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ROADMAP TOWARDS THE WHITE PAPER GOAL ON URBAN MOBILITY

URBAN

TRANSPORT

ROADMAP

This project is

co-funded by

the European Union

ROADMAP towards goal 1 of the White Paper on Transport:

»Halve the use of ‘conventionally-fuelled’ cars in urban transport by 2030;

phase them out in cities by 2050; achieve essentially CO

-free city logistics in

major urban centres by 2030.«

The research leading to these results has received funding from the European Union's Seventh Framework Programme [FP7/2007-2013] under grant agreement n° MOVE/FP7/321565/TRANSFORUM.

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The TRANSFORuM consortium:

The TRANSFORuM Project was coordinated by

www.transforum-project.eu

Suggested citation: Gudmundsson, H.; Schippl, J.; Leiren, M.; Brand, R.; Sørensen, C. H.; Anderton, K.; Reichenbach,

M. (2014) TRANSFORuM Roadmap Urban Transport. Cologne / Köln: Rupprecht Consult.

Layout by alma grafica. Nicole Sillner. Ansbach, Germany. www.almagrafica.de

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THE CONVERSATION DOES

NOT

STOP

ON 8 DECEMBER 2014!

The comments we receive at the conference on 8 December 2014 will still be considered

in the condensed version of the TRANSFORuM Roadmaps and for the Strategic Outlook

document. We will also compile the essence of the Brussels discussions on our project

website.

The conversation about the revision of the White Paper and the best ways to im-

plement its goals will also continue on the TRANSFORuM website, where we pro-

vide an online forum for all your thoughts, comments, criticisms and suggestions.

Keep the discussion alive.

www.transforum-project.eu

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GENERAL INFORMATION

The present document is the Roadmap 2.0 on Urban Transport of the FP7 project TRANSFORuM. This roadmap

is one element of the formal Deliverable 6.2 “Consolidated roadmaps and recommendations to reach selected

EC 2011 WP goals”.

More information about the project can be found at

www.transforum-project.eu

Project details

Project title

TRANSFORuM - Transforming European Transport through an

Active Actors Forum

MOVE/FP7/321565/TRANSFORUM

Grant Agreement No.

Project Start Date

Duration

01 February 2013

24 months

Document details

Deliverable no.

D 6.2 “Consolidated roadmaps and recommendations to reach

selected EC 2011 WP goals” (this document together with three

other thematic roadmaps and recommendations on joint actions)

Public

WP6 “Implementation roadmaps, concrete recommendations and

a detailed strategic outlook"

Henrik Gudmundsson (Technical University of Denmark)

Jens Schippl (Karlsruhe Institute of Technology)

Merethe Dotterud Leiren (Institute of Transport Economics, Oslo)

Ralf Brand (Rupprecht Consult, Cologne)

Claus Hedegaard Sørensen (Technical University of Denmark)

Karen Anderton (University of Oxford)

Max Reichenbach (Karlsruhe Institute of Technology)

Dissemination level

Work Package

Author(s)

Status

Publcation date

Final

January 2015

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TABLE OF CONTENT

Information about the TRANSFORuM project

The White Paper goal on Urban Mobility

2.1 The “spirit” of the White Paper goal on urban mobility

2.2 Embracing the goal

2.3 Stakeholders’ perspectives of the goal

2.4 TRANSFORuM’s interpretations of the goal

Conditions for change

3.1 Mapping the current situation

3.2 Stakeholder groups

3.3 Key trends

3.4 Barriers for change

Building blocks for change

4.1 Overall perspective

4.2

Strategic building blocks explored

4.3 Technological substitution of conventional passenger cars and fuels

4.4 Reduced use of private passenger cars for transport in cities

4.5 Increased utilisation of low carbon city logistics technologies and practices

4.6 Cross-cutting building blocks

4.7 From strategy to action

Governance frameworks for change

5.1 Introduction

5.2 Governance processes and frameworks

5.3

Empowering cities

5.4 Integration and networking

5.5 Funding and planning

5.6 Tracking progress in a transparent way

Example pathways towards the urban mobility goal

6.1 Technology substitution pathway: Waterberg

6.2 Modal sharing pathway: Viga

6.3

‘Starter’ pathway: Valanov

Key messages and action steps

7.1 Key messages

7.2 Action steps – who has to do what by when?

7.3 European level

7.4 National level

7.5 City level

7.6 Conclusion

References

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ROADMAP TOWARDS THE WHITE PAPER GOAL ON URBAN MOBILITY

TABLES

Table 1: Examples of key trends and their potential impact on the urban mobility goal

Table 2: Main characteristics of the three fictive cities – "Waterberg, Viga and Valanov"

Table 3: Milestones adopted in "Waterberg"

Table 4: Milestones adopted in “Viga”

Table 5: Milestones adopted in “Valanov”

Table 6: Milestone descriptions for urban mobility roadmaps

Table 7: Proposed processes and measures at the EU and national levels

Table 8: Proposed processes and actions at the urban level – key examples

FIGURES

Figure 1: Passenger modal split for selected European cities

Figure 2: Market share and EVs sold across Europe

Figure 3: Strategic areas and building blocks for urban mobility

Figure 4: Imagined pathway for fictive city “Waterberg”

Figure 5: Imagined pathway for fictive city “Viga”

Figure 6: Imagined pathway for fictive city “Valanov”

LIST OF ACRONYMS

BRT

CLCS

CNG

EFV

EIB

EVSE

FCV

GHG

HEV

ICE

ICT

ILUC

ITS

LEZ

LPG

Bus rapid transit

City logistics service centre

Compressed natural gas

Electric freight vehicle

European Investment Bank

Electric vehicle

Electric vehicle supply equipment

Fuel cell vehicle

Greenhouse gas

Hybrid electric vehicle

Internal combustion engine

Information and communications

technology

Indirect land use change

Intelligent transport systems

Low emission zone

Liquefied petroleum gas

PHEV

PPP

R&D

RFSC

RME

SUMP

UCC

UEMI

ULEV

ULEZ

UMO

WHO

ZEV

MIMP

Multimodal information, management

and payment

Plug-in hybrid electric vehicle

Particulate matter

Public-private partnership

Research and development

(European) Reference Framework for

Sustainable Cities

Rapeseed methyl ester

Sustainable urban mobility plan

Urban consolidation centre

Urban Electric Mobility Initiative

Ultra low emission vehicle

Ultra low emission zone

Urban Mobility Observatory

World Health Organisation

Zero emission vehicle

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Information about the TRANSFORuM project

TRANSFORuM’s underlying assumption was that pol-

icymaking should be based on an in-depth under-

standing of all stakeholders’ positions and that coor-

dinated action among them is more effective than any

solo attempts. The TRANSFORuM consultation pro-

cess was therefore designed to elicit these views and

to facilitate the emergence of synergy ideas.

The concrete conversations with and among stake-

holders were conducted through many direct inter-

views, 130 responses to our online survey, via various

social media channels and the feedback function of

our project website. Most importantly, though, TRANS-

FORuM organised 10 face-to-face workshops in 10 dif-

ferent European countries – at four of which urban

mobility was addressed (see overleaf).

We paid careful attention to ensure a balanced rep-

resentation of all types of stakeholders: Men and

women, established large companies and innovative

start-ups, representatives from all corners of Eu-

rope, suppliers and users, hardware and software

companies etc. This selection process was based on

TRANSFORuM’s first official deliverable (“Shaping the

TRANSFORuM Network” – available on our website),

which spells out the criteria that guides our stakehold-

Generally speaking, the FP7 project TRANSFORuM

contributes to the transformation of the European

transport system towards more competitiveness and

resource efficiency. It has done so by engaging key

stakeholders in carefully moderated forum activities

and through other consultation measures in order

to identify their views about the related challenges,

barriers, trends, opportunities and win-win potentials.

TRANSFORuM thus facilitated a discussion forum of

relevant actors and stakeholders about the best ways

to reach four key goals of the 2011 European White

Paper on Transport:



Clean urban transport and CO

-free city logis-

tics (goal 1)



Shift of road freight to rail and waterborne trans-

port (goal 3)



Complete and maintain the European high-speed

rail network (goal 4)



European multimodal transport information, man-

agement and payment (MIMP) system (goal 8)

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ROADMAP TOWARDS THE WHITE PAPER GOAL ON URBAN MOBILITY

er selection. To ensure the complete transparency

of this process we made the list of attendees of our

events always publicly available on our website. Our

participants included representatives of city admin-

istrations, producers and developers of vehicles and

energy technologies, transport operators and mobility

service providers, businesses and experts involved in

freight and urban logistic services, representatives of

citizen organisations, think tanks and other NGOs and

members of national and European programmes and

platforms supporting clean urban mobility.

This roadmap is primarily based on the stakeholder

debates at the following TRANSFORuM workshops

(similar workshops were conducted for the other

three goals):



Two-day workshop in Gdansk (June 2013) to iden-

tify key policies, actors, funding mechanisms and

trends as well as barriers, challenges and ways to

overcome them;



Two-day workshop in Oslo (October 2013) on good

practice and learning and sharing processes, in-

cluding a site visit to see Oslo’s maturing electric

vehicle (EV) infrastructure;



Two-day workshop in Vienna (January 2014) with

special emphasis on cross-cutting issues between

the 4 TRANSFORuM areas. Presentation and dis-

cussion of a preliminary urban roadmap 1.0;



Two-day workshop in Copenhagen (May 2014) to

discuss key challenges and building blocks for the

roadmap, including a trip around the city using the

newly-established e-bike scheme.

The roadmap was carefully reviewed by two external

experts ensuring a consistency and quality check and

allowing for some further improvements.

The document has the following structure:

Chapter 2 introduces the urban transport goal in

more detail and explains how stakeholders and the

TRANSFORuM consortium have interpreted it.

Chapter 3 outlines the context in which a roadmap is

to be developed in terms of existing trends, variations

in conditions and governance arrangements across

Europe and barriers for implementation.

Chapter 4 presents the basic strategic building blocks

for a roadmap, in terms of the ways in which urban

transport can be influenced and transformed in order

to realise the goal.

Chapter 5 highlights so-called “enabling mechanisms”

and factors that will be needed to allow the building

blocks to be activated and connected in new ways,

reaching towards the very ambitious White Paper

goal.

Chapter 6 illustrates three different types of path-

ways that cities could embark on to reach towards the

White Paper goal – by way of speculative ‘roadmaps’

for fictive cities.

Chapter 7 summarises the observations, propositions

and ideas of the TRANSFORuM process and presents

the European level roadmap itself.

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The White Paper goal on Urban Mobility

to the Commission’s so-called “Urban

Mobility Pack-

age"

expressed support for stronger efforts and more

cooperation to tackle urban mobility-related problems

and to improve quality of life in our cities.

However, existing commitments and policies are far

from ensuring that the White Paper goal will be accom-

plished. In fact, it has so far been quite unclear how

urban transport stakeholders and policymakers across

Europe view this particular goal and how they consider

it could be fulfilled in practice, if at all.

This has been part of TRANSFORuM’s mission to un-

cover.

TRANSFORuM’s stakeholder consultations led to the

realisation that a roadmap – in the sense of a strate-

gy with clear answers to the question

“Who has to do

what by when”

– should take its starting point on the

following observations and propositions:

1 European Commission (2013). Together towards competitive

and resource-efficient urban mobility. Communication from the

Commission to the European Parliament, the Council, the Euro-

pean Economic and Social Committee and the Committee of the

Regions. Brussels, 17.12.2013. COM(2013) 913 final.

ec.europa.

eu/transport/themes/urban/doc/ump/com%282013%29913_

en.pdf

TRANSFORuM’s Thematic Group on Urban Mobility

deals with goal no. 1 from the European Commission’s

2011 Transport White Paper:

Halve the use of ‘conventionally-fuelled’ cars

in urban transport by 2030; phase them out

in cities by 2050; achieve essentially CO

-free

city logistics in major urban centres by 2030

This goal is ambitious. In fact, it sets an

unprecedent-

ed level of ambition

for policy driven change in ur-

ban mobility in Europe; no goal of this kind has been

formulated on a continental scale before.

Yet, the spirit of the goal corresponds well to emerging

visions and on-going efforts already underway in many

cities in Europe. It also chimes with policies formulat-

ed by stakeholders, governments and the European

Community itself in areas such as transport, energy,

climate change, innovation and technology, urban

planning, health and the environment. For example,

European transport ministers in their recent response

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ROADMAP TOWARDS THE WHITE PAPER GOAL ON URBAN MOBILITY



specific urban mobility goal cannot stand alone

The

but must be seen as an element of a wider approach

towards sustainable urban mobility in Europe;



The adoption of non-conventionally-fuelled vehi-

cles and CO

-free logistics in European cities is cur-

rently moving too slowly for the goal to be reached

”automatically”;



Efforts to influence the volume of car and truck

traffic and to provide convenient alternatives are

at least as important for European cities as is the

substitution of conventionally-fuelled vehicles with

alternatively-propelled ones;



Significant additional actions at all political levels

are needed and this has to include the exploitation

of opportunities to use conducive technologies,

promoting relevant behaviours and developing

suitable governance arrangements;



Political visions and leadership at city, national and

European levels have to guide these transitions; the

goal cannot be fulfilled as a master plan with a top-

down approach. Contexts and conditions vary in time

and space across Europe and one size does not fit all.

