans) that must be coordinated in timing and
implementation.
The urban mobility planning has been divided in 5 detailed plans: pedestrian and cycling
mobility, public transport, parking, road planning and mobility management. Among these,
the first and the second plan contained points about alternative urban mobility solutions
•
VALLETTA
The law requires the Malta Environment & Planning Authority to consult with the public on
both planning and environment policy. Of particular relevance in these contexts are the
following:
88
Developing Planning Act (2002) particularly Articles 18 (6), 19(1), 27(2) and 29A (3) and
Environment Protection Act particularly Article 10(1).
A public consultation would be held at MEPA, with the relevant stakeholder either the ADT
or the MUDR (or both) being present during the consultation meeting.
•
WEST ATHENS
The usage of space by the various mobility means is administered by local authorities in
place with the agreement of the police. Such decisions are usually taken in the context of
wider traffic management plans. RES and telematics are not governed by an explicit
dedicated framework.
89
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This chapter deals with the theme from which the CITUM planners feel more satisfied with,
i.e. citizen participation. Despite numerous shortcomings, such as the takeover of the
media or the formal nature that characterises very often such processes and their related
activities, in the majority of cities citizens do participate in urban mobility planning. This is
mainly due to the importance that urban mobility, traffic and transport have acquired in
the every day life in developped countries who have resolved more or less their basic
infrastructure problems.
Some important findings stem from cities of ex-socialist countries, where it is apparent
that citizen participation is a foremost indication of the democratic functioning that citizens
are seeking for so much.
6.1
6.1.1
CASE STUDY CSEPEL - COOPERATING WITH THE
RESIDENTS IN SOLVING THE PARKING PROBLEMS OF A
HOUSING ESTATE
6.1.1.1
Summary of the practice
Parking is a crucial problem of housing estates in Hungary as the motorization level was a
lot lower the time when the estates were built. Nowadays the lack of parking places has
become a source of tension on the estates, often causing very chaotic situations.
The open spaces of housing estates are of great importance for most of the residents.
Everyone uses them and everyone has an opinion about them. Consequently, radical
changes in organising the use of public places – even for parking - are impossible to
implement without a wide consensus among the residents.
The current case study analyses the process which led to the implementation of a
completely new parking and traffic system in the Erdősor housing estate in Budapest
(Csepel).
The process was initiated and moderated by the district municipality (municipality of
Csepel). The municipality commissioned the parking and public space layout plans that
were realised by a consultant company (Közlekedés Ltd.). The planners made three main
versions, where each version contained new parking space, new rules for the traffic
directions and new parking restrictions. These plans were shown to the residents in the
framework of public fora.
The opinions of the residents showed such a diversity that for a while it seemed impossible
to reach any kind of conclusion. The breakthrough only came with the personal
engagement of the elected municipal representative of the housing estate, who negotiated
the possible solutions with the representative (the housing manager) of each
condominium. Then these representatives went to the inhabitants in their respective
staircases to gather their votes and to explain them the solutions. By this mean all of the
residents were questioned not only the ones that like to visit public fora, and it was
possible to formulate a quite homogeneous opinion.
90
After years of debates the new parking system and the system of one way traffic are
applied – since May 2005 – and practically all residents keep the rules.
6.1.1.2
Background information and general context
Csepel is district 21 of Budapest, which also means that the municipality of Csepel has
special, restricted authorities in planning and managing urban transportation systems.
There is a two-tier governmental system in Budapest, and within this system the
municipality of Budapest is responsible for the operation of public transportation and also
for the maintenance of main roads and traffic services. Consequently, the municipality of
Csepel is mainly involved in solving local transportation problems and maintaining roads of
local importance.
That is why the case study of citizens’ participation concentrates on a local problem of a
housing estate, which can be influenced by the municipality of Csepel.
As it was pointed out in the beginning, parking is a crucial problem of housing estates.
Instead of being able to pursue the common interest of the whole housing estate, the
condominiums can only act in their own interest. The common representatives – housing
managers – cannot synthesize the interests of the condominiums as they are responsible
just for the maintenance of individual buildings. Currently there is no “owner” of a housing
estate.
The housing estate of Erdősor street was built in the late 70s and 80s, and is considered to
be one of the best estates in Csepel. It consists of approximately 2500 flats that are
located in buildings standing alongside 4 main alleys.
The original idea for organising the layout of the housing estate was to build a frame of
main roads around the estate and let the roads inside the estate – alleys - be used for
pedestrians. So a complete division of space for car traffic and pedestrian use was
planned.
The intensity of motorization was a lot lower at the time, when the housing estate was
built. Currently the number of parking places on the estate doesn’t fit at all the number of
cars.
6.1.1.3
Priorities and problems
The original ideas for the use of alleys – as traffic free
space - of the housing estate are not adequate
nowadays.
Main problems are the following:
-
Lack of parking space, which results illegal
parking lots all alongside the alleys
-
Parking cars make serious impediments for the
pedestrians
-
The chaos parking
disorganizes
the
of the housing
cars
create
layout and the outlook
estate
-
Parking cars take
up green spaces
-
Parking
cars
public
service
cars, ambulance
create impediments for
cars,
like
garbage
vehicles, etc.
-
The owners of the
cars want to park as
close
to
their
homes as possible in
order to avoid car thefts – that is why they ignore using the parking lots around
the estate
91
6.1.1.4
Objectives, strategies and mobilization of resources
The detailed traffic survey of the area started in autumn 2004. The main conclusions of the
survey were the following:
-
The absolute number of parking places is a lot lower than the number of cars, not
mentioning the predictable serious increase in car numbers
-
At the same time the use of built in parking space is only 60% (so the demand
side does not meet the supply side)
-
There are about 400-500 cars parking against the traffic regulations, while a newly
created parking place for 324 cars is practically not used
The company that carried out the survey – Közlekedés Ltd. - worked out three versions for
resolving the parking problems and the directions of traffic.
The basis of the suggestions was the following:
-
Making as little changes as possible
-
Reducing the green area as little as possible – from 52,5% to 50%
-
Increasing the area of secured/guarded parking places
The three versions were:
1.
Providing one-lane parking places on one side of the alleys without widening
them
2.
Providing one-lane parking places on both sides of the alleys with one way traffic
and with the widening of the alleys by 1-1 meters
3.
Providing one-lane parking places on both sides of the alleys with two way traffic
and with the widening of the alleys by 2-2 meters
Notwithstanding the differences, each model contained element that were the same:
-
To ringfence some parking lots that are unused because of the lack of safety
-
To create separate walking lines/pavements for the pedestrians
-
To legalise and to build infrastructure in places where a critical mass of cars may
be observed – even their current place is illegal
-
To introduce one way traffic direction in the alleys to provide a kind of roundabout
-
To convert a few existing one-storey parking places into two-storey ones
6.1.1.5
The programme of solving the parking problems of Erdősor housing estate started in year
2000 and was partially completed in 2005. In 2000 there was a residential survey on the
possible locations of the parking places. The municipality started to build some but the
opposition in some cases was so strong, that the residents hindered the building process
by their bodies. This way the process was terminated.
In 2003 the process started again thanks to the activity of the elected municipal
representative who is responsible for that area. The process started on one of the four
alleys (Puli alley). There were discussions with all the common representatives to convince
them to support the idea of one way traffic in the alleys and also the construction of
separate pavements. The pavements were built, but introducing one way traffic turned to
be too complicated.
These first results created a pattern for the residents of the remaining three alleys. There
was a demand arising again to find solutions to the parking problems. In 2004 a
transportation planning company (Közlekedés Ltd.) was commissioned to work out options
for the problem. As it was completed, a leaflet was taken to all the mailboxes of the
inhabitants and also several residential fora were organised. These fora were full of
emotions, and no compromise was able to reach.
92
After the last forum the municipal representative of the estate gathered the
representatives of the buildings and negotiated the versions with all their advantages and
disadvantages. By this mean the common reps were prepared enough to have personal
meetings with the residents when they collected all of their votes concerning the different
options. The bright solution to come to a
common platform was to visit all the
residents and let them vote for the option
they choose. By this mean not only
residents visiting residential forums were
called to express their wish, but
practically all of them.
difficult to reach.)
6.1.1.6
Vast majority has chosen version 2, which
is not a radical one, but provide
significantly more space for parking but
also require certain self-discipline in
following the rules of one way traffic. (The
solution of one way traffic was the most
The process of introducing a new parking system and a new traffic system is not yet
finished, but the most sensitive part – one way traffic – is already applied. It is very rare
that someone breaks the rules.
Most of the green areas are defended by certain concrete blocks – which were taken away
by the residents at the first times.
New separate pavements were built in each alley, which gives pedestrians the opportunity
to walk safe.
The outlook of the public spaces improved a lot, and the cars of public services are able to
reach the area.
There are certain construction works ahead like ringfencing some parking lots and building
concrete basis for some parking places close to the buildings.
The process of finding a conclusive solution for parking problems is under negotiation in
three other estates as well.
6.1.1.7
Transferability, conclusions and benefits
Naturally there is no solution that meets all the residents’ taste and interest. Considering
this fact and the fact hat the district municipality (municipality of Csepel) is responsible for
the local parking systems, one might think that any solution may be installed top-down by
power. However the residents’ actions in 2000-2001 show that in such sensitive topics like
parking no solutions without a relative consensus may be approved. The consensus is also
needed for the sake of sustainability: residents keep the rules that they created and break
the ones that were decided without them.
The ways in which consensus might be achieved is complicated to find. Information
materials, residential fora are essential but it is also essential to activate the inactive, the
ones that have requirements but are unable/unwilling to fight for them. That is why a
proactive approach is needed. This approach is quite unfamiliar for the public sphere for
the municipality. In this special case this approach was taken by the elected municipal
representative of the housing estate, who was able to create a kind of unity of the housing
estate which is a bunch of individual building otherwise. If there is no such an active
person available, than the municipality might pay for a mediator to fullfill this task.
(Although an active politician is a bit different than a paid mediator. A weight of a politician
is always more significant.)