These key observations and propositions extracted

from stakeholder consultations set the tone for the

document, which will elaborate and outline a road-

map that is intended to help propel us towards the

dual White Paper targets on clean urban mobility and

logistics.

Technological transformation, however, is not the

only possible solution to reduce the

use

of conven-

tionally-fuelled vehicles or to achieve CO

-free city lo-

gistics, as are the core formulations of the goal. The

emphasis on use and service in the goal clearly invites

a broader approach. In this regard, it is also important

to consider the underlying aims behind the goal as

they are formulated directly in the White Paper, which

include the following:



reduce CO

emissions from urban transport as

part of Europe’s contribution to avoid dangerous

interference with the global climate system;



reduce the oil dependency of Europe’s trans-

port sector and reduce an oil import bill of current-

ly around €210 billion every year;



significantly reduce the emissions of pollutants

(particulate matter (PM), NOx) and noise and there-

by improve the quality of life in European cities;



support the introduction of new technologies

and the creation of lead markets for innovative ve-

hicle concepts, thus improving the global competi-

tiveness of the European transport sector.

The specific goal may then be seen not as an end in

itself, but as a means to obtain those broader ends.

Furthermore, according to the White Paper, transport

goals are to be fulfilled without sacrificing the effi-

ciency of the transport system and without ‘curbing’

mobility, as it is phrased. As such, the official subtitle

of the White Paper is

“Towards a competitive and re-

source efficient transport system”.

Hence it must be assumed that the key to reaching the

goal is not to adopt a single solution but to exploit the

various available ways to improve efficiency, limit oil

dependence and reduce negative impacts while main-

taining services offered by mobility in a suitable way.

The goal specifies some near-quantitative figures

(“halving … by 2030”; “phasing out … by 2050”; “essen-

tially CO

-free”)

and target years (2030; 2050), which

provide clear signposts for the interpretation of the

goal and for the setting of benchmarks.

2.1 The “spirit” of the White Paper

goal on urban mobility

The White Paper goal on urban mobility leaves quite

a degree of interpretation open, which necessitates

consideration of its context and underlying rationales.

First it can be noted that the goal on clean urban mo-

bility is placed under the headline

“Developing and

deploying new and sustainable fuels and propulsion

systems.”

This, and some terminology used in the goal

(especially the focus on ‘conventionally-fuelled’ cars),

could suggest that the path to clean urban mobility is

expected to focus mainly on advances in vehicle and

fuel technology.

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The central term

“conventionally-fuelled vehicles”

seems somewhat ambiguous. It is further specified

in a footnote to include “vehicles using non-hybrid,

internal combustion engines (ICE)”. This specification

would clearly target petrol and diesel cars as those

whose use should be halved and phased out, while

notably accepting that all hybrid cars would go into

the permissible category, regardless of type and fuel.

It is less obvious to what extent ICE’s using alternative

fuels (e.g. biodiesel, compressed natural gas (CNG),

liquefied petroleum gas (LPG)) are to be counted in

or out.

The term “essentially CO

-free city logistics” seems

even more under-defined, not so much in terms of the

target value (near zero), but more in the scope of the

term ‘city logistics’ in major urban centres.

Would this refer to all movement of freight in ‘major

urban centres’ or only that the centres of major urban

areas must provide some level of city logistic service

that is ‘essentially CO

-free’ before the target year?

Finally it can be noted that the goal uses various spa-

tial delimitations; ‘cities’, ‘urban areas’, and ‘major ur-

ban centres’, but does not itself offer more specific

definitions of these terms.

be brought into light. Such an approach is believed to

increase rather than lower the chances for the goal to

eventually becoming accepted and operative.

However, an objective with too many different inter-

pretations may no longer be able to perform its in-

tended work as an effective, shared goal. A popular

management philosophy stipulates that effective and

useful goals need to be ‘SMART’ (Specific, Measurable,

Attainable, Relevant, Timely). TRANSFORUM has been

aware that forming a roadmap for an unclear goal may

be an impossible task and that some degree of com-

mon understanding would be desirable.

The first step in the TRANSFORuM dialogues was

therefore to ask stakeholders to embrace the goal by

discussing its relevance and achievability, and to con-

sider to what extent it may need more flexibility, or

more rigour to serve well as a basis for crafting a Euro-

pean-wide roadmap.

2.3 Stakeholders’ perspectives

of the goal

Nearly all stakeholders participating in TRANSFORuM

workshops and surveys stated that they were aware

of the White Paper goal. The feedback we got from at-

tendees of the OECD’s International Transport Forum

summit

2014 are somewhat different: Only 16 out of

24 respondents indicated that they were aware of the

goal and based on many other conversations it seems

safe to assume that the awareness of the White Paper

among the community of stakeholders is still limited.

In any case, most of our workshop attendees at least

stated that the goal is relevant to their daily work.

Moreover, most of them considered the goal achiev-

able, at least in principle. But action would be needed

very soon if it is to be reached in time. After all, the

2030 target is only 15 years away. Many new vehicles

sold in the next few years will, for example, still be in

use by then.

Stakeholder views differed with regards to whether

the passenger or the freight target is more achievable;

on average, the latter is seen as more difficult to reach

3 TRANSFORuM had a stand at the ITF summit to elicit stakeholders‘

views. See

www.transforum-project.eu/events/itf-leipzig.html

for

further details, including stakeholders‘ views on the goal’s desirabil-

ity and feasibility

2.2 Embracing the goal

The European Commission has formulated the goal,

but its fulfilment will require principal support as well

as considerable action from a continent of cities.

A first precondition would therefore be to ensure that

the goal is being acknowledged, recognised, appreci-

ated and eventually adopted in some form by those

cities and other urban transport stakeholders whose

actions it is meant to inspire.

TRANSFORuM represents one arena for such a pro-

cess. At the outset the TRANSFORuM consortium saw

it as important not to embrace the goal with mindless

‘canonisation’ in mind, but rather to invite critical ap-

preciation and reflection allowing different interpreta-

tions as well as possible ambiguities and limitations to

2 The joint EC/OECD typology of cities was released after the publi-

cation of the White Paper and does not even include all categories

used in the White Paper, such as “major urban centres“

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ROADMAP TOWARDS THE WHITE PAPER GOAL ON URBAN MOBILITY

than the former. Also the perceived importance of

these two targets varies. Some statements were made

indicating that the logistics community does not think

a EU target is so important, compared to what cities

do. Almost all stakeholders agreed, however, that the

achievability of the goal and its targets depends to a

large degree on the precise definitions of key terms.

Some stakeholders emphasised that the target to

halve the use of conventionally-fuelled cars is more of

an instrument, a means, or a signal towards the gener-

al ends, as one among several different tools to tackle

the challenges in urban mobility and to reach the un-

derlying ’real’ goals. The focus should be on how to

reach those underlying goals and aims in the best way,

rather than on only one of the ‘means’.

An important outcome of the stakeholder consulta-

tions concerns the strategic context for interpreting

the goal. There was wide support of the view that the

goal should not be pursued only with a ‘technological

fix’ in mind (simply replacing all ‘conventionally-fuelled

cars with non-conventionally-fuelled ones) but should

embrace a wider strategy, where the use of vehicles

and the organisation of mobility and logistics are tak-

en into account. The technological aspect of the goal

should not be treated as an isolated endeavour but

as part of wider efforts to promote sustainable and

resource efficient urban transport.

On a more technical level, stakeholders expressed

concerns about the declaration of hybrid cars as

“non-conventionally-fuelled”. The group of hybrids is

diverse in terms of technical design and independence

from fossil fuel. So-called ‘mild hybrids’ may, for exam-

ple, not even have an alternative fuel source. Hybrids

in general are expected to become so widely adopted

via normal market mechanisms that counting them all

in towards fulfilling the goal could dilute the effects in

terms of the subsequent environmental results.

It was most widely agreed that first and foremost

different actors engaged in urban transport need to

cooperate more in order to reach a genuine shift to-

wards sustainable urbanism. The goal must be seen in

this context, that is, as a trigger and focus of produc-

tive cross-cutting dialogue among all kinds of stake-

holders.

With regard to the key terms ‘cities’, ‘urban area’ and

‘major urban centres’, stakeholder consultations did

not lead to agreement on more specific distinctions.

Some stakeholders find this important, especially if

the goal is to be monitored and enforced in some

way, while others are not particularly concerned. One

point made repeatedly by many stakeholders was,

however, to focus not only on core urban areas be-

cause much larger geographical areas should be the

unit of analysis and action due to contemporary com-

muting patterns and the catchment areas of urban

in- and out-flows.

2.4 TRANSFORuM’s interpretations

of the goal

Based on the stakeholder views, the TRANSFORuM

consortium interprets the urban mobility goal more

as an expression of a bold ambition for the current

transport system, with a clear direction for change,

than as a mechanical target to be pursued blindly by

everybody. Even if it is useful to have a clear and mea-

surable goal, this must not lead to ‘tunnel vision’, or to

the assumption that the exact same numerical targets

would necessarily apply everywhere. The goal needs

to be adopted by stakeholders as one among other

goals in their general strategies for sustainable, com-

petitive and resource efficient urban mobility.

TRANSFORuM nevertheless finds there is a basis

for appreciating and embracing the goal’s specific

relevance among wider stakeholder groups and we

confirm it as the beacon for the proposed roadmap.

All European cities and Member States as well as the

EU as a whole should indeed be able to demonstrate

progress towards this goal or even to exceed it (as ap-

propriate and feasible).

To that effect the goal should be further operation-

alised and monitored with the use of indicators and

benchmarks applied at the urban as well as at the

European level. Specifications and methodologies

to make the goal more operational and possible to

monitor should be developed and supported by the

European Commission, as part of wider observatory

activities.

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The stakeholders we listened to indicated clearly that

the goal must not be seen as a call for a technological

fix but as stimulus to pursue the final destination on

multiple routes in parallel. Three of them emerged as

particularly important and therefore the structure this

roadmap sees these as distinct but equally valid fields

of actions or – as we explain in chapter 4 – as ’building

blocks‘ of the entire set of possible and recommended

measures. These are:



Technological substitution of conventional passen-

ger cars and fuels;



Reduced use of private passenger cars for trans-

port combined with an increase in public transport

usage and non-motorised forms of travel;



Increased utilisation of low carbon city logistics

technologies and practices.

The European Commission should also ensure con-

tinued efforts to engage European cities, stakeholders

and Member States in a dialogue urging them to re-

flect and embrace appropriate adaptations of the goal

as part of their wider strategies for urban mobility.

The goal should be revisited and possibly revised in

due course. This is in line with the planned forthcom-

ing review of the Transport White Paper, which Maroš

Šefčovič announced as a priority during the hearing of

his candidacy as EU Commissioner in front of the Eu-

ropean Parliament. Also the new EU Commissioner for

Transport, Violeta Bulc, pointed in this direction during

her hearing. In her response she also implied that the

White Paper remains highly valid and needs to be filled

with life through “a constant collaboration and con-

stant communication with those that share the vision

of the future.

4 Violeta Bulc’s hearing by the European Parliament on 20 October 2014

– recording available at:

audiovisual.europarl.europa.eu/As-

setdetail.aspx?id=6c999132-bb77-4210-bc5f-a3ca0125013e.

Quote at 3:34 minutes

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Conditions for change

that a uniform set of measures for all European cities

is not the way forward. Different conditions, opportuni-

ties and cultures imply that every city has to develop its

own trajectory towards fulfilling the goals for clean urban

mobility. While many cities have made important steps

towards more sustainable transport and show promis-

ing developments in different areas, there are also an ex-

tensive number of urban areas that are lagging behind,

struggling with growing motorisation, ageing transport

networks and lack of ambition to transform their trans-

port system. Even if the goal was accepted as a clear

objective for all, there would still be huge differences

between the cities’ achievements and their approaches.

Despite the differences, European cities share urban

mobility opportunities and challenges – some which

threaten to slow down, undermine or even reverse

efforts of transition to a sustainable urban transport

future, e.g. economic recession and therefore lack of

resources. No matter which solutions individual cities

choose to implement, the measures should be within

a European framework that does not discriminate be-

tween solutions that contribute towards the goal. For

example, equal definitions across EU countries pro-

vide clarity to the producers of mobility solutions and

technology. An example is Low Emission Zones (LEZ)

that typically use European Vehicle Emission Stan-

What are the conditions that the European cities face

to attain the urban goal? The conditions differ as re-

gards to the current situation in each city and depend-

ing on the approaches that they adopt. For example

whether they choose to focus on technological sub-

stitution, change in transport behaviour within pas-

senger transport and/or increased utilisation of low

carbon city logistics.

3.1 Mapping the current situation

3.1.1 Diversity of cities

According to a recent definition by Djikstra and Poel-

man (2010) there are 806 cities in the EU with an ur-

ban centre of at least 50,000 inhabitants. These cities

host 40% of the EU population, with towns and sub-

urbs covering another 30% of the population. So the

goal is of direct relevance to a very large proportion

of the European population. The cities differ consid-

erably as regards to size and density. The largest Eu-

ropean cities are London and Paris, but the majority

of city populations live in much smaller conurbations.

The stakeholders, who have participated in the TRANS-

FORuM activities or have been interviewed, emphasise

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dards to differentiate vehicles. Within such a frame-

work, cities should be free to choose measures that

are appropriate, given their different settings.

3.1.2 An enlarged Europe

A particular distinction can be made between the con-

ditions in cities in Central and Eastern Europe, West-

ern, and Southern Europe. In the former cities, public

transport systems have typically been highly devel-

oped and effective. However, since 1989, car own-

ership has increased dramatically and typically, the

use of public transport has decreased substantially.

The quality of the public transport infrastructure and

equipment is now in a poor condition in several cities

in the Member States within these regions. However,

they still experience a high share of public transport

users and the public transport is more likely to include

electric traction means – such as trolleys and trams.

The modal share of cycling is small, as are car-pooling

and car-sharing. In contrast, in Western and Southern

Europe, the modal share of cycling is comparatively

high, the share of cars remains high and stable, while

the share of public transport is small (or medium).

Figure 1 illustrates significant differences with regard

to modal split, between two old and two newer Mem-

ber State cities as well as differences within each of

the ‘groups’ of cities.

Differences in the current modal splits provide differ-

ent opportunities and challenges in becoming more

climate-friendly. Cities that are car dominated may for

example harvest some ‘low hanging fruits’ in terms of

shifting transport to other modes, while cities with a

more balanced modal split may need to focus more

on technological substitution in order to achieve im-

provements.

In terms of freight transport and logistics, cities face

diverse realities too. A city’s role in supply chains or as

a hub for rail or sea networks for example, determines

what solutions are appropriate to implement. In some

cities significant relief can be obtained by relocating

terminals out of city centres to prevent the associated

emissions from multiple short freight or ‘last mile’ jour-

neys from taking place in the densest urban areas, in

others, through-traffic which must travel through the

city in order to reach another, final destination is a dif-

ferent difficult problem to tackle.

3.1.3 Governance arrangements

Having appropriate political goals and knowledge of

relevant measures is not sufficient for a city to attain

the goal. There is a need for long-term commitment

in order to deliver transition. Governance capacities

and effective implementation structures are also im-

portant.

One important aspect is alignment at various political

levels in order to avoid contradicting policies or poli-

cies that undermine each other, e.g. integrated trans-

port and land use planning. Governance structures

often include several municipalities in competition

with each other for example, for industries and skilled

workers.

Innovative governance arrangements include horizon-

tal networks between public authorities and private

interests. Collaboration in such networks is often con-

sidered crucial in order to contribute to solve ‘wicked

issues’, where public authorities are dependent on the

knowledge and contribution of private stakeholders.

Moreover, during the last 25 years, ‘new public man-

agement’ reforms have contributed to reshaping how

urban transport is organised and managed – with

mixed results. Deregulation and privatisation of for-

mer integrated public transport bodies may offer

Public

transport

Public

transport

Public

transport

Public

transport

Figure 1: Passenger modal split for selected European cities. Am-

sterdam 2008, (upper left), Torino, 2011 (upper right), Tallinn 2011

(lower left), and Sofia 2010 (lower right) (EPOMM, Undated)

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cost reductions and service innovations but has also

in some cases lead to fragmentation of the services,

resulting in a less coherent transport system and in-

formation. Increased use of tools like performance

management may have increased competition and

service quality. However, it may also result in lack of

consideration of other modes and products than, for

example the individual service that the management

is responsible for.

What can perhaps be interpreted as new ‘modes of

governance’ includes a diversity of experiments in

sustainable urban mobility, initiated by citizens or mu-

nicipal political-administrative bodies. To an increas-

ing extent cities participate in different networks en-

abling them to exchange experiences and information

internationally on specific topics including transport.

Moreover, improved citizen participation is important

as it may contribute to ‘green’ engagement. Howev-

er, it may sometimes decrease the speed of decision

making.

Governance arrangements differ significantly across

Europe. Some cities are governed by strong entities

encompassing the entire city; some cities are able

to raise their own revenue or loans, while others are

heavily dependent on central government to support

investments through earmarked state funds; man-

agement reforms have been carried out in different

shapes and extents; so governance capacities and

abilities differ as do the amount and level of local ex-

periments.

passenger transport, as do heavy vehicles in urban

freight. In such an approach, car manufacturers, ener-

gy producers such as oil companies and electric util-

ities, as well as ‘new’ industries such as producers of

biogas or batteries play key roles on the supply side

(Marletto, 2014). In this approach local public authori-

ties will be important in facilitating the implementation

of new technologies for example, when developing cri-

teria in public procurement processes or supporting

what may be considered risky infrastructure projects.

Public authorities furthermore are key in oversee-

ing the development of new infrastructure, e.g. EV

charging. However, in such an approach the national

public authorities, grid owners, and global industrial

companies are also important players.

3.2.2 Stakeholders: activity change

approach

In contrast to technological substitution, an approach

focused on a

change in passengers’ transport be-

haviour

– including a shift to public transport, bicy-

cling, walking, and car-sharing – leaves more power in

the hands of the local and regional authorities. These

authorities, alongside public transport companies and

NGOs such as bicycle associations and car clubs, are

then the most relevant entities (Marletto, 2014). How-

ever, there would still be a need for multilevel action

as for example national authorities play an important

role in providing legislation and planning frameworks

that enable the local and regional authorities to im-

plement climate-friendly measures such as restrictive

parking, pricing, and prioritising buses in the traffic.

3.2 Stakeholder groups

Manifold stakeholders at different political levels and

in different sectors are important when aiming to

achieve a transition to a society with a transport sys-

tem that lives up to the urban mobility goal. Given

various conditions, different solutions are suitable to

different cities; and whilst there will be similarities and

crossovers, the kinds of measures that are ‘suitable’

in any given context requires involvement of different

sets of stakeholders.

3.2.3 Stakeholders: city logistics approach

In city logistics, private actors are particularly import-

ant for reaching the goal. Urban freight transport is

largely operated by and for private businesses, in-

cluding, but not limited to retailers, service providers,

industrial producers, transport carriers and logistics

companies, with the fuel supplied by energy compa-

nies. Some urban freight operators are huge compa-

nies using a diverse range of dedicated delivery vehi-

cles, while others are small companies owning only a

few vans or trucks. Transporters take advantage of a

variety of vehicles, ranging from large trucks to distri-

bution lorries, vans, scooters, bicycles and carts. The

deployment and utilisation of particular vehicles de-

pends on multiple factors and is not always optimised

3.2.1 Stakeholders: substitution approach

In an approach characterised by technological substi-

tution the car remains a dominant transport mode in

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from an urban perspective. The public sector plays

important roles with regard to regulating traffic (reac-

tively or proactively) and the procurement of transport

services. For example, the extent to which public au-

thorities coordinate their purchases may reduce the

need for transport, as different purchases are trans-

ported together from for example a city logistics ser-

vice centre (CLSC). Public authorities are therefore de-

pendent on a transfer of knowledge between private

businesses and themselves. In this sector any policy

that affects prices is likely to have large impacts, also

on a regional and national scale as it is highly compet-

itive and profitability is small.

isation and prices, technology changes, socio-demo-

graphic and cultural factors, as well as institutions and

policies.

Table 1 (page 20) summarises a number of drivers

and trends that the TRANSFORuM process has identi-

fied as likely to influence European urban mobility and

the realisation of the goal in an enabling (positive) or a

constraining (negative) way. It illustrates that markets

(e.g. energy prices) and demand (e.g. mobility needs)

are important in terms of whether a trend has positive

or negative climate effects (for more information, see

TRANSFORuM’s Deliverable 3.1 “Summary on main

policies, funding mechanisms, actors and trends”)

. In

order to achieve the goal, solutions could seek to ex-

ploit the positive contributions, while anticipating and

evading the negative ones.

For the purpose of illustrating implications of trends,

we highlight three examples: alternative fuel invest-

ment, young people and urban deliveries.

3.2.4 New stakeholders

There are opportunities for new stakeholder partner-

ships. A broader view and framing of the White Pa-

per goal, not just as a transport, planning, climate or

any other specific issue, but also in terms of collective

challenge is important in order to achieve it. ‘Siloes’

may need to be broken down and ideas will need to

be tried and tested in new ways with more focus on

longer-term relationships. Innovation in technical, so-

cial and financial terms is key. This further extends the

range of potentially relevant stakeholders.

3.3.1 Investments in alternative fuel

systems

The majority of all new registered cars in Europe have

petroleum (42%) or diesel motors (55%). Other tech-

nologies (i.e. hybrids, electric, and natural gas and eth-

anol-fueled vehicles) make up only 3% of the market

share (International Council on Clean Transportation,

2013). Currently several alternative fuel systems ex-

ist, including methanol, ethanol, butanol, rapeseed

methyl ester (RME), methane, propane, synthetic die-

sel from biomass, electric energy stored in batteries

or hydrogen. However, it is difficult to predict which

one of these will be a future ‘winner’ or ‘loser’. The

reason is that the use of alternative fuels and invest-

ments in infrastructure and new drivetrains make

changes expensive in the short run. Usually, there is a

need for governmental support (e.g. investments and

incentives), as new fuels and new infrastructure are

risky investments.

3.2.5 Supporting interests

Which supporting interests are the most important

in favour of realising the goal will be dependent on

factors such as the national and local mix of industry,

the available energy sources and systems, the local

culture of mobility, and the types and severity of prob-

lems that the local authorities face. The latter is par-

ticularly important as cities will tend to find solutions

that are acceptable locally, but not necessarily optimal

in a context of regional or national distribution. Finally,

public and private banks and lending institutions are

important actors, as new investments are required to

modernise public transport and revitalise urban infra-

structure.

3.3 Key trends

Urban mobility is highly complex. Demand for and

supply of urban passenger and freight transport are

driven, influenced and balanced by a wide range of

interacting factors such as economic activity, organ-

5 Deliverable 3.1 is available at:

www.transforum-project.eu/re-

sources/library.html

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Drivers and trends

Examples of

positive contributions to goal

Examples of

negative contributions to goal

Increased demand for transport; sprawl

Continued fluctuations make investments

uncertain

Increasing car use among older people

(e.g. because more women have a driving

licence)

Cars remain a status symbol; young may

just learn to drive later

Rebound effects: efficiency provides for

cheaper and therefore more driving

Batteries, EVs remain expensive

Urbanisation

Energy prices

Ageing population

Better potential for public transport and

active transport

Increasing oil prices make alternatives

competitive

On average less car use; better supply of

public transport

May avoid cars because of ICT and

alternative mobility solutions

Reduced emissions

Economies of scale for alternatively-

fuelled vehicles

Consolidation and promotion of EVs and

e-bikes

Citizens become engaged in sustainable

mobility plans

Modernisation and priority to public

transport services

Quality of service improves;

attractiveness of alternative modes

increases, e.g. WIFI on public transport

Decreasing passenger transport

Young people’s

lifestyles

More efficient

engines

Investments in

alternative fuel

systems

Growth in urban

deliveries

Urban transport

planning

Public transport

development

Access restrictions on inner city logistics

lead to longer trips (e.g. around the city

centres)

Planning remains poorly coordinated

Insufficient funding/priority leads to decline

in public transport

ICT can be used to stimulate mobility and

throughput of vehicles

Information and

communications

technology (ICT)

deployment

E-commerce

Increasing freight transport

Table 1: Examples of key trends and their potential impact on the urban mobility goal

Biofuels are often more climate-friendly than fossil fu-

els. From a lifecycle perspective biofuels are more or

less CO

-neutral, which is their competitive advantage.

Biofuels were considered promising until crucial draw-

backs were pointed out (Cf. Mitchel, 2008). Concerns

such as reduced bio-diversity, competition with food

production and poverty concerns contributed to a de-

crease in the interest and investments in biofuels. The

focus today is rather on second and third generation

biofuels, which do not compete with food production.

Advantages of new Euro VI engines and diesel fuels

for Heavy Duty Vehicles are the low amounts of local

air pollutants emitted (NOx, PM and other toxic com-

pounds). Euro VI diesel engines are more than 90%

cleaner than the former Euro V engines (Hagman and

Amundsen, 2013). Such technology can therefore

compete with biofuels in terms of clean tailpipe emis-

sions. However, biofuels are favourable in the sense

that their climate impact is low, as they are more sus-

tainable and can come from renewable sources.

Fuel cells for the conversion of produced and stored

hydrogen to electric energy on-board vehicles has re-

peatedly been appointed as the ‘great’ fuel solution. In

2014, several vehicle manufacturers have announced

that they will start test production of pre-commercial

fuel cell vehicles, arguing that fuel cell vehicles (FCV)

will be economically competitive in the 2020s.

There is currently a small test market and this will grow

for most of the alternative fuels like biofuels in ICEs

and hydrogen in FCVs. For which fuels there will be a

demand and how fast the market will grow, is depen-

dent on governmental support and fuel system invest-

ments. Timing, public pressure, climate concerns and

choice of fuel strategies are important for success.

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In 2014, electric energy from carbon neutral electric

power production is considered the leading path for

sustainable automotive propulsion (e.g. EVs are typ-

ically mentioned specifically in EU documents while

other alternative fuel systems are often referred to as

‘other’ fuels). Advances in battery technology and pro-

duction and the fact that the energy efficiency of elec-

tric drive is superior, contribute to the explanation of

why electrification is very much the ‘name of the game’

in 2014. Electrification includes increased energy ef-

ficiency with pure EV, Hybrid Electric Vehicles (HEV),

or Plug-in Hybrid Vehicles (PHEV). Heavy Duty Vehicles

may use future electric roads and pantographs to

charge their batteries part of the travelling distance.