93
(It is a big question in case of the 3 housing estates that are just under this process but
lacking an active local politician, whether a consensus may be reached and whether the
rules will be accepted by the majority of the residents.)
6.1.2
CASE STUDY KALISZ - PARTICIPATION IN THE
PROCESS OF INTRODUCING ELECTRONIC TICKETS IN
URBAN PUBLIC TRANSPORT
6.1.2.1
Summary of the practice
The aim of this presentation is to show the implementation of the new Bus Fee System
called SPOKE used in urban public transport. The second aim is to promote experience and
financial consequences regarding the process of implementation of the project (SPOKE).
The system is introduced in the area of the city of Kalisz and its surrounding areas which is
closely tied with the city by bus line services for commuters and students.
Among the most important targets are: the possibility of registering all passenger’s rides
and therefore creating an info base for the Operator which is one particular company (KLA
Plc subsidized by local government (Municipality of Kalisz). The info base is used for and
responsible for far-reaching management and their passenger's expectations. The created
info base allows quick and accurate reactions to meet demand and expectations.
Another aim of the project is avoiding expensive marketing research made usually in order
to estimate the amount of passengers with reduced tickets and free of charge tickets which
is demanded by local government (Municipality of Kalisz) to estimate the level of
subsidizing.
The participants of the project are inhabitants of Kalisz and it's surrounding areas,
students and visitors, The Operator and Organizer of the transport system and
communication services – Kalisz City.
The system was implemented in the year 2000 and has been developed according to social
expectations and technical solutions.
6.1.2.2
Background information and general context
The key factor was to cope with the changing habits of older passengers using paper
tickets and changing the habits of drivers complaining about additional difficulties
concerned with new bus electronic equipment.
Members of the City Council indicated and chosen by inhabitants as representatives of the
whole local society took part in a wide discussion concerning the idea of the project and its
range.
The economical context includes not only the plummet of ticket distribution costs but
especially as previously planned, the decrease of retailed chip card costs in order to
encourage inhabitants to change their habits.
Another factor in implementing the project was establishing new rates for tickets
promoting higher frequency of travel more accurately for most of the travellers and
commuters. Modifying the price rate is still in process according to the feedback received
from travellers.
Furthermore, as a factor with high priority, the choice of electronic equipment had to be
made carefully. The ability of the elderly and handicapped passengers was taken into
consideration.
94
The Operator searched for a solution to cut the cost of services in order to save means for
investment and change for its bus fleet as well as an idea of improving the service,
especially, punctuality (achieved by reducing tickets sold on board) and an improvement of
comfort (achieved by better access and the disposal of ticket cancelling equipment on
board).
The Operator (KLA Plc) is strongly tied with the Organizer of transport system
– Municipality of Kalisz. The City has 81.62 % of KLA Plc shares and British concern
Southern Vectis possesses nearly 19 % of shares. The Operator – Kaliskie Linie
Autobusowe Public Limited Company was established on the 13th May 1994.
Kalisz City is the Organizer of the communication system for its inhabitants as is stated by
law. Therefore, The City purchases the transport service from the Operator which is the
company mentioned above.
The contract requires a certain amount of reduced and free tickets. The source of all the
data is the info base created by SPOKE System but also research.
The difference in price between normal tickets and reduced tickets is reimbursed by the
City.
Unfortunately there is a difficulty that causes the prevention of collecting full data. There is
still a certain group of inhabitants of over 60 year olds who refuse to use the new
electronic cards. It means that data can not be fully completed. Total implementation of
the electronic card, works in about 60% of rides, and would allow the Operator to avoid
expensive market research and polls.
But there a question appears: how to convince the elderly generation of citizens to use
electronic tickets (chip cards)? It should be underlined that this part of society apart from
its age is very mobile and travels quite frequently.
It seems necessary to promote this info about the use of electronic ticket before any
decisions in this case will be made. It would not be advisable to impose an obligatory use
of chip cards. It would be useful to engage Members of the City Council to help and
present them with all the advantages beneficial from this solution. Although they could
spread this idea among members of the districts, which have been chosen, it seems it
would be a long-term process. Nevertheless, the final aim of this project is to eliminate
paper tickets and receive a completed and pure source of information from SPOKE system
in order to improve the quality of service. A straight and clear signal from travellers –
users of electronic cards – would help quick reaction and correct the frequency, length of
bus lines and their shape.
6.1.2.3
9
Achieving acceptance from passengers and the Organizer
– the City - to implement a fully reorganized ticketing system.
9
Building an info base for all statistical data used during the preparation of the
subsidized contract between the Operator – KLA Plc and the Organizer – the City.
9
Building a data base for service improvement purposes.
¾
of
the
transport
Conflicts detected:
The lack of acceptance of the older part of society for using electronic tickets, which is
covered by the following argument: The elderly (over 70) have already travelled without
tickets as local law allows them the opportunity to travel free of charge considering their
age, their status and concern of society to help one of their group.
The basis of the contract between the Organizer (the City) and the Operator (KLA Plc) is
still not clear according to the lack of a full data base. This causes tough negotiations and
heated discussions because the Organizer is obligated to run expensive research and
unfortunately data coming from this source is still only approximately estimated.
95
¾
Has the previous experience been useful in the process of learning?
The fifth year of the functioning SPOKE System indicates a rising level of social acceptance
of electronic tickets use. Thus, ideas of SPOKE are understood and moreover, even some
travellers – members of the most persistent group - have learned how to use an electronic
card.
The Councilors accept every year a high sum of money for the subsiding of the half fare
and free of charge rides (this sum is given by local government). They notice the necessity
of the registration of the free of charge SPOKE tickets.
Every participant in the project is interested in the connection between the quality of
transport services and with the amount of money which is paid by local government to the
hauler.
¾
Participants involved in the identification of the problem
−
Inhabitants of Kalisz City who remark on difficulties to their representatives e. g.
councillors of Kalisz City and the Board of Kaliskie Linie Autobusowe Plc.
−
Councillors of Kalisz City by giving an opinion on a new solution according to public
opinion and social priorities
−
The Mayor of Kalisz City, who is obligated under the law to answer the needs of the
local society. The mayor’s duties related to objectives mentioned above are realized in
practice by Department of Communication for the Municipality of Kalisz.
−
The current Operator of the bus network – The Board of Kaliskie Linie Autobusowe
Plc.
6.1.2.4
Objectives, strategies and mobilization of resources
Priorities which are in point 4.2 were formulated by the Operator and executor of the
transport’s services.
We think that a close relation between our social policy and mobility policy was nearly
achieved. Thus, different urban public transport: impaired, people who are over seventy,
volunteer blood donors, pensioners, children and youth from elementary or secondary
schools who use urban Public Transport daily. These groups of people are entitled to pay
the half fare for the tickets ( by local law).
Among all of the passengers 47 % are allowed to travel with reduced tickets and nearly
16 % travel free of charge.
6.1.2.5
¾
What caused the success of implementation the practice?
1. The improvement of transport service quality:
9
the improvement of bus punctuality,
9
drivers work made lighter by the reduction of obligation to sell tickets on board,
9
the improvement of aesthetics inside the buses,
9
the putting into practice of monitoring inside the buses (by cameras),
9
clear system of ticket controlling.
2. The hauler has received additional financial means coming from the reduction of
production of paper tickets.
¾
Who was the leader in implementation of practise?
96
The board of KLA Plc has been responsible for the process of implementation, costs,
keeping terms and feedback related to SPOKE functioning.
¾
The problem which wasn’t predicted before the implementation:
The news-stands (kiosks) owners, who were selling the paper tickets, were against the
Implementation of electronic tickets due to a loss of trade margin received from the
hauler. It meant that the paper tickets returned to the news-stands but the margin for the
sellers is lower (3% opposed to 5 % - 7%).
The price of paper tickets is 2,20 PLN. The price of the electronic tickets is 2,00 PLN, but
when someone buys a ticket on board they have to pay 2,70 PLN.
The cost of the whole system was 2 mln PLN and was refunded in 3 years.
6.1.2.6
The implementation of the system was not fully successful. Although people who are
entitled to free of charge urban public transport usage, do not use the electronic tickets.
The City is still planning to introduce the obligation of using the electronic cards by these
people.
6.1.2.7
Impact
9
the practice enables everyone, who has been engaged in the implementation, to be
able to learn about new organizational, financial and social aspects of participants
attitudes,
9
every participant has noticed direct relations between the new ticketing system and
the quality of services in urban public transport,
9
the system has enabled a marked influence on social attitudes and has raised the
level of their participation,
9
the system will allow the Operator of urban public transport to better adapt to
European Union regulations.
6.1.2.8
¾
Transferability, conclusions and benefits.
What is good in this practice?
9
the new way of tickets selling and their widespread usage,
9
the participants have overcome their apprehensions,
9
the participants have understood the basis of circumstances that made their attitudes
changed,
9
links between the new solution and data base which improves management as well as
quality of services.
¾
9
9
9
the resignation of a paper ticket system that was the only issue imprecisely registering
passenger’s rides,
new management of network communication by the hauler
the possibility to gain in a short time information about the amount and frequency of
rides and passenger’s preferences,
¾
9
The main innovative aspects of the practice
What the others cities can learn from our practice?
before full implementation of the project will be completed, some of its aspects should
be postponed and explained to prepare the particular groups of passengers to use the
new solutions (more than 3 months),
97
9
the children and youth should be educated about changes at school,
9
an attractive system of margins for the distributors of paper tickets should be offered,
9
a lower price for electronic tickets than paper tickets is a must,
9
free of charge electronic tickets for
a ticket must be prepared.
6.1.2.9
people who are entitled to ride without
Conclusions
The society is willing to accept implementation of innovative solutions but on certain
conditions:
9
financial profit has to be gained,
9
the previous preferences concerning reduced tickets must be confirmed,
9
pubic transport services must be improved,
9
travelling safety must be improved,
9
travelling comfort, especially for the elderly and the impaired should be improved,
9
implemented solutions have to be reliable but relatively clear and easy to manage,
If you want to implement the changes, every participant in the practice must cooperate on
every level of realizing the new idea.
Every participant of the practice must cooperate on each level of realizing the new idea in
order to achieve full implementation of the planned changes.
6.2
IMPORTANCE [D1]
Is citizen participation a major issue in urban mobility planning?
The three profiles below present the perceptions of the CITUM cities.
Q: To what extent Citizen Participation in Urban Mobility Planning is a consolidated
(socially, legally etc) process or a random set of ad hoc activities?
ACTIVITY
PROCESS
9
ALEX’POLIS
9
CATANIA
9
CSEPEL
9
KALISZ
LARNACA
9
9
VALLADOLID
9
VALLETTA
WEST ATHENS
9
To consolidate citizen participation as a process takes a long time for adaptation.
Consequently, citizen participation starts, almost experimentally, as a set of ad hoc events
98
to evolve into a consolidated process. In the meantime the lingering stereotype “office
worker knows better” prevails4.
The prevailing tendency for the near future is that citizen participation in urban mobility
planning shall become a consolidated and systematic process instead of ad hoc actions as
it has been until recently5. However, stagnation is a risk resulting from the indifference and
formality-oriented attitude of some authorities6.
The more local an urban mobility action is, the more the involvement of the civil society is
action-based. But at the same time, the more the involvement is action- based the bigger
effect it has on the results of the planning process. Consolidated processes tend to be
more formal and less efficient7.
Q: Which is the extent (scale, interest, mobilization, intensity) of Citizen Participation
in Urban Mobility planning in your area?
SCALE - INTENSITY
SMALL
LARGE
9
ALEX’POLIS
9
CATANIA
CSEPEL
9
9
KALISZ
9
LARNACA
9
VALLADOLID
9
VALLETTA
WEST ATHENS
9
Mobilization of social players is a function of the seriousness of the problems tackled by
mobility practices: in large scale projects citizen participation is massive and organised;
while in small scale practices citizens tend to participate individually. However, the
structure of governance influences participation significantly: higher-level authorities tend
to downscale the importance of local concerns even if local authorities support them8.
Citizen participation is an important concern of the planning authorities, whose importance
grows with democratic integration9.
Citizen response to Urban Mobility practices is rather re-active than pro-active; citizens
more often react to a change of a practice or a habit than to the creation of a new
practice10.
When the scale and the intensity of CP activities is rather low, this is because (a) some
authorities do little to educate and encourage their citizens in this domain, and (b) the
4
(Alexandroupolis, Csepel, Kalisz, Valletta, West Athens)
(Alexandroupolis, Catania, Csepel, Valladolid, Valletta)
6
(Csepel, West Athens)
7
(Csepel)
8
(Alexandroupolis, Csepel, Valladolid, Valletta)
9
(Alexandroupolis, Csepel, Kalisz, West Athens)
10
(Kalisz, Larnaca)
5
99
population is often indifferent for civic activities resulting from the takeover of public life by
TV11.
Q: Which is the frequency of Citizen Participation activities in Urban Mobility
Planning?
FREQUENCY
LOW
HIGH
9
ALEX’POLIS
9
CATANIA
CSEPEL
9
KALISZ
9
LARNACA
9
VALLADOLID
9
VALLETTA
WEST
ATHENS
9
•
ALEX’POLIS
Citizens until recently participated in the decision-making via their election of
representatives in the municipal council each 4 years. In the last two years and in the
frame of strategic planning of municipality, the participation of local society started to
occur more often and in different ways, i.e. through processes of consultation, the
operation of delegates and workgroups, the distribution of questionnaires etc.
•
CATANIA
Citizens’ consultation (in a formal or informal way) is becoming normal and therefore more
and more frequent.
•
CSEPEL
It is impossible to answer in general. There are some types of mobility planning that
generate more frequent communication with the citizens while others may be
characterised by a case-by- case solution.
•
KALISZ
Activity and initiative in citizen participation is on the side of transport’s service users and
vividly dominates over the degree of activity on the side of the organizer and the executor
(carrier) of urban traffic.
•
11
LARNACA
(West Athens)
100
Citizens that are affected by an UMP have the legal right to appeal and object to the
development. Also citizens are invited to open presentations of the development at which
they can express their suggestions and objections. Our experience has shown that citizens’
participation to these open presentations is low.
•
VALLADOLID
Every week a lot of opinions and requests are received about mobility.
In global strategies or important subjects the participation is through associations, they
have a small, albeit important, participation.
•
VALLETTA
Unless a project does not have a significant negative effect on the population, citizens are
usually reluctant to participate and give feedback, hence citizen participation activities may
be relatively low. On the Sliema Transport Strategy citizens were active and vociferous.
A more example recent example of this was the CITUM Survey undertaken by VLC, during
May 2006. The research was originally carried out among 1500 respondents who were
randomly selected from a list of 5000 names from the electoral register. However only a
total of 257 questionnaires were returned and forwarded for checking and validating.
•
WEST ATHENS
Low frequency is proportional to the frequency of UM plans and studies being undertaken.
6.3
LEGAL / INSTITUTIONAL FRAMEWORK [D2]
Is citizen participation deriving from a corresponding legal / institutional framework in
vigour? Here below are brief descriptions regarding the CITUM cities.
•
The level of citizen involvement in urban mobility planning is disproportionate to the
opportunities provided by current legislation.
In Greece there is a legal / institutional framework that governs citizen participation in
urban practices, but this refers generally to urban planning and development and does not
make specific reference to urban transport, traffic or mobility.
On the other hand, authorities very often adopt informal procedures, i.e. not imposed by
law, to inform the citizens and take their attitudes and wishes into account. Such
procedures typically include open presentations of projects or plans at various stages of
preparation, open municipal council sessions, leaflets, ad hoc events etc. In such cases,
there are no formal obligations of the launching authority to record, assess or respond to
the claims and demands of the citizens present at the events abovementioned. The
discussion is transferred to the political interplay that takes place among the various
municipal groups, especially at the opposition. Those groups adopt selectively specific
demands and use them in the context of their political line or activities.
Most UM practices have to be presented to the public before they are approved by the
relevant authorities. The law does not define the format and the procedures of citizen
information at most cases, except pedestrian streets, where the promoting authority has
to present the plans to be approved at a public space for a defined period. Most local
authorities are willing to consult their citizens in UM decisions even beyond the minimum
requirements imposed by the law.
•
CATANIA
101
There is no legal or institutional framework, except for good practices which normally lead
citizens to gather in committees. Trade unions are usually invited to discuss with the
Administration about new initiatives.
•
CSEPEL
There are legal obligations for citizens’ involvement in some cases – such as in case of
modifying the spatial plans, or in case of “mega projects” - while the real intense
cooperation with the civil society is based on individual decisions rather than legal
obligations.
•
KALISZ
It is planned for 2007 to conduct a large scale survey on urban traffic focusing on public
transport.
•
LARNACA
There is not a legal framework in vigour that covers citizen participation in UMP. There is a
practice of the central Government which is also followed by the local authorities to have
an open presentation of all major projects at the early planning stage. Also the project a
specifics are printed in the official Government Newspaper detailing any land to be
acquired from individuals for the project to which these individuals can object and appeal
to the High Court.
•
VALLADOLID
All large-scale projects require a Public Consultation during a fixed period of time, including
mobility projects. All citizens’ requests (via paper, electronic mail or telephone) must be
answered.
•
VALLETTA
The legal framework for public participation is included in the Development Planning Act on
two levels:
- LEVEL I: Under Legal Notice 204 of 2001 (EIA Regulations 2001); Reference is made to
Schedule 1 Category 2 – Infrastructure Project’
- LEVEL II: Policy-driven with regards to TIS parameters. The need for a Traffic Impact
Statement (TIS) is defined through Structure Plan policy TRA2: "The promoters of major
developments will be required to prepare traffic impact statements illustrating the likely
impact of their proposals on the highway network"
The following are the established criteria used when determining whether a development
proposal requires a TIS:
SPECIFIC DEVELOPMENT TYPES: Hotels/tourist accommodation comprising more than 100
beds; Residential development comprising more than 50 units; Commercial office or retail
development comprising more than
1000m2 gross floor area; Sports/entertainment
facilities with a seating capacity of more than 100 seats; Hospitals/clinics comprising more
than 50 beds; Schools/educational facilities comprising more than 5 classrooms;
Warehouse development comprising more than 1000m2 gross floor area; Mineral
extraction and processing projects or related works, or projects involving such works;
Waste disposal and/or recycling projects, or projects involving such works.
GENERAL: Any project with provision for more than 50 car parking spaces; Any project
involving substantial modification to the arterial and/or distributor road network; Any
project which generates a total of more than 100 trips in and out of the site during the
peak hours.
102
Re “Developing Planning Act” (2002) particularly Articles 18 (6), 19(1), 27(2) and 29a (3)
and “Environment Protection Act” particularly Article 10(1).
6.4
ASPECTS AND PROCEDURES [D3]
Which are the main aspects and procedures adopted?
The profiles below present the state of the practice in the CITUM cities.
Open procedures**
Internet voting
Internet chatting
One-way publicity & information
Participation at municipal bodies
9
9
9
9
9
9
9
9
9
9
Other procedures (please
mention)
VLDD
LARN
KALI
CSEP
9
9
9
9
9
9
9
9
WATH
Local representative bodies*
9
9
9
9
VLTA
Local referendums
CATA
ALEX
Q: Regarding the social context of Citizen Participation in Urban Mobility Planning,
how citizens were involved: directly or indirectly? Individually or through various
social groupings?
9
9
9
9
9
9
9
9
9
9
9
***
[*] = e.g. neighbourhood representatives
[**] = e.g. public debates, inquiries etc.
[***] = questionnaires and mailing
Q: How immigrants, repatriates and other non-national residents were dealt with in
Citizen Participation procedures regarding Urban Mobility Planning? Were they ALL
allowed to participate (any distinctions)? Has the format adopted (e.g. languages,
printed material, media coverage,) been suited to their involvement?