Figure 2 illustrates the market share and number of

EVs sold across Europe. The market share is partic-

ularly high in Norway and rising in countries like the

Netherlands and the UK. Several cars that have been

sold in France have been exported to the Norwegian

market, due to an economic incentive in France, which

has since been removed. However, it gives France an

artificially high figure in the illustration.

Electrification of vehicles is a two-fold trend. On the

one hand, electrification has gained foothold in the

market in some countries (e.g. Norway and the Neth-

erlands) and some established car manufacturers

(e.g. Nissan and Tesla) have increased their sales to

an extent that this technology is starting to become

self-sufficient (Figenbaum and Kolbenstvedt, 2013).

There is also a new wave of PHEVs entering the mar-

ket. The fact that there are several manufacturers

competing in the plug-in market contributes to de-

creasing the price. On the other hand, the price of EVs

and PHEVs remain high in most countries. The mar-

ket for such technology is stagnant and low, with few

exceptions (Figenbaum, Kolbenstvedt and Elvebakk,

2014). There is still a need for incentives to make a

transformation within this field. Currently countries

(Germany, for example) are reforming national legis-

lation in order to allow local authorities to implement

for example free parking and use of public transport

lanes for EVs.

Figure 2: Market share and EVs sold across Europe (Figenbaum, Kolbenstvedt and Elvebakk, 2014)

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3.3.2 Young people

An interesting trend is the fact that young people in

urban areas tend to travel less by private car than

the same age group did a decade earlier (Kuhnim-

hof et al., 2012). They show a more pragmatic atti-

tude towards car ownership and transport than ear-

lier generations (Schippl, 2013) and delay taking a

driver’s licence until they get older (Hjorthol, 2012).

Suggested reasons include unemployment, prices,

more time spent in education, urbanisation and

changes in travel attitudes. In addition, new tech-

nologies contribute to this trend as technology may

substitute travel needs (e.g. creating possibilities to

work from home) or provide better public transport

information (Line et al., 2010). Decreasing car own-

ership may also contribute to a rise in car-sharing.

Congested roads and lack of parking also contribute

to this trend; as such restrictions make alternative

ways of travel more competitive. However, in most

countries owning a car remains a status symbol and

the younger generation may still buy a car, just when

they get older.

ed project STRAIGHTSOL

, show that while contrib-

uting to decreasing CO

emissions, such activities

are much more expensive than ‘conventional’ urban

freight transport. CLSCs have disappeared or never

made it beyond the experimental stage, as subsidies

have been withdrawn (Ibid). Similarly, it remains to be

seen whether the use of cargo bikes within urban lo-

gistics is a gimmick.

So far, introducing larger policies such as environmen-

tal zones that restrict access for freight transport in

city areas has proven more effective. However, a dis-

advantage is that the travel distance may increase as

the operators are directed to other roads around the

city. Collaboration between private and public inter-

ests may contribute to a common understanding to

continue city logistics initiatives.

3.4 Barriers for change

The trends may enhance possibilities and create

barriers. However, there are many other barriers to

achieving the White Paper goal. In the following sec-

tion, we highlight key barriers for the three different

areas: technology substitution, passenger transport

behaviour and city logistics.

3.3.3 Growth in urban deliveries

Urban logistics and freight transport comprise be-

tween 20–30% of urban traffic and is dominated by

heavy vehicles. While local public authorities tend to

focus on passenger transport, freight is gaining in-

creasing attention due to the environmental and cli-

mate impacts (e.g. noise, congestion, lack of available

parking and road space, accidents, air pollution and

emissions) that create a need for regulations and

restrictions (Gonzalez-Feliu et al., 2013). Such con-

cerns and the growth in small urban deliveries due to

among other increasing internet-based shopping call

for innovative solutions.

There is an increase in initiatives that contribute to lim-

iting urban freight traffic and reducing CO

emissions.

For example, with support from public authorities, the

number of CLSCs has increased in Europe. Studying

European cities, Morana et al. (2014) have counted 75

such initiatives; however, only 30 of them were opera-

tional in 2010.

In general, it is challenging to make on-going small-

scale projects large enough to become economically

feasible. Demonstration projects such as the EU-fund-

3.4.1 Technology substitution

A key barrier within technological substitution is the

risk of new innovative solutions having unexpected ef-

fects and losing in competition with other solutions.

Technology creates barriers, as the incremental pace

of change in the market does not enable the rapid

development of technologies that the goal calls for.

EVs in the Norwegian market for example, did not get

a foothold until safer and higher quality models had

been developed, although several favourable policies

were already in place (Figenbaum and Kolbenstvedt,

2013). Moreover, technological neutrality is often seen

as important in order to let technology leaders devel-

op, yet new technology may also require investments

in order to become established in the first place.

Some technology choices may therefore be required

to speed up the market. However, different countries

and cities may choose to support different technolo-

gies, thereby ensuring competition between different

www.straightsol.eu/overview.htm

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technologies. Economically, the existing systems em-

body enormous values that cannot easily be discard-

ed without significant losses and sunk costs, and the

economic turnover in regard to vehicle fleets and (not

least) infrastructure is generally slow. Costs for alter-

native systems such as electromobility or hydrogen

propulsion are currently high. However, niches such

as car-sharing may be a good starting point for over-

coming such cost barriers. Socially, while being a fore-

runner in using new technological solutions may pro-

vide social acknowledgement, there are several social

and competence barriers that may create obstacles.

The public may be concerned that they will not be able

to sell the vehicle that they have purchased due to lack

of a second-hand market or they may be concerned

with the driving range.

pricing, infrastructure development and public trans-

port policy are needed. However, such competence

tends to be fragmented. In cases of land use planning

or location decisions, inefficiencies occur when public

authorities and companies do not take sufficient con-

sideration of the impact that their choices have on the

transport system as a whole.

3.4.3 City logistics

In city logistics, a key barrier is that even though a

measure may seem profitable, costs and profits are

unevenly distributed among different interests, i.e.

certain interests ‘win’ and others make losses from the

implementation of a measure (Andersen and Eidham-

mer, 2014). For example, operators have an interest

in maximising the use of their vehicles (MDS Trans-

modal, 2012), but not necessarily in less transport.

Furthermore, it is difficult to make businesses change

their behaviour and operations. Even if a business

considers a new climate-friendly solution as promis-

ing, it needs to reach a certain scale in order to reach

a rate of return. This is a barrier that has stopped

several good initiatives (Andersen and Eidhammer,

2014). A key barrier is also the lack of understanding

among policymakers about how the logistics industry

works. Consultative planning and cooperative forums

are crucial in order to ensure adherence to public

objectives, while drawing on useful information from

private operators when designing useful policy mea-

sures (Andersen and Eidhammer, 2014; MDS Trans-

modal, 2012).

The following chapters will take this diversity of con-

text across Europe into consideration and are mindful

of stakeholders, trends and barriers that may impact

progress towards the urban goal. It will develop a se-

ries of ‘building blocks’ that would help Europe’s cities

to navigate through these challenges towards 2030.

3.4.2 Passenger transport behaviour

An important barrier in facilitating changes in passen-

ger transport behaviour is political. Several measures

that impose a change in behaviour or induce costs on

citizens or business are sometimes unpopular. The ex-

ample of congestion charging in Stockholm suggests

that such resistance may decrease, if the affected

population also experiences the benefits of such mea-

sures through an experiment (Eliasson et al., 2009). In

general, policy packages may contribute to overcome

such barriers. The ability to show that a city is not the

only one introducing punitive measures may also con-

tribute to their legitimacy, and the idea of sharing suc-

cessful experience with and learning from other cit-

ies is therefore important. Setting up well-timed and

short-, medium-, and long-term goals in advance as

well as providing sufficient time for adoption (such as

in the case of the congestion charging scheme in Lon-

don) is also of vital importance. Economically, the costs

for modern, competitive public transport systems are

high. Technologically, some user groups (e.g. older

people) may struggle to adapt to new ICT solutions,

if obtaining travel information is dependent on such

technology. Coordination is also an issue for achieving

modal shift – it is a key challenge in transport planning

at the local level. Transport planners, researchers and

interests that have participated in the public consulta-

tion process of the urban mobility package highlight

lack of coordination as a particular challenge (ECORYS,

CENIT and COWI, 2013). To deliver substantial chang-

es in urban mobility, comprehensive actions that in-

clude land use planning, road use, parking, transport

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Building blocks for change

4.1 Overall perspective

According to TRANSFORuM stakeholders, reaching the

goal is likely to require substantial transformations of

technologies, services and behaviour within the entire

area of urban mobility and transport. It will imply fun-

damental changes to the development, adoption, and

use of vehicles and propulsion systems, and to the

provision of logistics services in cities all over Europe.

However, it is also evident that many already existing

examples demonstrate that such transformations are

not impossible.

Markets and technologies are constantly evolving

and the goal is not likely to be accomplished unless

multiple actors at different levels from city to national

to EU level, and across the public and private sectors

and civil society undertake a broad variety of actions

to change the current conditions, systems and devel-

opments. As the White Paper states:

“Inaction is not

an option”.

There is not one, nor a single set of actions or mea-

sures that are likely to be sufficient. A broad range of

actions need to be taken over the next decades. The

TRANSFORuM debates mostly converged around the

following broad strategic areas:



Technological substitution of conventionally-fuelled

passenger cars;



Reduced use of private passenger cars for trans-

port in cities;



Increased utilisation of low carbon city logistics

technologies and practices.

7 Deliverables 5.1 and 5.2 are available at

www.transforum-project.

eu/resources/library.html

Good practice examples

Throughout the following sections, examples

from TRANSFORuM’s previous work on good

practice in the context of the White Paper (De-

liverables 5.1. and 5.2)

will demonstrate identi-

fied factors of success. These examples will be

presented in small blue boxes.

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Within and across these strategic areas, changes in

supply and demand need to supplement and rein-

force each other, to transform the production and

consumption of urban mobility. It is not viable, for

example, to increase the supply of alternatively-fu-

elled vehicles, if consumers are not able or willing to

demand them; and it is not sufficient to nurture a de-

mand for CO

-free logistics services for certain niche

products, if dependence on fossil fuels is expanding

much more strongly in other areas of delivery.

How to develop and match supply and demand in or-

der to foster change towards sustainable transport

systems, while ensuring viability for social and eco-

nomic development in cities is an important question

for local, national and European governments and

stakeholders.

The strategic areas mentioned above form the basis

for developing this roadmap for the urban mobility

goal. Each of these elements suggests different stra-

tegic areas and building blocks need to be developed

and activated as part of the implementation of the

roadmap. Here we outline both what these building

blocks look like and discuss some of the actions that

could be introduced or expanded within each area to

move towards achieving the goal.

4.2 Strategic building blocks

explored

One can distinguish between two main domains of

what is being transported, namely passengers and

goods, and the two basic approaches of what needs to

be changed, namely transport technology, and trans-

port activity. Figure 3 outlines the three abovemen-

tioned strategic areas in several blue coloured boxes

respectively. It furthermore shows a series of building

blocks required to change transport technology and

activity.

Passenger

Goods

Alternative fuel

infrastructure

Technology

substitution

Alternatively-fuelled

cars

Alternatively-fuelled

freight

Street network

and traffic flow

Car-sharing

Public transport systems

Walking and cycling

Mobility

management

Freight consolidation

Activity

change

Land use development

Figure 3: Strategic areas and building blocks for urban mobility. Red lines indicate blocks that may interact

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A differentiation between

passenger

and

goods

is rel-

evant because of the different character of the trans-

port functions and services, the different types of vehi-

cles required for each, and the different stakeholders

involved. Goods transport, for example, has the issue

of empty running due to the one-way character of the

supply chain that does not apply equally to passenger

transport. There are however also overlapping and

common elements too, such as the need for similar

infrastructures and fuel supplies and the (as of yet)

manual control of vehicles in traffic. Passenger cars

are also sometimes used to transport goods (e.g. gro-

ceries), and goods vehicles to move passengers (e.g.

co-workers). The building blocks therefore allow the

two domains to be bridged.

A differentiation between

technology substitution

and

activity change

is relevant because of the different

types of policy measures and scales of intervention

required to influence them. Technologies need to

some extent to be standardised over a wide scale to

become efficient, while activity change in transport to

a higher degree needs to consider local or regional

contexts of demand and supply, in order not to affect

mobility and access negatively. The distinction reflects

the duality in the goal between vehicles and their use.

In this area there are nevertheless overlaps and cor-

respondences, where, for example, changes in costs,

prices and taxation may influence both the demand

for alternatively-fuelled vehicles and the ways the cars

are used. Technology substitution and activity change

within goods transport here will be treated as one

strategic area, because it makes less sense to sepa-

rate those.

To achieve the urban mobility goal, there is a need for

policies and measures that either ‘push’ or ‘pull’ build-

ing blocks within all three strategic areas. This will in-

volve different combinations of measures in individual

cities and Member States, and it is not to be assumed

that the building blocks need to be pushed or pulled

in the same way everywhere; only that they represent

the most essential building blocks for a general road-

map towards the goal.

The literature sometimes refers to three strategic ap-

proaches to obtain low carbon transport, namely to,

‘avoid’ transport, meaning the elimination of the need

for movement altogether; to ‘shift’ car or air transport

to lower emitting modes such as walking, cycling, rail,

or bus transport, and to ‘improve’ the efficiency of the

transport systems, either in terms of capacity utilisa-

tion, energy efficiency, or carbon content of the fuels.

These three strategies can be applied by addressing

all three areas.