ALEX’POLIS: During the past 10 years Greece received thousands of economic immigrants
and repatriates mainly from the countries of Eastern Europe. It is important to point out
that that they are fully integrated in the local society and they are fully accepted by local
inhabitants. They are no exclusions or distinctions between the sensitive social group of
repatriates and local inhabitants in the procedures regarding citizen participation in urban
mobility planning. In the contrary, most of the practices are implemented in their areas,
aiming at improving their quality of life. In these cases their opinion and contribution to
urban mobility planning procedures is crucial. To support this policy, format adoptions
(language, printed material, media coverage, etc) have been made.
103
CATANIA: They are all allowed to participate, but they normally do not. Multilingual
material has never been produced to foster their participation.
CSEPEL: The question on immigrants is not relevant in Hungary as there are very few
households that are not Hungarians in origin (less than 1% of the population).
KALISZ: Demographic and ethnic structure of the population did not require any steps that
would justify specific treatment of immigrants and repatriates in citizen participation.
Kalisz is homogeneous in terms of nationality and religion, although it used to be multicultural and multi-ethnic in the past.
LARNACA: All citizens are allowed to participate in the open presentations of UMP,
including immigrants, repatriates and non-nationals. The presentation and presentation
material is in the Official Languages of the country.
VALLADOLID: The participation of foreigners does not differ from nationals. The language
prevents a greater implication in the participation, but the participation in mobility subjects
is little because they have more important problems (housing, work …). There are not
extra measures to involve foreigners.
VALLETTA: A vast majority of persons accessing Valletta are Maltese nationals, for
shopping and work. Accessibility relating to non-nationals is therefore not an issue and
hence no specific citizen participation for non-nationals was required. However it is to be
noted that patronage of public transport (public buses) by tourists remains high.
WEST ATHENS: No particular concern has been given to the inclusion of immigrants,
repatriates and non-nationals, although their participation is not restricted or inhibited.
6.5
THE ROLE OF INFORMATION AND PUBLICITY
[D4]
The profile below shows the perceived efficiency of the information provided to citizens
during recent participation activities.
Very
Inefficient
Rather
Inefficient
No Effect
Rather
Efficient
9
ALEX’POLIS
9
CATANIA
9
CSEPEL
9
KALISZ
9
LARNACA
9
VALLADOLID
9
VALLETTA
WEST ATHENS
Very Efficient
9
The Positive Side
The good information content and the media used in combination with an adequate and
robust social organisation ensure that the information conveyed is efficient and, hence,
citizens do not ask for more12
12
(Catania, Larnaca, Valletta)
104
The Negative Side
The information provided is usually limited and manipulated by opinion leaders13.
Lack of social organisation allows for the manipulation of the information conveyed
because society cannot exercise efficient control on its accuracy14.
The way that the media and the enterprises manage the information to be conveyed does
not allow citizens to form a clear idea of the practices for which they are called to
participate15.
The perceptions of individual citizens are usually narrow and utilitarian overlooking the
communal welfare; speculation from opinion leaders leads to erroneous perceptions16.
Conflicts among communal and business or political interests deform the participation
processes17.
Excess of information usually leads to negative results18.
6.6
EFFECTS ON THE PLANNING PROCESS [D5]
Which are the effects resulting from the actual citizen participation in the overall urban
mobility planning and implementation process?
Q: To what extent Citizen Participation has contributed to the adoption of Urban
Mobility plans / measures from the citizens in your area?
The profile below shows the opinions of the CITUM cities.
Very Negative
Effect
Rather
Negative
Effect
No Effect
9
9
9
ALEX’POLIS
CATANIA
CSEPEL
KALISZ
Rather
Positive
Effect
9
LARNACA
9
VALLADOLID
VALLETTA
WEST ATHENS
•
ALEX’POLIS
13
(West Athens)
(West Athens)
15
(Csepel, West Athens)
16
(Valladolid, West Athens)
17
(Kalisz)
18
(Valladolid)
14
105
9
9
Very Positive
Effect
In the stage of programming (re HABITAT, Global Grants), the promotion of collaboration
and the collective work of local institutions created the feeling of common responsibility
and participation in the decision-making. The proposals of all citizen associations and
groupings were discussed and they were integrated in the practices wherever feasible.
•
CATANIA
Citizens are definitely more willing to adopt new practices if they have been consulted
before.
•
CSEPEL
The more a plan and the action are
local, the more citizen participation
process can be successful and the
adoption is more favourable. As an
example:
some
dangerous
road
crossings
were
replaced
by
rroundabouts based on the demand of
citizens, mainly local inhabitants. It is
the same for the installation of traffic
lights, where citizens have relatively
strong lobbying force. Basically people
tend to follow the rules that they lay
down personally. Public involvement is
also a good test for the future
adoption of the planned action.
•
KALISZ
Citizen participation has rather little influence on the shape of plans during their
implementation stage. In the opposite, it is worth mentioning the importance of local press
as a popular form of protest. The effectiveness of this type of action makes citizens think
that the opinions concerning transport, conveyed by media, work better than other forms
of participation. Unfortunately, with the increase of this re-active type of social
participation in the shaping of city’s policies – not only transportation policy – their
influence is weakened and weakens the remaining forms of social participation. One of the
most important forms of society’s comments is participation by local district council (within
the City) functioning in all city districts.
•
LARNACA
Most of the citizen participation concerns personal benefits which are adopted if they can
be accommodated without a major effect on the project. However most of the times they
have no effect.
•
VALLADOLID
The opinion of the citizens is considered, but in the great majority of the decisions the
citizens’ opinion is known before they make it known. In certain cases, the pressure of the
public opinion forces a quick implementation.
•
WEST ATHENS
Citizens adopt (or do not) the UM plans regardless of the quality of the CP process.
Adherence is rather low especially when it comes to car restrictive practices.
106
Q: How do you plan to improve the procedures of Citizen Participation in Urban
Mobility planning in the future, if any?
•
ALEX’POLIS
In the near future, mobility planning in Alexandroupolis will have to be accompanied by
d
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n
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•
CATANIA
Since there is no administrative framework for citizens’ participation, there is no specific
plan for its reinforcement either. Nevertheless, the idea of citizens’ participation is now a
consolidated fact for the city administrators and it is therefore envisaged that the effort will
intensify in the near future.
•
CSEPEL
In Hungary a new type of approach is sought for in relation with citizen participation: on
the one hand civil associations have to be more constructive and more informed, not
blocking but facilitating the processes. On the other hand official partners (ministries, local
governments, state or city owned public enterprises) have to be more open for taking
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considerably modify or assess them. This evolution of the relationship among civilians and
officials needs some more years to be bilaterally agreed and taken seriously. The
municipality of Csepel, being competent in planning and carrying out mainly small-scale
mobility practices tends to discover new ways of public relations. Besides the traditional
w
n
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ways of communication – forums, and newspapers – it intends to develop n
neeew
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•
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•
LARNACA
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groups representing the citizens instead of individual citizens. Thus, personal interests are
minimized and social benefits are maximized.
•
VALLADOLID
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Mooob
•
VALLETTA
p
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np
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Learn from previous experiences and use other methods such as ooon
•
WEST ATHENS
n
n--Use of more effective ways to incite higher and more effective participation, such as ooon
s
l
l
o
p
n
o
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s
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n
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p
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n
ne opinion polls.
107
6.7
LEARNING POWER [D6]
Does citizen participation lead to better urban mobility decisions?
The profile below presents the perceptions of the CITUM cities.
Q: How efficient and useful is the actual experience of Citizen Participation in Urban
Mobility planning in your area? Has it led to more sustainable mobility plans /
decisions?
EFFICIENCY - USEFULNESS
LOW
HIGH
9
ALEX’POLIS
9
CATANIA
CSEPEL
9
KALISZ
9
LARNACA
VALLADOLID
9
9
VALLETTA
WEST ATHENS
9
Strategic planning of the Municipality (Habitat Agenda, Global Grants) wouldn’t be
completed without the collaboration between stakeholders [Alex’polis]
The assessment of the efficiency and usefulness of Citizen Participation is controversial: On
one hand, the lack of citizens’ participation may lead to ambiguous decisions. On the other
hand, consultation often leads to dead ends in decision making, particularly when a new
initiative collides with private interests [Catania]
The efficiency and usefulness of urban citizen participation may be completely different in
different types of planning. In some cases participation was EFFICIENT AND USEFUL, e.g. the
night bus service system reorganised in Budapest in 2005 according to the advice of a civil
association (VEKE). In other cases it was EFFICIENT BUT NOT USEFUL, e.g. the construction of
the motorway ring M0 around the city opposed by the largest environmental association,
which stopped the investment without giving better alternatives [Csepel]
Collecting and processing related information is still a problem, but nonetheless the input
from citizens is always valuable, even if its conclusive usefulness is insignificant [Kalisz]
Citizens who actively participate in UMP are mostly interested in their personal benefits
rather that the benefit of the area or the society. In that respect the usefulness of citizen
participation is low [Larnaca]
Citizen participation is not very effective. Despite its importance, the opinion of citizens is
known before they give it. In large scale practices, citizen participation slows down or even
stops implementation. In small scale practices, participation generates extra work to
planners which is deduced from other more important subjects [Valladolid]
Citizen participation on the Valletta Strategy brought about improvements and refinements
on the initial government proposals as well as their wider acceptance. Hence it may now
serve as a best practice example for the future. As part of the development of the TOD
108
policy adopted by the MUDR, an extensive research was undertaken by the Ministry
officials of previous studies undertaken by other stakeholder agencies to establish suitable
benchmarks for an identifiable policy direction. From the stakeholder research it was
identified that there should be a need for more cohesion, networking and an integrated
system for managing urban development and transport projects [Valletta]
It is a common belief that planners and consultants learn a lot from CP whenever it takes
place in a more or less genuine form of expression. This is not the case in West Athens,
where CP is badly organised and deformed [West Athens]
Q: Are there any specific lessons learnt from the experience gained from Citizen
Participation in Urban Mobility Planning (successes or failures)?