It is clear that the strategic areas are related, overlapping and

could be mutual

ly supporting. For example increased

car-sharing might support the introduction of alter-

natively-fuelled vehicles. This is tentatively illustrated

with red lines in Figure 3.

It should also be emphasised that neither the stra-

tegic areas nor the building blocks constitute ‘strate-

gies’ on their own, but when accompanied by initia-

tives, frameworks, processes, measures and funding,

they constitute the basic areas for intervention in a

roadmap for the urban mobility goal. In the following

section, we introduce strategic building blocks within

each of the three areas, and discuss some of the ways

in which they can be pushed and/or pulled.

4.3 Technological substitution of

conventional passenger cars

and fuels

4.3.1 Alternatively-fuelled cars

As mentioned in Chapter 3, there are several alterna-

tives to conventional petrol and diesel (fossil fuel) cars.

One alternative is ‘mild hybrids’, which are basically

fossil fuel cars with an electric ‘helping device’ to save

fuel while braking or stopping. As discussed in section

2, excluding ‘mild hybrids’ from counting as ‘non-con-

ventional’ vehicles could be considered, because of

their limited contribution to reducing oil dependence,

emissions and other urban transport problems.

Various kinds of biofuel represent another non-con-

ventional propulsion source; however, there are un-

certainties with regard to the sustainability of this al-

ternative (Bailey, 2013), and the actual fuel purchased

by car owners. Currently EVs are considered a key

technology to replace conventionally-fuelled cars (see

section 3), although it is still uncertain whether they

will become a fully viable and competitive alternative.

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Good practice: Norway, Germany, Madrid

Norway’s

comprehensive EV policy framework

has been very successful in transforming the

fleet. Since the early 1990s, the government has

gradually introduced a package of incentives

including reductions in high car taxes, bus lane

access and exemptions from toll road charges.

Germany’s ‘Electromobility Model Regions’

a competition-based initiative in which the go-

vernment is promoting widespread introducti-

on of EVs and infrastructure by 2020. The €1,5

billion programme aims to get one million EVs

on the road by 2020. It is seen as promising due

to its cross-cutting character and large scale.

Many countries and some cities offer more or

less comprehensive incentives. Some projects

within the programme provide support to build

up the whole ecosystem around electromobility.

Efforts in

Madrid

to integrate EVs have also gi-

ven the city the largest fleet in the country.

The main issues obstructing wider adoption of EVs are

range, costs and charging times for batteries (see also

chapter 3). Even if range is not so critical for short ur-

ban trips, consumers may perceive it as an obstacle.

Continued research and development (R&D) is expect-

ed to significantly improve battery performance and

lower costs over time, and models are available where

the range issue is overcome (ranges 300–400km) al-

though at a high cost. One of these models was the

most sold car among all available car models in Nor-

way in March 2014.

An interesting possibility is to introduce EVs through

car-sharing

and

rental services.

In a city like Paris, for

example the ‘Autolib’’ sharing system constitutes a ma-

jor part of the city’s EV fleet. This may serve to famil-

iarise a much larger share of travellers with non-con-

ventionally-fuelled driving rather than via conventional

ownership. Electric drive is often suitable for typical

urban car trips, and is beneficial for the environment

compared to conventionally-fuelled cars. However the

benefit may be smaller if the shared EV cars replace

trips made by bicycle and public transport.

Public transport

is already widely based on electrici-

ty in many cities, notably by metros, trams, suburban

rail, and trolley buses, the latter typically in Central and

Eastern European cities, like Gdynia, Poland (see be-

low). An estimate is that 40–50% of public transport in

Europe is based on electricity today. Many cities are in-

troducing or extending their rail-based systems, some-

times closing parallel bus lines. In smaller cities and

more dispersed areas, the majority of public transport

is provided by diesel buses, although examples also

exist of entire bus fleets based on gas (e.g. Toulouse,

France), and (more experimentally) buses using electric

or hydrogen propulsion. In London diesel-hybrid buses

have been in use since 2006. The electrification of pub-

lic transport is not directly included in the urban mobil-

ity goal, but it can help achieve some of the associated

goals, such as to limit CO

emissions, and to reduce the

attractiveness of cars.

Good practice: Gdynia, Toulouse

Gdynia

committed to retrofitting its trolley-

buses from diesel to electric power and en-

couraged passengers back onto the network.

Toulouse

has been successful in switching

100% of its diesel bus fleet to run on CNG.

4.3.2 Alternative fuel infrastructure

Electric forms of transport need electricity supply

through wires or charging options and systems. EVs

need Electric Vehicle Supply Equipment (EVSE). FCVs

need hydrogen supply, and biofuel-based cars need

a distribution systems for ethanol, biodiesel or simi-

lar. The impact on CO

emissions for electric forms of

transport depends much on the power sources used

to supply the electric grid. In the best cases the emis-

sion reduction potential is near 100%; in the worst

cases it is 20% or even less.

Some alternatives like hydrogen require investments

in fundamentally new infrastructure; others require

extension and modernisation to become fully viable,

such as high-speed chargers, and the deployment of

‘smart grids’, allowing EVs to interact with the power

supply system in an intelligent way. Apart from slow

or semi-fast AC charging at the home or distribu-

tion company there is a need for additional fast DC

charging and/or battery swapping options if EVs are

to serve as full alternatives to conventionally-fuelled

cars. It is important that systems are standardised to

ensure interoperability and avoid duplication of sys-

tems and costs.

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The European Community institutions have recently

agreed on standardised plugs for EVs and re-fuelling

equipment for other alternative fuels. Agreement has

also been reached on a strategy to roll out alternative

fuel infrastructure such as charging points. It will now

be up to Member States to develop and deploy such

plans.

4.4 Reduced use of private

passenger cars for transport in

cities

4.4.1 Land use development

Land use and urban form have long lasting impacts

on factors such as location choices, commuting pat-

terns, travel distances and mode choice. Changes in

land use patterns can, together with urban (re)devel-

opment and new infrastructure, help reduce the need

for travel and the use of cars. A global estimate by the

Intergovernmental Panel on Climate Change suggests

that over the medium- to long-term (2030 and 2050,

respectively), such measures could potentially help re-

duce greenhouse gas (GHG) intensity of transport by

20–50% below a 2010 baseline, through more com-

pact and integrated public transport, improved cycling

infrastructure, and walking-oriented urban planning.

However, the figure is likely to be lower in Europe,

where such an approach is already widespread. Many

cities and countries directly apply land use policy mea-

sures as part of planning frameworks and policies to

limit CO

emissions, a prominent example being ‘com-

pact city’ strategies.

The interactions between transport and land use are

highly complex and despite decades of research there

are many unanswered questions, on how much trans-

port demand and associated effects can actually be

influenced by intervention in different spatial parame-

ters such as density, diversity or design, and by using

planning instruments such as zoning, investments,

restrictions on development, densification, and other

measures. The results of planning efforts are likely to

be unique for each city.

Nevertheless, it is important to include land use poli-

cies and measures to at least avoid the negation of re-

duction in emissions from cars through urban sprawl.

Integrated land use and transport development to

maximise benefits of public transport investments

should be seen as an essential element in sustainable

urban transport planning.

Good practice: France

In April 2014, the

French

government announ-

ced the adoption of a regional framework for EV

charging. This will enrol the Autolib’ scheme for

Paris

with over 5,000 existing charging termi-

nals, that will become partly (250 in a total of

5,000) open to third parties.

Some private operators like oil companies and car re-

tail or charging services are rolling out EV charging sys-

tems on a commercial basis. It is not yet clear exactly

what types of systems, provided by whom, would be

needed to fulfil the urban mobility goal in an optimal

way. Also consumer charging behaviour is not known:

whether they will charge vehicles overnight or during

the day, with different impact on CO

-emissions.

Countries, regions and cities employ a range of mea-

sures to promote the supply of and demand for EVs,

including, support for R&D; financial incentives to pur-

chase EVs; provision of fuelling and charging systems

away from home, transport advantages (e.g. free park-

ing for EVs, driving in bus lanes etc.) and other mea-

sures. It is generally acknowledged that the success in

Oslo and Norway is due to the particularly broad and

generous measures, where exemption from high car

taxes and privileged roadway uses directly make EVs

economically more attractive than comparable con-

ventionally-fuelled cars. The costs of the programme

in terms of forgone taxes etc. are substantial, but not

known in detail (Figenbaum, 2013).

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Good practice: Freiburg, Maribor

Freiburg

in Germany has been successful in

multimodal urban planning, including both in-

centives and disincentives to limit car traffic.

Only 32% of journeys were made in the car in

2007, down from 38% in 1982. Public transport

use has risen from 11 to 18% over the same

time period.

Maribor

in Slovenia developed a Sustainable

Urban Mobility Plan (SUMP) in 2013, laying the

foundation for a strategic action plan for the pe-

riod until 2018. The city council aims to have a

split modal share of 25% cars, 25% public trans-

port, 25% walking and 25% cycling by 2020.

In many cases it is a significant challenge to secure in-

vestment to set up such new systems, as well as their

subsequent maintenance and operation. Financing pub-

lic transport is seen by some as the most crucial factor

for succeeding to increase the attractiveness and use of

the mode (Austin et al., 2012). There are growing efforts

to attract private capital to invest in public transport sys-

tems and services, for example through public-private

partnership (PPP). There are examples of significant

successes, where PPPs have managed to deliver public

transport infrastructure at lower cost and/or shorter

time than through public funding alone. However not all

public transport projects are attractive from a private in-

vestor point of view, and not all examples have led to a

reduction in the use of cars (Pettersson, 2014).

4.4.3 Walking and cycling

Cities are essentially made for walking, and in many ur-

ban areas it remains the most widely-used mode, despite

often being neglected in planning. Without excellent fa-

cilities for pedestrians, it is less likely efforts to encourage

drivers out of their cars will be successful.

Cycling represents a real alternative to driving for many

shorter urban trips. In some cities like Copenhagen and

Amsterdam, cycling has obtained truly significant shares

of passenger transport, as a result of historical condi-

tions, cultural factors, and many years of planning and

investments to improve conditions and safety. In most

cities the share is below 5%, while Copenhagen has 25%

mode share and Amsterdam 33%. The gap between

these extremes highlights a significant potential contri-

bution to achieving the White Paper goal, if car users

could be motivated to shift to cycling for parts or all of

their travel.

A recent study by the World Health Organisation (WHO)

concludes that investing in cycling solutions could en-

tail significant economic benefits in regard to improved

health as well as jobs created. It is estimated that, if mea-

sures were taken to achieve the same modal share of

cycling as in Copenhagen, in a city like Dublin, 29 lives

could be saved and 550 new jobs could be created. For

Bucharest, 130 lives saved and 2200 new jobs. To obtain

such results would likely require significant measures to

improve safety and facilities for cyclists (WHO, 2014).

The potential could be even larger, as Copenhagen does

not even consider to have plateaued yet but aims high-

4.4.2 Public transport systems

Shifting passengers to, and investing in new and im-

proved public transport is one of the most obvious

ways to help reduce the use of cars in cities, conven-

tionally-fuelled or otherwise. Surveys of citizens and

professionals often show that improving public trans-

port is seen as the most important of all measures for

sustainable urban transport (Rodier et al., 2010). Pub-

lic transport can provide comparable service comfort

and cost to using a car for many urban trips, not least

commuting. However for less densely-populated or

sprawled areas, public transport is not always a viable

alternative.

Promoting and investing in modernised, integrated,

clean public transport systems can provide cities and

societies with a range of other benefits, in terms of

mobility, accessibility, economic performance, safe-

ty, quality of life and environmental improvements;

or may at least help reduce growing use and depen-

dence on cars, even if the contribution to achieve the

specific urban mobility goal in some cities could be

limited.

Many European cities invest in modern public trans-

port systems, such a light rail, driverless metros, cost

saving Bus Rapid Transit (BRT), as well as electronic,

integrated ticketing, passenger information and pay-

ment systems that can make public transport more

attractive for the passengers.

8 The TRANSFORuM roadmap on European Multimodal Transport In-

formation, Management and Payment provides more detail about

this specific White Paper goal

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er. A particular challenge is to attract longer distance

commuters, who have the most extensive use of cars.

A possibility is to improve interchanges and integra-

tion between public transport and cycling to help

overcome such issues.

Good practice: Copenhagen

One of the first large urban bike-sharing

schemes was launched in

Copenhagen

in 1995.

Similar schemes now have been set up in many

European cities, e.g. Barcelona, Bucharest, Lju-

bljana, London, Paris, Prague, Tirana, Warsaw

(WHO, 2014).

sport stadiums, hospitals, and major workplaces). This

can involve for example schemes for parking provi-

sions, car sharing, support to the use of non-motor-

ized transport modes, or public transport services or

access to the facility, and other physical or behavioural

measures. Mobility Management initiatives can be

undertaken by individual (public or private) property

owners, or jointly by groups of employers or activity

venues located in the same area. Mobility Manage-

ment measures are best incorporated already at the

phase of location, design, and development of major

urban activity centers, but can also be adopted for

existing facilities and locations. Many cities support,

and some directly prescribe the use of Mobility Man-

agement measures as a condition for certain urban

development schemes.

4.4.4 Car-sharing

An important option and lifestyle trend is sharing, es-

pecially car-sharing, either informally or through com-

mercial car clubs. Car-sharing is continuously growing

in several European countries.