*
Most mobility practices raise citizen reactions despite their benefits for the city (e.g.
restriction of illegal parking by widening the pavement in the main roads was rejected
because of car owners’ reactions). A better dissemination of the objectives and the results
foreseen from the implementation of the traffic study among the local population would
probably lead to a more active involvement of the citizens. In any case, the most
determinant factor is political will [Alexandroupolis]
*
1- Public participation is not equal to the participation of elected representatives and
experts. Public consists of those who are closely affected by the practices. 2- Active
participation of residents may be a tool only in local actions. In case of city wide policies
more the proper distribution of information may be applied. 3- Public participation is
present even if no one would think about it, because citizens vote with their legs, i.e. by
adopting or not the planned practices. 4- If the practice envisaged is too complicated, than
step by step implementation is advisable. 5- People are more AGAINST than FOR something.
The usual way of citizens’ participation is protesting [Csepel]
*
1- If citizens take part in the planning of the solution, then they accept other solutions
and ideas connected with the given practice. 2- The participation of citizens in the planning
process is relatively small. 3- Citizens participation does not only incur positive effects, but
it can also annihilate mechanisms and solutions developed earlier. [Kalisz]
'
Citizen participation has limited effect on UMP [Larnaca]
'
Participation often forces the adoption of worse technical solutions [Valladolid]
)
Effective citizen participation requires time and effort, a willingness to listen and
political will [Valletta]
'
Very few, if any, successes have been encountered. Therefore, the main lesson to be
learnt is that there is still a long way to go before CP is carried out in a genuine democratic
manner. Citizens, though, are willing to learn from the experts and the planners [West
Athens]
109
7
7 C
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SU
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S
7.1
THEME A: INTERFACE URBAN MOBILITY &
URBAN PLANNING / DEVELOPMENT
1.
Given the governance structure that prevails in European cities during the past two
decades, urban mobility planning is mainly dealt with by local authorities, although
large scale projects are more often planned and implemented by higher level
authorities, national and regional. However, the extent of the domain left to local
authorities is very large. Therefore, local authorities can be considered as central
players in urban mobility planning and management.
2.
Local authorities should reinforce their administration and their political will so as
to achieve a more integrated planning context which takes into account the
complex and dynamic interaction among urban development and mobility. Even if
national legislation does not provide for this aim, local authorities should attempt
to fill the gap and overcome the barriers within a concertation process involving all
the social and economic players affected by the planning process.
3.
The domains of urban development and urban mobility are closely interrelated and
continuously interactive. Assessing the impact from practices of one domain onto
the other is a consolidated process in most cities, but the modalities with which the
assessment is applied leave a lot of space for subjective arguments, speculation
and arbitrarily. It is therefore advisable to target a genuine integrated planning
approach that encompasses all the interactions between the two domains in
questions as well as with the natural, social and economic environment. A good
example is given by the Transit Orientated Development concept implemented in
Malta.
4.
Benchmarking is a necessary procedure which should be adopted by all local
authorities to allow a more realistic and citizen-friendly planning context. Most
cities do not currently dispose of a benchmarking approach. It is therefore
necessary to go forward to this direction through exchanges of experience and
knowledge with cities that are in the forefront.
5.
The response of most local authorities to estimated negative or adverse effects of
urban practices in either domain is characterised by inertia, lack of cooperation
among competent departments and agencies and, finally, a selfish attitude. It is
usual practice to attempt to justify ex post the rightness of failed practices using
false arguments instead of acknowledging the problem and trying to take
corrective measures. Such an attitude must stop because it leads to the
deterioration of life quality and of the sustainability of both the transport system
and the cities themselves. Openness and willingness to cooperate must be the new
aspects that characterise urban policies at any level and in any domain.
6.
Social pressures are omnipresent in urban and mobility planning. Local authorities
are rather sensitive to those pressures, especially when they stem from
advantaged social players which can influence politics significantly. One of the
louder urban voices is the voice of car owners and users which has led many
authorities to amend or stop mobility practices with a considerable potential for (a)
improvement of the system and (b) sustainability. This has had negative impact on
both the level of service of the urban transport system and the urban environment.
Given that individual travel modes, such as the car and the (heavy) motorcycle,
are one of the stronger economic objects in contemporary cities, local authorities
have, most of the time, to face the intensive market policies adopted by central
governments in favour of the car and fuel market with marginal efforts in the
110
opposite direction. Such a context needs a lot of courage from the part of local
authorities and it is not an easy task to promote mobility practices that harm the
car market and the majority’s habits. Nonetheless, efforts towards more
sustainable mobility practices must intensify and local authorities should consider
long term effects on an equal basis as short term protests and arguments. This is
the only way to ensure a sustainable city of a good quality equipped with an
efficient mobility system, uniformly accessible to all its citizens and visitors.
7.
The Transit Orientated Development (TOD principle) as studied and applied by
PDCU (MUDR) of Malta does not follow the one size fits all situation. It follows a
system of comparative benchmarking and analysis of best practice scenarios based
on the EU 27, Island States and International examples. The Research and
Development for planning policy has supplied a solid platform to build strategically
a way forward with new adapted parameters emanating from TOD practices world
wide.
7.2
THEME B: EVALUATION OF URBAN MOBILITY
PRACTICES
1.
In most cities there is a framework available for robust and thorough evaluation of
urban mobility practices. This framework is derived from two main sources: the
national legislation on environmental protection and the regulations of EU
programmes. A consequence of this fact is that the evaluation of urban mobility
practices is very often conditioned by the contexts of those two “sources”. This
constrains the players of the evaluation process to conform to the “planning
habits” in terms of approach and methodology and, hence, to adhere to the
mainstream and limit their inventiveness and goodwill accordingly. However, the
availability of an evaluation framework given from above can be used as a basis for
more efficient, more democratic and more citizen-friendly approaches to
evaluation.
2.
Authorities must find the political courage to discuss with planners at an equal
basis devoid of short-sighted considerations from both parties. On one hand,
politicians have to take into serious account the findings of planners who perform
the evaluation of urban mobility practices whatever they are and regardless of the
political costs and benefits that they may incur. On the other hand, planners
should get rid of the “good messenger” syndrome and inform the politicians, their
work colleagues and, mostly, the citizens on the real nature and extent of the
impact that urban mobility practices may have. Planners are the only players who
possess knowledge and have the skills to convey this knowledge to all the other
parties. For their part, politicians and citizens have, by default, a more limited
perception of the complexities of mobility and planning which, in addition, is
conditioned by habits and stereotypes. The only means to help them overcome
those barriers is through a sincere and thorough explanation of the impact chain
that all mobility practices incur to the city.
3.
Whatever the stage, evaluation nowadays suffers from a static approach which
limits its scale and frame of reference and hides its dynamic nature. Most
evaluation efforts provide a static image of the practice in question which can be
misleading, because of the limitations of the resources available to planners. It is
however undeniable that all mobility practices evolve in a dynamic and often
unpredictable manner. In reality there are more than one states of equilibrium,
because the chain of impact is perpetual. If the arsenal available to planners is
objectively limited, then planners have to admit these limitations openly and adopt
a flexible approach as to the outcome of evaluation processes, according to the
risks and the constraints present.
4.
The assessment of impact of a single alternative does not evaluate the mobility
practice in question. Actual evaluation (at the ex ante stage) is performed when all
111
feasible alternatives are assessed using the same framework and methods in a
ceteris paribus context.
5.
Evaluation is by definition multicriteria, where financial and economic parameters
are considered as thresholds or constraints and are assessed in parallel with the
other parameters according to each one’s socially defined weight. Transforming
qualitative parameters in monetary terms hides their real meaning and does not
allow them to be assigned correctly to the real groups that they relate to.
6.
There is a group of urban mobility practices that are not subject to evaluation
despite the importance of their impact. Such practices are usually local and “soft”,
i.e. not involving infrastructure and/or equipment. This results from the
mainstream perception inherited from practices co-funded by the EU. Although
such practices are often promoted by European research programmes in which
evaluation is a mandatory activity, most cities are not familiar with those
programmes and, thus, they tend to underestimate the need to evaluate practices
other than those abovementioned considering them as minor.
7.
Planners should overcome the usual shortcomings of the evaluation process by (a)
providing accurate estimates of the forecasted parameters, (b) trying to avoid
political or social pressures that deform the original outcome, (c) co-operating with
the departments in charge of relative fields, (d) asking for the time really
necessary to perform their tasks accurately and thoroughly, and (e) looking for the
maximum objectivity through group work which can circumvent the obvious
problem of subjectivity.
8.
The information used in evaluation is in most of the cases accurate at first sight.
There is a need, however, to insert additional indicators on top of the traditional
ones so that the real multicriteria context of the impact is identified and assessed.
Among those indicators it is advisable to include (a) user and citizen preferences
and attitudes so as to embrace the aspect of social acceptance, a major factor for
a successful implementation (b) the observations and opinions of the traffic police
due to their long and systematic exposure to the road environment, under
condition of previous education and familiarisation with the subject of evaluation.
9.
Social acceptance is a major prerequisite for a successful implementation for most
urban mobility practices. Citizens shall adopt and/or support a practice if they are
accurately and comprehensively informed. However, breaking the habit of
individualised travel is not easy. An extra effort should be undertaken to inform the
car captives on the social benefits of sustainable mobility so that they apprehend
the dialectics between e.g. short-term comfort and long-term health benefits and
adopt a more civic behaviour.
10. Ex ante evaluation is a more or less consolidated process in most cities, while ex
post evaluation is limited to (i) an economic and physical appraisal, and (ii) only
large scale physical projects.
11. The importance of ex post evaluation, especially if it is carried out longitudinally
instead of the current static approach, must be apprehended by both politicians
and planners. Learning how the city responds and evolves following an urban
mobility practice is a precious lesson for a better quality in planning.
12. To perform a multicriteria ex post evaluation of a practice it is necessary to dispose
of a monitoring mechanism which will collect and assess the appropriate
information at the given moments and the right places. Despite its high
requirements in terms of human, financial and material resources, a monitoring
mechanism is the most precious tool at the hands of politicians and planners.
Moreover, such a mechanism shall contribute to a decrease in planning costs in the
medium term, because it will allow for economies of scale in data collection and
processing. Finally, whatever the political risks of such a mechanism may be,
politicians should learn how to admit planning mistakes without fear.