Many see car-sharing as a way towards more sus-

tainable mobility, since a shared car can eliminate

the need for several individual cars, depending on cir-

cumstances. Some also see it as one of the best ways

to introduce alternatively-fuelled vehicles to a wider

audience. Some car-sharing clubs and companies in-

clude EVs or are – like Autolib’ in Paris – fully focused

on e-mobility. Car-sharing increases the intensity of

vehicle use, making investment in these types of vehi-

cles more attractive. It is likely that car-sharing in some

form will increase in the future, considering current

growth trends.

4.5 Increased utilisation of low

carbon city logistics technologies

and practices

A number of urban freight measures can contribute

to reduce CO

emissions in city logistics. Among these

are clean vehicles, CLSCs, on-, and off-street delivery

areas, out-of-hours deliveries, other regulations on

traffic and parking, urban freight intelligent transport

systems (ITS) management systems, freight partner-

ships, etc. Here two of the most important are cov-

ered: Alternatively-fuelled goods vehicles and goods

consolidation.

4.5.1 Alternatively-fuelled goods vehicles

Nearly all trucks and vans used in cities run on con-

ventional diesel. There is currently no fuel or CO

effi-

ciency limits or target for trucks in Europe. A growing

range of EVs are nevertheless becoming available on

the market and they are being deployed for various

distribution and delivery functions. A recent report

from the ENCLOSE project (AustriaTech, 2014) lists

more than 40 different models of different sizes and

types.

Electric freight vehicles (EFV) provide benefits in terms

of opportunity for significantly reduced emissions and

noise, as well as some advantages such as driver sat-

isfaction. There is also an image factor for the compa-

nies to consider. Like for passenger transport, the CO

effect depends on the fuel mix of the grid. EFVs are

currently most suitable for so-called ‘last mile’ deliver-

ies involving short-distance distribution. Costs associ-

Good practice: Bremen

A municipally-led ‘Car-Sharing Action Plan’ for

Bremen

sets the target of 20,000 car-sharers

by 2020 replacing at least 6,000 private cars

(Glotz-Richter, 2014).

4.4.5 Mobility management

Mobility Management can be described as actions

that affect the demand for transport in connection

with the development and operation of major urban

activity centres (like shopping malls, cultural venues,

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ated with vehicle purchase, fuel price, battery durabil-

ity, operational constraints etc. are important for the

economic viability of using EFVs for goods distribution,

and the scope for their use is so far limited.

Urban deliveries could be seen as a relevant market

for EFVs, since they involve large fleets, and stop-and-

go activities. The uptake could be supported through

increased delivery windows for EFVs, for instance.

Often electric vans and trucks are included as part of

subsidised experiments and research, although they

are also increasingly a part of commercial operations.

Many mail companies are for example introducing EFVs

as part of company efforts to reduce CO

emissions.

Good practice: CycleLogistics

CycleLogistics

was a three-year European proj-

ect, which used ‘living laboratories’ in various

cities to extend the use of cargo bikes for light-

weight delivery and run consumer tests to in-

vestigate new applications for cycling. The proj-

ect also established the European CycleLogistics

Federation.

Good practice: Norway Post

Norway Post

operates a diverse range of ve-

hicles including over 600 EVs differentiated

according to distribution areas and tasks

Deutsche Post DHL has extended its fleet of al-

ternative vehicles by over 4,000 cars throughout

the past year, increasing the number to 10,500

today.

9 Gunnar Inderberg, Presentation at TRANSFORuM Urban

Mobilty Workshop– Oslo, 24 Oct 2013

Municipalities themselves can often use some alter-

native EFVs in their own fleets, or via contractors, for

example for street cleaning, garbage collection and

other functions. Waste gas is also sometimes used.

In some cities the authorities use this to make up the

majority of alternative goods and service vehicles.

The EU has adopted Directives and guidelines to sup-

port the promotion of clean and energy efficient road

transport vehicles, e.g. for green public procurement.

Some cities like Oslo have recently adopted procure-

ment rules that will require the use of EVs for trans-

port services to the municipality.

All in all, electric and other alternatively-fuelled dis-

tribution vehicles could contribute significantly to

provide “essentially

-free city logistics”

for at least

some parts of urban distribution and delivery. Howev-

er for other parts of incoming and outgoing transport

(long-distance without local sourcing or consolidation)

it is so far a less viable option. There are also obsta-

cles and challenges in terms of the reliability of EVs

and the associated infrastructure, and the availability

of spare parts and repair facilities. Some of these ob-

stacles may be temporary however, due to a still very

limited market.

There are dozens of examples of EFVs being used for

last mile distribution to inner city retailers, restaurants

etc. This is usually in connection with the operation

of a CLSC. Such systems were initiated in Dutch cities

like Nijmegen, and distribution systems using one or

more EVs exist in cities in Belgium, France, Germany,

Italy, Spain, Sweden and the UK, although the fleets

are generally small.

Bicycles

are emerging as an alternative distribution

mode for certain types of urban deliveries. Cargo bikes

have the potential to become a viable ‘last mile’ vehi-

cle, particularly in high density and congested areas.

E-bikes and tricycles have been introduced success-

fully in cities in Denmark, France and the UK and else-

where. There is an obvious opportunity to promote

cargo bikes for central urban areas, where car traffic

and truck deliveries are restricted (UN Habitat, 2013).

4.5.2 Goods consolidation

Increased consolidation of goods in city traffic is im-

portant to reach the goal. Consolidation makes it

possible to carry out urban deliveries with small vans

and in larger cities to fully load vehicles. Consolida-

tion thereby contributes to reducing excessive driving

and emissions, which is a problem especially in large

congested cities and urban areas (Allen and Browne,

2010). There are several ways to consolidate goods

in order to improve capacity utilisation and eventually

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save road space and emissions. The optimal methods

depend much on the size of the flows and on the type

of commodities and supply chains involved. Planning,

management and optimisation of good flows, is pri-

marily a matter for the industry (shippers, receivers,

carrier), operating under market conditions, and

some supply chains already practice highly efficient

consolidation on a chain or sectorial basis.

CLSCs (also known as Urban Consolidation Centres

(UCC)) are strategically located facilities used to en-

able the concentration of multiple deliveries of goods

and parcels into more consolidated flows, and there-

by limit the traffic and environment pressure in cities.

At CLSCs, streams of goods from multiple sources and

consignors are unloaded, consolidated and distribut-

ed to urban destinations (retailers, construction sites,

offices etc.). The consolidation allows reducing the

number of vehicles entering the streets and the num-

ber of deliveries each destination must handle. Often

less polluting and less intrusive vehicle types can be

used for the distribution rounds, for example EVs or

cargo bikes. CLSCs have been set up in an increasing

number of cities in Europe mostly with support from

public authorities.

Some supply chains (e.g. supermarkets) are already

operating with a high degree of consolidation and

optimisation internally. In such cases adding an extra

handling step (such as a CLSC), may increase costs

and reduce the efficiency of delivery. In some cases

CLSCs can help retailers save costs for personnel and

store space, while in others this is not the case.

It is notable that many city logistics initiatives have dis-

appeared or never made it beyond the experimental

stage once public subsidies are withdrawn. CLSCs are

therefore far from being a panacea for sustainable

low carbon urban goods transport, but are an option

that could play a positive role, not least to support the

introduction of low CO

logistics distribution options.

4.6 Cross-cutting building blocks

4.6.1

Street network and traffic flows

The core of the urban transport system is the street

network that carries the traffic of passenger cars, pub-

lic transport vehicles, bicycles, pedestrians and freight

and service deliveries. Through its control of the street

network, a city arguably has the most important key

to, at least potentially; influence both the composi-

tion, volume and ‘behaviour ‘ of cars, vans, buses and

trucks.

The street network layout and design distributes cer-

tain areas of surface between different road users. In

principle the use of cars in the city can be constrained

by limiting the number of arteries or space allocated to

them (for example via pedestrianisation or conversion

or roads to bicycle- or bus ways) while heavy traffic can

be directed as required (away from residential areas,

for example) by forced routes and area access bans.

Often access to core areas is restricted to certain

delivery hours to avoid congestion and/or local envi-

ronmental problems. Parking regulations are another

measure that can be used to limit or direct traffic flows

to a large extent, although a city administration only

directly controls part of the public parking, which may

be less than half of all available parking in a city.

Speed regulations and signalling are other measures

that influence traffic flows, often with the primary in-

tention to ensure maximum flow and enhance safety,

but these can also be used to control volumes that

Good practice: Växjö

The Swedish municipality

Växjö

has set itself

the goal of being fossil fuel free by 2030. The

city was part of the European project

TRAILB-

LAZER

that aimed to reduce freight emissions,

noise and delivery costs, while improving secu-

rity, reliability and time savings. As part of this

project Växjö has coordinated the distribution

of goods to the various municipal units. Among

other outcomes, this has resulted in decreased

emissions, reduced traffic volumes, increa-

sed safety and improved competition among

vendors.

Often such facilities are established at the initiative

of municipal governments, seeking to minimise the

negative impact of goods transport on the urban en-

vironment. There are however also many examples of

CLSCs operating on a pure commercial basis (e.g. to

serve airports or specialised markets).

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enter the city or to improve energy efficiency. Occa-

sionally cities would close off entire areas of the city

to normal traffic in the case of sports events, political

demonstrations, or environmental campaigns. Some

cities impose bans on cars during serious air pollution

incidents by for example restricting access alternating

between odd and even numbered licence plates, thus

effectively ‘halving’ the use of cars on a daily basis.

Thus the use of cars can in at least some areas of some

cities on a relatively short notice be halved or even

eliminated completely. Obviously cities could not ex-

ploit such options at random or so often that it would

disturb the normal function of the city for practical

reasons, but it is worthy of note that cities have such

strong means at their disposal through their ability to

affect local road use. This function can reduce car and

lorry volumes on the network and in the city without

necessarily utilising very advanced policy instruments.

More sophisticated measures to control both volumes

and types of vehicles entering the city include cordon

pricing, area-based charges and environmental zones.

Increasingly such measures are being used by cities to

regulate congestion, limit pollution or levy funds for

the city to improve infrastructure. In the case of road

charging it is possible (if national legislation permits) to

differentiate according to the types of vehicles, where

cities like Oslo and London have exemption for elec-

tric or other Ultra Low Emission Vehicles (ULEV). Envi-

ronmental zones set up in, for example, many German

cities have the primary purpose of keeping the most

polluting vehicles from sensitive areas of the city. In

London an Ultra Low Emission Zone (ULEZ), where

many vehicle types need to be zero emission capable

in 2020 is considered. Again the use of such instru-

ments is constrained by national and European legis-

lation, but limits can be strengthened over time to suc-

cessively phase out older generations of vehicles, as

more environmentally-friendly generations become

available or required. Enforcement of LEZs is an issue.

In principle one could imagine the introduction of envi-

ronmental zones in the form of ULEZ that would allow

only EVs or other zero emission vehicles (ZEVs) to enter.

Such zones could be gradually expanded as EVs or hy-

drogen vehicles became more widespread, and possibly

also connected with residential areas reserved for res-

idents with only ZEVs, or arterial roads where charging

would be costly or prohibitive for vehicles other than

ZEV. Today this is not an available option and the de-

mand for ULEZs or links is not evident from an urban

point of view, but it could be imagined as part of a future

scenario, where transition to a ZEV fleet is well in motion.

4.7 From strategy to action

This chapter has introduced what have been termed

the key building blocks and strategic areas for moving

transport in European cities towards achieving the ur-

ban mobility goal. These elements emerged from the

review of good practices and the stakeholder dialogue

as those areas where actions need to be taken in order

to significantly progress towards the goal in a way that

is consistent with sustainable urban transport policies

more generally.

The priorities and further specifications for action

within this broad field can, however, not be defined let

alone prescribed, at the general level. In the passenger

as well as in the freight area more or less emphasis can

be placed on the technology dimension or the activity

dimension. For each building block many different op-

tions (policies and measures) exist, as well as different

options for the level or strength of any such interven-

tions. It will largely be up to decision makers and gov-

erning bodies in each Member State and in each urban

area to conceive of specific combinations of appropri-

ate strategies and measures in order to fulfil the ur-

ban mobility goal in a consistent way that accounts for

broader conditions and local stakeholder preferences

and priorities.

Activating the building blocks and implementing ac-

tions in order to foster real transformation of the scale

required to reach the goal will necessitate a wider set of

strategic processes, frameworks and facilitating mech-

anisms. Stakeholders engaged in the TRANSFORuM

process in fact ascribed more importance to the identi-

fication and promotion of such conditions and mecha-

nisms (innovation, dialogue, collaboration, partnership,

financing, monitoring, and flexibility, for example), than

to further identifying and detailing specific transport

technologies, measures or interventions.

Therefore the following section will address the most

important conditions and enabling factors as they

were identified by stakeholders and interpreted by the

TRANSFORuM consortium.

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Governance frameworks for change

enhanced governance processes and frameworks to

help cities formulate strong visions, adopt effective

strategies, overcome barriers for action, and make

significant progress in the development and imple-

mentation of solutions.

Enhanced governance is about creating

an enabling

culture

for the activation of the urban mobility building

blocks discussed in chapter 4 and for the realisation of

the goal. It was argued that this is especially important

in the many cities where not much progress has been

made so far and where

a culture of change

is lacking,

as some stakeholders put it. Here the main prereq-

uisite is to create and stabilise a

political momentum

for change. But even in more advanced cities, broad

and stable long-term commitment backed by a broad

range of different actors is also needed to carry things

further.