112
13. The limited experience of cities in genuine ex post evaluation does not allow for
definite conclusions as to the actual accuracy of current forecasting. However, it is
a common belief of the authors that forecasting methods and tools shall be
drastically improved if the availability of ex post monitoring allows for checking
how the performance of urban mobility practices matches the forecasted values.
7.3
THEME C: PROMOTION OF
URBAN MOBILITY SOLUTIONS
ALTERNATIVE
1.
Alternative Urban Mobility Solutions (AUMS) are becoming more and more
important in contemporary planning as a result of limitation of resources, but
mainly due to their higher sustainability potential.
2.
AUMS are now part of the strategic mobility / transport plans in most cities. This is
an encouraging perspective, as until now they were envisaged as marginal ad hoc
efforts.
3.
The greatest opponent of AUMS is individualised travel. Implementing an AUMS
requires that individual modes are restricted; otherwise the beneficial effects are
limited.
4.
Most AUM-related practices refer to walking, “soft” policies and cycling in order of
quantities. The diffusion of IT technologies into the cities will allow for more
inventive and drastic practices.
5.
AUMS provide more opportunities for handicapped users without excessive costs.
6.
The use of renewable energy sources in the transport system is still marginal. Once
the problems of cost are overcome, it is hoped that their use shall expand.
7.
The potential of AUMS as an alternative to individualised travel is limited because
of the proportionally limited scale of implementation. Once expanded in space and
intensity, AUMS could generate important shifts from cars and motorcycles.
However, is advisable to combine AUMS with restrictive policies and measures so
as to break current habits pro-actively.
8.
Thanks to their reduced energy consumption and emissions, AUMS can contribute
significantly to a better urban environment and a better distributed (in both social
and geographic terms) human accessibility. Relative experience in cities is
encouraging.
9.
Main factors for the success of AUMS are, in order of preference:
−
An integrated planning approach;
−
the coordination of competent authorities;
−
the social benefits of AUMS;
−
adequate information and publicity;
−
A sound process of citizen participation.
The above classification is validated by both the successes and the failures of
recent planning efforts in the cities.
10. There is a divergence between the actual and the stated preferences of citizens
regarding AUMS. While the majority is generally favourable to the AUMS, there is
not a corresponding level of adoption, however based on a limited experience. This
113
is explained by the duality in human nature of contemporary citizens: individual
benefit is separated from social benefit if it incurs changes of habits or temporary
discomfort, while individuals tend to think that change may occur even in their
absence.
11. Citizens would be incited to a higher level of adoption of AUMS given the following
conditions, in order of importance:
−
Adequate information and publicity;
−
more effective citizen participation;
−
high quality of studies and plans;
−
better coordination among authorities;
−
large implementation scale,
And so forth.
7.4
THEME D: CITIZEN PARTICIPATION IN
URBAN MOBILITY PLANNING & MANAGEMENT
1.
In a democratic country, where Urban Mobility projects are carried out for the sake
of citizens, their participation in the planning process is essential if it is carried out
in a well thought and systematic way and not as reaction to a de facto situation.
2.
Citizen Participation in Urban Mobility is conforming to the wider planning context
and the dominant conception of governance and democracy. Nonetheless, citizens
are in general more motivated in case of mobility issues than in other urban
affairs, because of the importance that they are accustomed to give to their
individual transport modes, which is further accentuated by the media. Despite
that, the voices of citizens in favour of more sustainable and equitable mobility
become stronger in the last few years, especially within a social context strongly
oriented towards environmental protection.
3.
Citizen participation is a synonym of democracy. Maturity in democracy incurs a
more consolidated process for citizen participation. This is clearly shown in cities
where democracy is a recent acquis: citizens are called to participate albeit in a
roughly organised and ad hoc manner.
4.
The scale and intensity of citizen participation in urban mobility planning is a
function of the scale of practices, yet the tendency is for re-inforcement and
consolidation taking into account the growing importance of mobility in urban
reality once the basic everyday needs (sanitation, health, education etc.) has been
satisfied.
5.
Citizens responses to urban mobility practices is rather re-active than pro-active.
This is due to human nature.
6.
The level of citizen involvement is usually disproportionate to the opportunities
provided by legislation and institutions, which are now commonplace in all
European cities and regions. People tend to get involved at their will regarding the
means and the timing. To incite a more active involvement, civic education is
absolutely required.
7.
Citizen participation is getting more institutionalised than in the past. Social
organisation makes it easier to set up more efficient participation processes.
114
8.
Immigrants and repatriates are treated equally at the processes, although
authorities do not adopt a special facilitation policy.
9.
An important shortcoming is the lack of accurate information which is often
accompanied by speculation. Urban mobility is a complex subject full of technical
details that citizens cannot understand and/or apprehend if not presented in a
simple manner. Planners have the duty to find a more efficient language for
communication.
10. The management of information is critical for successful citizen participation.
Excess of information may lead to counter effects.
11. Citizen participation has in general led to a better planning process and an easier
implementation of urban mobility practices. There are exceptions, however, where
excessive sensitivity to public demands led to stagnation or cancelling of planned
practices.
12. Planners should learn to live with the excesses of citizen participation. Even if some
practices are slowing down due to the needs of the participation process, they by
no means should be guided to the negative side for the sake of planning efficiency.
13. Effective citizen participation requires time, effort, a capacity and a strong political
will to listen.
7.5
A FINAL OVERVIEW
Urban Mobility planning and management is gaining a continuously growing importance in
European cities of today. Citizens tend to consider their travel as a first-order need once
their more basic problems (sanitation, health, education) are progressively resolved.
Consequently authorities have to dedicate more and more effort to tackle mobility
problems in any possible way, either by providing adequate infrastructure or, more often,
by adopting policies for a more efficient management of the system.
As concerns for environmental protection, high life quality, social cohesion and saving of
resources are continuously taking over more traditional values such as freedom and
multitude of choices, urban mobility planning and management is oriented towards a
higher sustainability, despite the ever-present challenge of individualised mobility
supported and promoted by important market forces.
As a result, planners are confronted in their everyday tasks with a more complex interplay
between contrasting interests and political guidelines, in which mass media interfere with
ambiguous attitudes and means, increasing thus the complexity of the context.
The CITUM consortium has attempted to provide a targeted overview of some salient
aspects of urban mobility based on the collective experience and exchange of views and
knowledge among its partners, which comprise among them planners of many specialities
(architects, planners, engineers, economists and social scientists), politicians from local
authorities and citizens from eight cities of different cultures, sizes, development stages
and socio-economic contexts. Such an endeavour does not pretend to represent the
European reality, albeit it is a compendium of the state of the practice with which many
readers may feel familiar.
The themes selected for this compendium are the most critical and controversial issues
related to urban mobility. The CITUM consortium has opted to investigate (a) how
integrated is urban planning with respect to mobility, (b) how urban mobility practices are
evaluated, (c) if and how alternative urban mobility solutions are promoted and (d) how
citizens participate in the planning process.
The findings from this investigation reveal more gaps and barriers than provide
recommendations and good practices. This results from the benchmarking adopted by the
115
consortium which stands higher than the usual practices, because the CITUM workteam
share a strong common position, that is, a will to make planning better, more sustainable
and, mainly, more citizen-friendly.
To summarise these findings:
−
Urban mobility planning needs to become more integrated within the wider urban
planning process in order to capture the dynamic interplay among mobility and
development of the city. To this aim more resources have to be allocated, a better
professional culture is sought for, a better coordination and understanding among
planning agencies must be established and, last but not least, a stronger political
will should be acquired to complement the current legislation.
−
Evaluation of urban mobility practices needs to rely more on thorough and
comprehensive analyses of their impact on all urban functions and systems so that
it can become a genuine tool for informing both politicians and citizens and, thus,
achieve a higher level of democratic operation. This requires (a) a more integrated
approach in urban planning, (b) a multi-criteria methodology that goes beyond the
current uni-dimensional economy-oriented concerns, (c) more resources to be
allocated for ex post assessments, (d) more efforts dedicated to validate ex ante
estimates with ex post findings and (e) a serious attitude from opinion makers to
minimise speculation and rely more on scientific information.
−
Alternative solutions are gaining importance in urban mobility practices because of
the opportunities provided by new technologies and the shortage of resources for
heavy infrastructure, but their potential for more sustainable mobility is limited if it
is not combined with car-restrictive practices that are necessary to counter-balance
the current captivity of a large share of users, equally old and new.
−
Citizen participation in the process of urban monility planning is taking up a
consolidated position, due to the growing social concerns for better and higher
mobility. Nonetheless, its undoubted importance should be supported by the
provision of valid and complete information drawn from comprehensive studies and
devoid from opportunity or interest-driven biases introduced by specific forces
through opinion makers.
The CITUM consortium is hopeful that, given the recent evolution in the 27 EU
countries, the perspectives are clearly optimistic despite the obstacles and drawbacks
encounetered in everyday practice, because of the ever-growing effort for collaboration
and open dialogue supported by the EU policy on the matter.
116
Appendix
LIST OF CONTRIBUTORS
Spyridon KANOURAS (researcher-DIOPSIS Ltd, Alexandroupolis)
Mr. Spyridon KANOURAS has extensive experience on business supporting
issues. He has graduated from the Physics Department of the Aristotelian
University of Thessaloniki and he had been working in Food Industry, being
entrusted with project managing.
Being the founder and the major shareholder of Diopsis Consulting Ltd since 1995,
Mr. Kanouras is specialized on conducting research and studies for local and
regional development such as surveys and analyses, feasibility studies, operational and development
plans, financial aid proposals for national or EU Programs and on providing scientific and technical
support to both the private and public sector for the planning and the implementation of operational
and development plans financed by national, European or other institutions.
Ioannis
PAPANTONIOU
(Engineer
in
the
Technical
Services
Department of the Municipality of Alexandroupolis)
Mr. Ioannis PAPANTONIOU has a degree in Topography and a degree in Civil
Engineering with specialization on transport engineering. Throughout his career
he has followed various trainings focusing on local authorities, regional
development, local administration, computing administration, renewable sources
of energy, promotion of agrotourism, quality and safety of the working
environment. During the period 1991-2004 he was been the head of the
Technical Services Department of the Municipality of Tichero, while since 2004 he
is been working at the Municipality of Alexandroupolis.
He has substantial experience in planning and implementing national and European programmes and
initiatives, been financed either by the Sectoral or Regional Operational Programmes or by other
national (EAPTA I & II, EPTA, THISEAS, ETERPS) or directly by the European Commission
(L.E.A.D.E.R. I , II & PLUS etc.).
Stergios PRALAKIDIS (researcher-DIOPSIS Ltd, Alexandroupolis)
Mr. Stergios PRALAKIDIS has a degree in Planning and Regional Development
Engineering, a master in Environmental Policy and Management (MSc) as well as a
professional
experience
of
6
years
in the technical support of Operational Programs and the analysis of policy and
planning of integrated interventions in the areas of Regional Development. Since
2002, he has been working as a constant co-operator of DIOPSIS Consulting Ltd
specialized in surveys and studies, technical support of local and regional authorities
and project management in the frame of National and EU programmes. He is a
member of International Society of City and Regional Planners (ISoCaRP).
Athanasios
KARANIKOLAS
(urban
planner,
AN.ET.A.
A.E.,
Alexandroupolis)
Mr. Athanasios KARANIKOLAS has graduated from the University of Thessaly as an
engineer of urban planning & regional development. From September of 2005 he is
working at «AN.ET.A.
A.E.», the development company of the city of
Alexandroupolis. He has experience in subjects of regional development and in
environmental engineering.
Vasiliki ΖILIASKOPOULOU (environmental engineer, AN.ET.A. A.E.,
Alexandroupolis)
Mrs. Vasiliki ZILIASKOPOULOU has graduated from the University of Thrace as an
environmental engineer. From January of 2004 she is working at «AN.ET.A. A.E.»,
the development company of the city of Alexandroupolis. She has experience in
subjects of regional development and in environmental engineering.
Antonio CARNAZZA (economist, EU Affairs specialist)
EU Affairs Consultant, Municipality of Catania
e-mail: [email protected]
Antonio has 2 Masters’ degrees in European Affairs and Public Administration
Finances Management. He is a freelance expert in European Affairs. He has a 10year professional experience in the domain of his specialization, mainly working for
local and regional authorities in Sicilia and beyond. He is highly specialized in EU
collaborative projects.
Dr Salvatore ZINNA
Director EU Policies Department, Municipality of Catania
Erika KIRICSINÉ KERTÉSZ (landscape architect, urban planner)
Municipality of Budapest-Csepel, Hungary
H-1211 Budapest, Szent Imre tér 10.
Phone: +36 1 427-6143
Fax:
+36 1 427-6388
E-mail: [email protected]
Erika Kiricsiné Kertész works as a landscape architect in the field of city
development for the Municipality of Budapest-Csepel, 21st District of Budapest. In
the scope of urban development her work covers city rehabilitation and urban mobility. Her primary
assignment involves designing green belt areas of the 21st district and harmonizing it with other fields
of city development. She has participated in elaborating the strategic plan of the 21 District and
preparing several EU-funded and national proposals.
She is currently participating in EU-funded community innitiative programmes such as URBACT CIT-UM, Hous-ES Networks, and support for cities programme.
Attila KOVÁCS (European expert)
H-1211 Budapest, Szent Imre tér 10.
Phone: +36 1 427-6244
Fax:
+36 1 427-6389
Attila Kovács currently works as an advisor on European Union Affairs for the
Municipality of Budapest-Csepel, 21st District of Budapest. His task involves project coordination,
project management as well as coordinating international project relations.
At the Municipality he has been involved in different projects in the field of infrastructure
development, tourism, human resource development, and energy save on public education buildings.
His activity embraces preparation, implementation and monitoring of Structural Funds related
projects.
Currently he supervises international coordination and finance in two URBACT community innitiative
programmes, CIT-U-M and HOUS-ES Networks.
Dr. Tibor POLINSZKY (Chief architect of Budapest-Csepel Municipality)
H – 1211 Budapest, Szent Imre tér 10.
Phone.: + 36 1 427-6146
Fax:
+ 36 1 427-61388
[email protected]
Tibor Polinszky is an architect with extensive experiences in the field of building
and town planning. After decades of architectural planning he started to deal with town planning
issues, that activity lead to the position of the chief architect in District XXII of Budapest and from
2003, the chief architect of Budapest-Csepel (District XXI).
Besides his town planning activities he is strongly involved in projects related to the problems of
disabled. He is an expert of the working group “Rehabilitation International ICTA”, he is also one of
the authors of the hand book on “European Concept of Access”. Currently he is the leader of the local
team of Urbact projects in Csepel, like CITUM and Houses.
András EKÉS (researcher, landscape architect, Csepel)
Metropolitan Research Institute, Hungary
H – 1093 Budapest, Lónyay utca 34.
Phone.: + 36 1 217-9041
Fax: + 36 1 216-3001
He has been involved in different projects on the field of strategic development and programming for
the Municipality of Budapest and has evaluated the capital's potential of obtaining resources from the
Structural and Cohesion Funds of the European Union. He has been working as an advisor to the
capital city municipality's project development procedures concerning the EU Structural and Cohesion
Funds, mainly on urban development and transport. He has contributed to the preparation of the
medium-term development programme of the capital in 2005-2007 and to local development
programmes for some of the district municipalities of Budapest. He contributed to the second
hungarian case study of the Interact urban management research programme financed by the Fifth
Framework Programme of the EU. András Ekés was an advisor to the Municipality of Csepel in the
CITUM project of the Urbact.
Éva GERŐHÁZI (researcher, economist, Csepel)
Metropolitan Research Institute, Hungary
H – 1093 Budapest, Lónyay utca 34.
Phone.: + 36 1 217-9041
Fax: + 36 1 216-3001
Éva Gerőházi is an economist with special qualification on EU policies. She has been strongly involved
in research projects related to urban development with regards to rehabilitation, suburbanization,
strategic development.
She has been working as an advisor to facilitate potential EU projects in the Municipality of Budapest.
She has contributed to the preparation of the medium-term development programme of the capital in
2005-2007. She also took part in an EU framework programme, dealing with the comparative analysis
of housing estate rehabilitation (RESTATE). Éva Gerőházi was an advisor to the Municipality of Csepel
in the CITUM project of URBACT.
Daria KOZANOWSKA (economist)
Municipality of Kalisz
Head of Transport Department, experienced also in the field of banking. She works for local
government and she is responsible for issues concerning improvement of quality of public transport
for citizens of Kalisz. She takes part in designing strategy for transport development in Kalisz.
Agnieszka MORAWSKA-KELER (economist)
European Funds Manager, highly experienced in the field of European issues and
information, as well as in cooperation with NGOs and European cooperation.
Piotr LUDWICZAK (communication expert)
Mayor’s Chancellery, City Marketing Office. He is a specialist in communication and
city marketing, who has a lot of experience in international contacts, particularly in
a cooperation with partner cities.
Christiana KOUZARI (environmetal engineer)
Municipality of Larnaca
Head of the Environment Observatory of Larnaca.
Christiana has an extensive experience in European collaborative projects. She is
the local expert of the city of Larnaca in CITUM
Lefteris EMBEDOKLIS (urban planner - economist)
Municipal Secretary of Larnaca.
Lefteris is one of the CITUM founders. He has been in charge of all urban planning
and operations in the city of Larnaca for the past decade.
Dimitris GEORGIOU (software engineer)
Dimitris has been involved in a number of EU projects since his arrival at the
Municipality of Lrnaca four years ago.
Andreas KARAKATSANIS (civil engineer)
Municipal Enginer of Larnaca.
Andreas, being the chief engineer of the municipality, leads the CITUM workteam for Larnaca. As from
his long professional experience and skills, He is one of the animators of the Greek-speaking team
within CITUM.
Ignacio SÁNCHEZ VÁZQUEZ (Superior traffic technician at the City
Council of Valladolid)
Born in 1976. I am an Industrial Engineer (Specialty Industrial Organization), by
the Superior Technical School of Industrial Engineers of the University of Valladolid.
I have completed my formation in aspects related to the traffic in diverse courses
and seminaries on urban traffic and security in cities like Madrid, Seville or
Barcelona (“Spanish congress about Intelligent transport systems (ITS)”, “The
citizens and the management of mobility”, “Forum about de road security”,
“Engineering and urban traffic”, “Reduction of Emissions in the Transport”).
My professional activities relative to mobility and transport are currently at the department of urban
mobility of the City Council of Valladolid. Nowadays I am in charge of the analysis, study and
elaboration of projects, and studies on traffic organisation, regulation and control by means of all
types of signalling (fixed/variable, independent/centralized) in the municipal public roads;
dissemination of technical information in traffic regulation; coordination of modifications of road
networks and areas of parking, and final validation of projects of new infrastructure works, to the
extent that they affect the fluidity and security of the mobility of pedestrians and vehicles. I have also
developed other special Traffic Engineering projects such as “Loading/unloading of goods”,
“Improvement of the mobility of handicapped” and “The city without my car!”.
Henar PÉREZ POZA (Coordinator of European Projects, Department of
Budgetary and Financial Management at the City Council of Valladolid
Lawyer in Economic and Enterprise Sciences. Professor of the Ministry of Public
Administrations, courses on European projects for Spanish civil employees.
European projects developed:
•
•
•
•
•
•
•
UPP (1994-1997). Scientific Reseach and Restoration of the Artistic Heritage
SAVE II (1994-2000) Creation of the Municipal Agency of energy of Valladolid.
IST 2000. E-MUNIS Project: Electronic Municipal Information Services.
URBAN I (1996-2001) Integral project in the Quarters España-San Pedro Regalado of Valladolid.
We belong to Net #8 of URB-AL Programme: “Urban Mobility”. In this network we are partners of
the Common project “CULTURA” (2003-2005): the desing of a new mobility culturethrough
mobility management, awareses measures and campaigns incluiding information and aducation.