5.1 Introduction

Chapter 4 identified building blocks that can help to

achieve the White Paper goal, but it goes without say-

ing that building blocks only become effective when

they are implemented. In TRANSFORuM’s stakeholder

debates it was frequently highlighted that the road-

map should emphasise and concentrate on ways to

ensure the introduction and implementation of more

transformative policies in cities, if the urban mobility

goal is to be reached. This chapter summarises the

debates and observations offered by TRANSFORuM’s

stakeholders in this regard. The main focus is on gov-

ernance frameworks and processes at the urban level,

because stakeholders generally found this level to be

the most important one for the needed transforma-

tion. The relevance of the national and European levels

of action is addressed more in the following chapters.

5.2 Governance processes and

frameworks

It was widely agreed among stakeholders that bringing

local actors together and ensuring that they are pull-

ing in the same direction is essential. This will require

5.3

Empowering cities

The most important actors for the realisation of the

urban mobility goal were seen to be city and regional

level stakeholders and decision makers. Even if gen-

eral technological developments, market conditions,

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and national policy initiatives strongly influence ur-

ban mobility, the empowerment of cities to become

drivers of transformation was seen as an important

issue. “National states are becoming irrelevant”, was

a provocative statement from one stakeholder, ”cities

are where the action is”, another noted. It was also

discussed that there is a dependency on the political

system in a country. The influence of the cities might

be less strong in countries with a highly centralised

political system, such as France.

Specific goals such as those in the White Paper can

serve as mechanisms to create focus and to monitor

progress towards a more sustainable situation. How-

ever it was argued that the goals should be debated

and adapted to the local context in every city in Eu-

rope. Goals need to be connected to relevant local

conditions and long-term visions in each city in a way

that makes the goals more meaningful to individual

cities in Europe if they are to help create momentum

for change.

major problem is to induce actions in cities not cur-

rently active in such networks. Could these cities be in-

spired to join if there is a commitment framework with

clear goals for urban mobility, such as the White Paper

goal? The knowledge and insight that could be derived

from learning from counterpart cities would in any

case be a clear benefit. One idea from a TRANSFORuM

workshop was to urge Mayors to form a club of city

“halflings” that agree to adopt the White Paper goal of

“halving” conventionally-fuelled vehicles by 2030.

5.5 Funding and planning

It was seen as important that all cities adopt and incor-

porate SUMPs, taking inspiration from European level

advice and guidance. Such a common framework will

enable all cities to work towards a common vision in

their own way. However, this planning is no guarantee

in itself that cities will actually adopt more challenging

long-term goals or implement significant measures in

practice. SUMPs must be realised through additional

incentives and initiatives if they are not to remain ‘pa-

per plans’. National frameworks and support activities

could for example be helpful to translate the Euro-

pean guidance to the national level, and to encour-

age and incentivise cities to take action. This should

include national incentive schemes and monitoring

activities.

Another important issue is how to generate funding

for change. Even if much can be done to improve ur-

ban mobility without necessarily building costly new

infrastructures; new sources of funding at different

scales can allow for new solutions and ideas to be

realised. In some cities, not least in Central and East-

ern European Member States, there is also an urgent

need for investments to renew out-dated or environ-

mentally inefficient systems. More diverse and acces-

sible sources of funding are needed. In larger cities,

congestion or road user charging is clearly a potential,

yet controversial, source of revenue. Other sources

of funding need to be developed and made available

to smaller, mid-size and even larger cities, for exam-

ple via PPPs; national incentives/grants for cities that

adopt ambitious SUMPs; European Regional funds;

and possibly even via unconventional or emerging

means such as ‘crowd funding’, for new mobility inno-

vations.

5.4 Integration and networking

Even if it is unlikely that there will be full consensus on

which actions to take in each city, it is most import-

ant that all local stakeholders become engaged in the

formation of visions and the creation of solutions to

urban mobility problems. This was seen as being im-

portant in all aspects of the goal, but particularly for

the city logistics element. Freight represents a signifi-

cant part of the impact of urban transport, but is often

not possible to ‘plan for’ in the same sense as passen-

ger transport, as it is impacted more by extra-urban

actors, organisations and activities. One TRANSFO-

RuM stakeholder suggested that the city governments

could work as a ‘catalyst’ supporting local initiatives,

more than as a regulator. In particular initiatives and

developments that are already underway; “bottom-up”

approaches need to be strengthened”.

Building networks of cities was seen as a promising

approach to create the needed political momentum.

Cities that share similar visions and goals, or even chal-

lenges for urban transport could benefit from joining

forces under a common commitment. A question is

if this can be done effectively within already existing

networks (such as POLIS, EUROCITIES, ICLEI, etc.) or

if new networks with a specific focus on the commit-

ment to urban mobility goals should be envisaged. A

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Furthermore, new and integrative business models

deserve stronger support; this was an idea that was

frequently mentioned by stakeholders. Flexibility is

an increasingly important factor in modal choice, es-

pecially for younger people in urban areas. More and

more people strive for such flexibility by using a mix-

ture of public transport, cycling and walking, and oth-

er mobility forms that are supported by new business

models. That such models may be very important for

progress towards the goal can be illuminated by the

example that car-sharing schemes contribute signifi-

cantly to the fleet of BEVs in some European cities

through schemes such as ‘car2go’, ‘drive-now’ or ‘Au-

tolib’’. Frameworks to promote such options should be

explored and developed further to make them more

accessible, integrated and user-friendly. Private initia-

tives and resources mainly carry out these activities.

The city can take the role of catalyst to yield these

’low-hanging fruits’, for example by supporting experi-

ments and creating venues for entrepreneurs to meet.

5.6 Tracking progress in a

transparent way

It was emphasised in the TRANSFORuM workshops that

monitoring progress is an essential part of sustainable

and efficient urban mobility management. It is also

deemed important to keep track of progress towards

the goals, and learn from results, evaluations and even

ideas that have not been successful. Standardised mon-

itoring would make it possible to compare and bench-

mark within and between cities, if similar indicators

were monitored and evaluated. No common set exists

today, but various options for indicators and monitoring

frameworks are being explored in a range of European

projects and studies. Some Member States have urban

or regional transport monitoring frameworks, but there

is a need for a common framework as well as guidance

on how cities can develop their own cost effective and

useful monitoring systems.

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Example pathways towards the urban mobility goal

mote sustainable transport. The city in pathway “Vala-

nov”, however, is just beginning to frame its transport

policy in this way and as such is considered a ‘starter’

city. The three pathways are to some extent moulded

over the three strategic areas introduced in section 4.

Waterberg is strongly heading for high shares of EVs

and Viga is trying to influence a more balanced modal

choice. However, rather than a separate pathway for

the urban freight transport area, we integrate this as-

pect in each of the three cases. The main characteris-

tics of the three cities are summarised in the following

table:

Valanov

‘Starter‘ pathway: Developing

enabling conditions to ‘catch-

up’ with frontrunner cities

Approximately 250, 000

inhabitants

No University, regional cultural

centre, ageing population, no

car industry, medium density

Border city; very hilly

Poor bus system, no cycle

lanes

53% drive/25% public

transport/2% cycle/ 20% walk

In this chapter, we formulate three different specula-

tive urban transformation pathways towards the 2030

targets of the goal, inspired by the strong stakeholder

views that there is a need to take into account in the

roadmap the widely differing conditions for reaching

the goal across Europe.

Each pathway – or fictive city – is described for a spe-

cific urban context that in some respects resembles

ones existing in Europe. The fictive cities in pathway

“Waterberg” and pathway “Viga”, are already advan-

cing to a certain extent in terms of activities to pro-

Waterberg

Key strategy

Technical substitution:

“technophilic” approach

Character-

istics

Approximately 500,000

inhabitants

University, local car

manufacturer, low urban

density

Hilly, large lake

Transport

system

Modal split

(passenger)

Good public transport,

tramway, cycling network, EV

charging points

65% drive/10% public

transport/10% cycle/15% walk

Viga

Modal sharing:

Reduce use of private cars

Approximately 900,000

inhabitants

University, local car

manufacturers, fairly high

urban density

Flat; sprawling

Good public transport, metro,

cycling network

45% drive/20% public

transport/20% cycle/ 15% walk

Table 2: Main characteristics of the three fictive cities – Waterberg, Viga and Valanov

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The differentiated fictive pathway approach has been

selected for several reasons.

First of all, we use this approach to explore the impli-

cations of diversity among the 800+ cities that make

up Europe. Of course, many more than three different

types of cities exist and every city has its own unique

context, but we found it manageable yet useful to

elaborate three indicative cases, as partly represent-

ing ‘extremes’ in conditions and approach.

Secondly this allows for exploring how, despite differ-

ences, the strategic ‘building blocks’ for action, and

the enabling factors identified in the previous chap-

ters can be applied in different ways, and in multiple

combinations, to take account of this diversity, and yet

reach towards the same goal.

Thirdly stakeholders who willingly joined in the exer-

cise of exploring and animating fictive cities found the

approach useful, and through this process, found a

quick route into debating the strategic scope for fulfill-

ing the goal. Paradoxically, perhaps, the fictive setting

actually contributed to enter realistic deliberations of

how to fulfil the goal. We hope it can serve a similar

purpose here.

Each pathway description follows the same format:

After a brief introduction, an outline of the ‘problems’

encountered in the respective city, the ‘policies’ it has

decided to adopt, and the ‘politics’ that has character-

ised its process of deliberation and decision making

are discussed, reflecting internal as well as external

factors. For the two ‘advancing’ cities, speculative

benchmark targets on the way towards the 2030 goal

are also included, indicative milestones are offered for

the ‘starter’ city.

6.1 Technology substitution

pathway: Waterberg

The city of “Waterberg” has embarked on a pathway

towards an interpretation of the goal that mainly em-

phasises ambitious technological advances. The pri-

mary element of such an approach revolves around

the idea of substituting (i.e. replacing) conventional-

ly-fuelled vehicles with BEV and PHEVs (Figure 4).

The city of Waterberg has adopted what academics

from the local university call a “technophilic” approach

to tackle their mobility problems. This term denotes

trust in the ability of science and technology to deliv-

er long-term solutions to most problems. In fact, the

report that kick-started the strategic initiative of the

city had the title

“From problems to opportunities.”

This indicates that every challenge bears the potential

to spark innovation and, in turn, to trigger economic

growth. The core of Waterberg’s system of innova-

tions is EVs. Individual car ownership is considered

sacrosanct in Waterberg, partly due to the long-stand-

ing presence of

Clarvil

in the city, a car manufactur-

er that provides a significant number of local jobs.

Car-sharing, public transport, cycling and walking are

also considered as important complimentary aspects

6.1.1 Waterberg in 2014

With its 500,000 inhabitants Waterberg is surrounded

by picturesque scenery – rolling hills whose slopes con-

tinue into a sizable lake (hence the name). It is there-

fore located in a large geomorphological sink, which

tends to prevent pollutants from escaping this natural

trap, especially in so-called “inversion” weather condi-

tions, which occur frequently in this part of the country.

2014

Figure 4: Imagined pathway for fictive city “Waterberg”

2050

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Emissions from cars, especially diesel cars, are the main

culprits of this situation, which causes severe respirato-

ry problems for large sections of the population. Also

the historic buildings in the city centre suffer visibly

from damages caused by emissions (and vibrations) of

cars.

The “Breathe

again”

promise of the leading political

party is therefore often mentioned as an important

factor for their success in the recent local elections.

This official pledge for action to improve the local

air quality correlates with national commitments to

reduce the CO

emissions 60% on 1990 levels over

the next 35 years; a goal which can only be reached

if the transport sector delivers significant reductions.

In addition, the population of the province in which

Waterberg is located is known for its pro-environ-

mental attitudes, which explains the regional govern-

ment’s recent and widely-supported decision to aim

for energy autonomy by 2050. Given the availability of

hydro energy in artificial lakes between Waterberg’s

hills and thanks to the vast agricultural areas in the

flat hinterland, this aim is not entirely unrealistic. This

pro-nature position of many people in the area does

not, however, translate into enthusiasm for cycling or

walking as a means for their daily commute. Inclement

weather and the hilly topography are often cited as

reason for this.

The majority of citizens in and around Waterberg are

highly educated. Generally speaking, Waterbergers

tend to be quite technology savvy with high adoption

rates of smartphones, “intelligent buildings” etc. It is

therefore not surprising that the recently launched

Smart City initiative – an element of the “from prob-

lems to opportunities” strategy – of Waterberg’s ad-

ministration enjoys a very positive reception from the

local media and citizenry. Many people hope that re-

lated efforts would contribute to a reduction of the

city’s congestion levels, which can become consid-

erable during rush hours. The relatively low urban

density allows the ‘pain-boundary’ of the congestion

problem to be pushed a few years into the future be-

cause space has recently been allocated for a new

highway-bypass around the city. The situation on a

frequently clogged-up thoroughfare across a residen-

tial area near the inner city is expected to be relieved

soon with the opening of a 500m long elevated road

over a notorious intersection. During the planning

phase of this vertical bypass, residents protested mas-

sively against the expected ‘noise avalanche’ in front of

their windows. The local government countered with

the promise to boost the introduction of silent cars.

There are several favourable conditions to electrifica-

tion of vehicles at the national level. Hydro power and

biomass have already been mentioned. But certain

political incentive structures support the same goal.