In the URB-ALProgramme, Valladolid City Council belongs as well to the following networks:
9 Network #4: “The city as a promoter of economic development”.
9 Network #10: “Fight against urban poverty”.
9 Network #12: “Women promotion in Municipal decision”.
9 Network #13: “The City and Information Society”.
Valladolid city Council has developed as well several projects in the Community Iniciative
EMPLOYMENT (in its differents chapters) and in the Community ADAPT; it has developed and it is
developing projects financed jointly by ERDF, ESF, Cohesion Fund, LEONARDO DA VINCI, EQUAL,
etc.
Jose’ ABELA (EU & International Affairs Officer, Valletta Local Council)
Jose’ Abela was involved at the National Authority for Transport (ADT) where he was engaged by the
Licensing and Testing Directorate. For the last years he was first detailed to the Department of Local
Government as a public officer. Through the DLG Jose’ joined the Valletta Local Council where he
worked in the development of the EU and International desk. In the past two years he was involved
heavily in the management of international affairs, the organization and launching of public and social
activities in the Valletta City. During the past year he developed event schedules especially for the
Chinese Spring Festival, the inauguration of Hastings Gardens and the Commemoration of 50 Years
from the Foundation of Europe. He was also engaged in the development, compilation and
administration of EU programmes namely; URBACT (CITUM, SURCH, Support for Cities), Interreg IIIc
(ARCHWAY), CIVITAS and UNESCO Endangered List inscription. Jose has represented the Council in
meetings abroad and led delegations to workshops through EU programmes.
Dr. Malcolm BORG (Team Manager – Research, Planning and Policy,
PCDU-Projects Coordination and Development Unit, MUDR-Ministry for
Urban Development and Roads of Malta)
Dr Malcolm Borg is by profession a planner. He was involved in the compilation
of the urban conservation topic paper as part of the Structure Plan review at the
Malta Environment and planning Authority. In the Heritage and Cultural Ministry
he developed a Strategy for the sector and organised the first local National
forum in 2003. He has been working previously at Ministerial level for the past
four years specifically on the launching, development and monitoring of
regeneration projects and the development of policy related to regeneration and
transit-orientated development. Malcolm Borg has also been heavily involved in
the past ten years on EU funded projects as an expert and consultant for
INTERREG, MEDA, URBACT and MEDOCC, UDG and ASC programmes.
Malcolm Borg has been involved in regeneration, rehabilitation and heritage management for the past
fifteen years as a Local Councillor (Santa Lucia) and a journalist. He has also served as Secretary to
ICOMOS (Malta) for three consecutive years and is currently an ICOM member. He has completed
tertiary education at the University of Malta, La Sapienza in Rome and the Istituto Technico in Turin.
He specialised further reading a doctorate in urban development at Leeds University UK.
Malcolm Borg has published several papers on regeneration, urban history and heritage and two books
on British Colonial Architecture and Urban History. Currently Malcolm Borg is conducting post-Doctoral
research on Urban Design and Regeneration.
Thérèse CIANTAR (Assistant Manager - Planning and Research Unit,
Transport Strategy Directorate, ADT – Malta Transport Authority)
Thérèse Ciantar completed her education at the University of Malta, reading a
Bachelor of Arts degree in Geography, graduating with Honours in 2002. In
2006 she obtained a Masters Degree in the Geography of Cities, also from the
University of Malta. After completing her first degree in 2002 she started
working with the local planning authority, Malta Environment and Planning
Authority. Later, in 2004 she joined the Malta Transport Authority (ADT).
Thérèse joined the ADT as a GIS (Geographical Information Systems)
Technician. The main duty involved the co-ordination of Transport GIS tasks for
the ADT which included collecting information and data from all the directorates
within the Authority, digitising and data input in order to visualise spatial information.
As an Assistant Manager, she currently reports directly to the manager of the Planning and Research
Unit where she is also responsible for the gathering and provision of statistical data for both local and
foreign entities and involvement in National projects such as the Valletta Transport Strategy, which
includes the Park and Ride Project, the Controlled Vehicular Access Project and the Extension to the
Valletta Pedestrian Zone. Other tasks also include the co-ordination and analysis of surveys for
internal research that is required.
Thérèse Ciantar has represented Malta at a European level through her participation in the recent EU
Co-financed projects providing technical advice and has attended a number of international based
workshops in the following projects: CIT-U-M (URBACT 1) and PAGUS (INTERREG IIIC – South Zone).
John EBEJER BE&A (Hons), MA (Planning), A&CE (Technical Expert,
Valletta Local Council)
Mr. John Ebejer works in private practice as an architect and urban planning
consultant. Mr. Ebejer qualified as an architect and civil engineer at the University
of Malta in 1987. He read a Masters Degree in town and regional planning at the
University of Sheffield, completing his studies in 1992.
Up to 1998, he worked for the Planning Authority in Malta. He was involved in the
preparation of the Structure Plan for the Maltese Islands and handled numerous surveys related to the
transport studies for the Structure Plan as well as local plans for various localities in Malta. From 2000
to 2004 he was a full time consultant with the Malta Tourism Authority handling projects aimed at
improving tourism product.
From November 2004 he was policy advisor to the Ministry for Rural Affairs and the Environment. He
formed part of Maltese delegations for meetings of EU ministers and director-generals on territorial
cohesion and urban policy. He was Secretary of the Maltese Chamber of Architects and is currently
Secretary to Valletta Alive Foundation, an NGO which lobbies and takes initiatives in favour of the
Valletta. Since September 2006, he works as an architect and urban planning consultant in private
practice.
Mr. Ebejer is the technical expert on CITUM - URBACT project dealing with urban mobility and was
responsible for the analysis of the survey results on accessibility to Valletta.
Rafael ORSINI (Project Coordinator – Research, Planning and Policy,
PCDU-Projects Coordination and Development Unit, MUDR-Ministry for
Urban Development and Roads of Malta)
Rafael Orsini completed his education at the London Metropolitan University,
United Kingdom, studying for Business and Finance with a focus on rail transport
and privatisation. During his engagement with the British public sector, he also
has written and published three reports on benchmarking best practices policy
development within Government. In 2004, he returned to Malta and was engaged
at Ministry of the Youth and Arts, and subsequently moving to the Ministry of Urban development and
Roads, following a Government reshuffle. Today he assists in the co-ordination of the major capital
projects in the islands. In addition to this function, he has been working on researching and
developing with the PCDU Team Manager in formulating new policy direction ideas for the PCDU Unit.
Since his engagement with the PCDU and the MUDR,
Rafael Orsini has produced a number of research papers, which focus on the analysis and
interpretations of EU, International and Maltese law/policy on various aspects of transportation.
Rafael Orsini has represented Malta at a European level through his participation in the recent EU Cofinanced projects providing technical advice and guidance and has attended a number of international
based workshops in the following projects: CIT-U-M (URBACT 1), PAGUS (INTERREG IIIC – South
Zone) and CYRONMED (INTERREG IIIB – ARCHIMED) collaborating with European partners and
exchanging policy framework models of operational best practices in transit and urban planning.
Georgios BOURITIS (head of office for European Programs & International
Cooperation)
Giorgos BOURITIS has a degree in Sociology from the Panteion University of
Political & Social Sciences. He gained his professional experience by working for
many Organizations, such as: The Hellenic Organization of Local Development and
Authorities (“NOW” Program-Equality of Opportunity in Labour market for women),
Municipality of Aspropyrgos (INTEGRA / PREPATRE Repatriated greek population from Pondos) and
since 1995 is working for The Association for the Development of West Athens (ASDA) and is
activating in programs focusing on social exclusion groups (women, repatriated greek population,
immigrants etc.). Since 2001, is person in charge for the implementation of European actions and the
attendance of Proposals in the field of Operational Programs of the Third Community Support
Framework (Prefecture of Attiki).
He has active participation to the following thematic projects: URBACT (CIT-U-M, Eco fin net, Udiex,
Udiex Alep, Phyre, Citiz@move), INTERREG III B CADSES C4C-ecological cities, LAP’s-RAP’s
VP/2004/004.
Maria TSAKONA (member of the office for European Programs & International Cooperation)
Maria TSAKONA has a degree in Biology from the University of Athens. Since 1997, is working for The
Association for the Development of West Athens (ASDA) and has active participation in several
European Programs (UPP SWANS 1997-2000, URBACT CITUM Project 2006-2007 etc.). Moreover, she
participated for the submission of many program proposals related to environment as well as
sustainable development. She worked in several administrative positions within ASDA.
Since February, she is a lovely twin boys’ mother.
Moskos DIAMANTOPOULOS (Architect – Ingenieur, Project Manager
of CITUM, West Athens)
Moskos P. Diamantopoulos is the head of the EU Department of ASDA, the
Association for the Development of West Athens.
He has a DEA in urban planning. He has been one of the first experts to work
for ASDA since its inception in 1985. He has a long experience in EU projects. A
special mention is made of the Urban Pilot Project SWANS (Sustainable West
Athens Novelty Scheme) which he conceived and directed up to its successful implementation in 2001.
Kostas N PETRAKIS (Transport planner, CITUM Thematic Expert.
Coordinator-Editor of this document)
Kostas N Petrakis is a transport planner and an urban planner (DEA in
Geography) with a 32-year profesional experience. He worls as a freelance
consultant and, in parallel, is the co-owner of the TASSIS Ltd consulting firm,
based in Athens, Greece.
He has spent 13 years as a junior, then senior, planner at the Hellenic Ministry
of Physical Planning and the Environment as well as at the Athens Planning Organisation, from where
he resigned in 1992 to shift to the private sector. He is almost exclusively focused on transport
planning and management, equally at local and national projects as well as at European-level
assignments and collaborative projects.
His professional record comprises more than 100 studies (in Greece, Cyprus, Italy and Austria) and 26
European projects and expert assignments.
He is the Thematic Expert of the CITUM project, appointed by the URBACT Secretariat in coordination
with ASDA, the Lead Partner. In this title he planned, designed and coordinated the production of the
present document.