For example, the national tax rates on buying and

owning ‘conventionally-fuelled’ cars are high. Taxes on

EVs, however, are very low; even to the extent that re-

lated policies have been challenged at the European

level as hidden subsidies. In any case, since econom-

ic and practical considerations are the most decisive

factors influencing people’s purchase decisions, the

current national framework has already stimulated a

ten-fold increase of EV sales over the last five years.

Despite noteworthy socio-economic differences with-

in the city, the majority of the households can afford to

buy a car. Given the powerful incentives, the total cost

of ownership of EVs is as affordable as ‘conventional-

ly-fuelled’ cars.

6.1.2 Policies

For many of the abovementioned reasons, the elec-

trification of Waterberg’s vehicle fleet was communi-

cated as ‘natural’ solution. As part of the “from prob-

lems to opportunities” approach, an “EV FORUM” was

created. In the beginning it served as communicative

platform for stakeholders in the city and also included

some politicians from the national level. Meanwhile, it

has a steering committee that is strongly linked with

the city administration. The committee coordinates

the activities to boost electric mobility in Waterberg. A

joint communication strategy was approved. It argues

that electric mobility would please the residents along

the new flyover, solve air quality problems, boost the

growth of Clarvil’s recently introduced eCar series,

provide research opportunities for scientists at the

Universities’ engineering departments, help achieving

reduction targets and reduce the dependence

on oil imports. In addition, they would expose Water-

berg to international media attention for its lighthouse

character. In a few years, it might even attract consid-

erable numbers of affluent technology-tourists, con-

ference attendees and educational site visits.

The EV FORUM further pushed for incentives to make

EVs an affordable alternative to ‘conventionally-fu-

elled’ cars. Increasingly attractive legal frameworks at

the national level have regularly stimulated these local

initiatives. Such incentives include:



Free access through toll cordons for EVs;



Free access to ferries;

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

Exemption from VAT;



national fund that provides grants and advice for pi-

lot and demonstration projects that encourages new

and future-oriented sustainable mobility solutions.

Importantly, the national government also has provid-

ed the legal conditions for cities to take much more

ambitious actions on a voluntary basis. Since the last

elections, two years ago, Waterberg has seized these

opportunities by introducing:



complete exemption for EVs from local parking fees;



Access to bus lanes – even during rush hours.

In addition, together with the EV FORUM the city has

joined forces with an advertising company to build

hundreds of EV charging points throughout the city.

The funding arrangement behind this is simple: The

company pays for the infrastructure in exchange for

the right to display advertisements on each charging

station – and on major other billboards. Depending

on this arrangement’s success, plans are under way

to lift it to the next smarter level in the coming years.

Each charger would then be able to recognise the car

and its user’s driving patterns (allegedly without utilis-

ing the driver’s identity) and display tailored advertis-

ing. Data protection issues have yet to be addressed

for such plans.

2020

20%

2025

30%

2030

60%

2010

Share of full EVs or

hydrogen FCVs in

mainstream new car

market

Funding/financing

2015

National public

fund

Local public

funding scheme

for private

initiatives of

good ‘green’

concepts

Every new

house/building

has a charging

point

Continuation of

Continuation

funding schemes of funding

schemes

Continuation

of funding

schemes

Roll-out of charging

points

One private

charging point

for every EV

and some

public charging

stations

20% in public

transport fleet,

80% local

health services

and 30% waste

collection

Share of transport-

related public

procurements that

require ‘green’

fleets (EVs or other

alternative fuels)

ICTs supporting EVs

30% in public

transport fleet,

90% local

health services

and 30% waste

collection

More use of ICT

for efficiency

improvement

in the freight

sector

50% in public

transport fleet,

100% local

health services

and 70% waste

collection

80% in public

transport,

100% health

services and

100% waste

collection

100% in all

local sectors

A multimodal

transport

information,

management

and payment

(MIMP) system

50%

Share of urban freight

services delivered by

EFVs

Indirect measures

High fees

and taxes on

Increasing

parking and toll

cordon fees for

‘conventionally-

fuelled cars’ in

the city centre

Table 3: Milestones adopted in Waterberg

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The city itself is planning to phase out convention-

ally-fuelled vehicles from its own fleet over the next

ten years, when the existing leasing contracts and

tenders expire, and to gradually replace them with

‘green’ vehicles. Part of the bus fleet is also expected

to run on electricity in near future. The first two such

vehicles have recently been introduced. One of them

has massive on-board batteries and can easily propel

the bus on one full route from the depot and back. At

the end of this circuit it has to stop for two hours any

way according to the current timetable. Alternative

fuels, and in particular electromobility, are becoming

increasingly used in urban freight in Waterberg. In-

creased driving range and increased load capacity of

vehicles in the next few years thus represent a signif-

icant potential for emission cuts. The city is lacking in

the necessary means to enforce freight operators to

follow suit. Together with the EV FORUM Waterberg

has therefore initiated a network of freight operators,

where barriers and opportunities are discussed and

aimed at being resolved. An incentive for freight oper-

ators is that the city offers access to extended delivery

times to EFVs (today, delivery time in the city centre is

restricted to early morning and evenings).

Moreover, given the increasing recharging infrastruc-

ture, the national postal service has chosen Waterberg

as a pilot case for the electrification of its vehicle fleet.

At the moment, 40 hand-pushed but electrically-sup-

ported carts for mail workers are in operation, 20

mail delivery bicycles and 10 vans. Once the question

where and how these vehicles can be recharged has

been answered, the postal service aims to go 100%

electric in about 5 years. Also other delivery compa-

nies are experimenting with similar strategies and

hope to substitute their fleet of – mostly diesel-fuelled

– vans and lorries with EFVs.

The city plans to further improve the infrastructure,

both with regards to improving the bicycle net-

work, stimulating increased use of e-bikes and more

charging points, in particular quick chargers.

Together with the EV FORUM Waterberg has devel-

oped and adopted a mini-roadmap with specific mile-

stones (see Table 3).

As Waterberg is a high-tech city, there could be more

ITS, or new techniques such as GPS data collection, etc.

opposition, as EVs are a concept that all the political

parties can accept, the EV FORUM is a solid integra-

tive platform. However, as bus lanes are increasing-

ly congested due to the many EVs, opposition has

arisen. Some members of the local “Alliance for Na-

ture” (which is actually integrated into the EV FORUM)

regularly raises the issue that EVs will not solve, and

may possibly even worsen, congestion levels and that

the liveability of the city continues to suffer from any

vehicles’ high demand for space, both for roads and

parking. Recently, similar concerns are raised by Wa-

terberg University’s student union, which fears that cy-

clists who used to move relatively freely on bus lanes

will soon be in danger of thousands of silent “stealth”

cars sneaking up on them from behind. Moreover,

there are certain issues regarding calls for EV fleets

in public procurement processes due to technology

neutrality. There are local pressures on the national

government to ensure that tax exceptions and other

measures will also be granted for larger vehicles such

as buses. This is an important factor for the approval

of the new procurement rules in the city council, as

otherwise it is expected that the budget will increase,

creating conflict with other sectoral interests.

6.1.4 External factors

While politicians and stakeholders in the city have pri-

marily promoted several of the measures, the technol-

ogy substitution pathway depends very much on mar-

ket developments (e.g. technological innovations) and

national framework conditions (e.g. vehicle and fuel

taxation). At national level tax incentives and exemp-

tions from charges have been effective in providing

the additional boost needed for mainstream consum-

ers to choose EVs. At local level access to parking and

provision of infrastructure are important measures.

However, such local incentives often require multilev-

el agreement, as parking regulations at national level

have to allow for exemptions for EVs, although imple-

mented locally. Currently, the Treasury is likely to op-

pose any further reform that involves loss of income

(i.e. exemptions from taxes).

Also EU legislation is important in this regard. For exam-

ple, the city has discussed introducing electric-drive-on-

ly zones; however, there is an on-going discussion at

local and national level as to whether EV zones are in

conflict with EU legislation on non-discrimination of

technologies. No political party has therefore promised

to implement this measure, but the small anti-EU party

is experiencing increased voter support, arguing that

the EU does not respect subsidiarity and should stop

limiting Member States in supporting certain technolo-

6.1.3 Politics and governance frameworks

In Waterberg there is already a strong commitment

to foster electric mobility. There is not much political

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gies. This party is in favour of steering the tenders in the

direction of EVs; thereby also supporting the local car

manufacturer and local jobs, such a choice is disputed

due to technology neutrality.

6.2 Modal sharing pathway: Viga

The city of Viga has embarked on a pathway towards

an interpretation of the goal that mainly emphasis-

es changes in the use of vehicles. In Viga, the focus

is on shifting away from strong dependence on indi-

vidually-owned and -operated passenger cars, vans,

and trucks towards more reliance on other forms of

access, transport modes, and vehicle usage patterns

(see Figure 5).

The strategy involves measures for compact urban

development, promotion and integration of public

transport, cycling, walking, car-sharing, and ride-shar-

ing – and measures to manage urban freight and de-

livery flows. These measures continue and reinforce

Viga’s already established practices in those areas, but

combine them and take them to higher levels. Cleaner

vehicles and fuels are also promoted as part of the

strategy but the city is more focused on the demand,

behaviour, and culture of mobility, which it aims to

influence and optimise from an urban quality of life

perspective.

increasingly between sub-centres and areas across the

wider region. Central city dwellers and students appre-

ciate the urban lifestyle and amenities but also demand

high mobility and independence. Travel for leisure,

tourism and events is on the increase, much of which is

undertaken in individual cars, rentals and taxis, in addi-

tion to tour buses. Viga has an old metro network that

is comparatively small and often crowded.

Diverse fleets of trucks service the retail sector that is

relatively decentralised across the city, but these are

vastly outnumbered by streams of vans providing ‘24-7

door-to-door’ deliveries and home services purchased

online by a population enjoying near 100% coverage

of high-speed broadband access. As a consequence of

these trends, Viga is ever more congested on both the

road and rail networks, as well as experiencing levels of

air pollution and noise that exceed health and environ-

mental standards. Its vulnerability to steeply rising fuel

cost sometimes appear in the Lord Mayor’s nightmares

of a future ghost city.

The market for alternatively-fuelled cars and trucks is

currently very small, as they are not economically com-

petitive. There are two car manufacturing companies lo-

cated in the Greater Viga metropolitan region but they

do not offer non-conventionally-fuelled models. The

electricity supply in the region is mostly coal-based and

is not controlled by the city.

The city and its surrounding region have relatively mod-

ern road, rail and pathway networks that are under-

going further expansions, but each new extension is

quickly expands to capacity in peak hours. The costs to

build and maintain further new infrastructure is rapid-

ly rising because of the competition for space and also

for the need to build in resilience to climate change, in-

creasingly severe weather events and natural disasters.

6.2.1 Viga in 2014

About 900,000 people live in Viga. The city is charac-

terised by relative affluence and significant growth,

but despite long standing urban planning policies to

accommodate expansion and agglomeration, the city

currently faces a broad range of challenges from the

associated transport and mobility pressures. Large

flows of commuters travel into the city daily, but also

2014

Figure 5: Imagined pathway for fictive city “Viga”

2050

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It has been realised that Viga cannot accommodate fur-

ther growth in citizenship, employment, commerce and

tourism if it continues to rely predominantly on conven-

tionally-fuelled passenger cars, vans and trucks. Yet it is

also realised that the city cannot maintain its attraction,

economic performance and quality of life either if it fails

to provide frequent, flexible and smooth mobility for

the majority of the population and business. In addi-

tion, current transport patterns represent the clearest

challenge to fulfil its commitment to become a low car-

bon city as part of an international network of frontrun-

ner cities. A widely shared long-term strategy is needed

to overcome these challenges. However, it has long

been a problem for the city’s different municipalities,

jurisdictions and different public transport companies

to come together and collaborate on devising a coher-

ent strategy on urban mobility.

capsulated many of the outcomes of these processes,

such as goals, strategies, indicators and outreach.

The process identified the following nine packages of

measures that have been adopted as part of the long-

term strategy and plan:

congestion charging scheme

with two rings,

initially with payment for all vehicles only in morn-

ing and afternoon rush hours and with exemptions

for public transport, and rebates for registered

car-sharing members, and EVs (free if combined).

Net income is to be recycled for transport projects

in support of realising the SUMP.

comprehensive parking strategy

including

introducing parking fees along the public road

network, charging residents for parking permits,

and taxing free private parking. Net income from

parking fees is recycled for transport projects in

support of realising the SUMP.

3) Access restriction zones

for the whole city area

based on a staged model for the concept of

con-

ventionally-fuelled, owned and operated vehicles.

The most restricted area in the city centre is to-

tally car free; the second most restricted areas

only allows EVs operating in a certified car-sharing

scheme; a third level areas allow only shared cars,

but even conventionally-fuelled ones; a somewhat

similar zoning applies to freight with privileged ac-

cess for vehicles travelling from the CLSC, and/or

EFV (see measure 8).

A comprehensive

public transport programme

including an integrated zoning and ticketing sys-

tem, a joint smart card/mobile phone payment

platform, a coordinated and a prioritised invest-

ment strategy for public transport infrastructure

(including 4 BRT lines), supported by a common

strategy for bus right-of-way. There is joint goal

that all public transport vehicles will be CO

-free

(meaning electric with green certificates) before

2030. An extension of the metro is planned but

will take 10–15 years before it is fully implemented.

location development policy

restricting the

development of housing and office buildings

above a certain floor area to zones within 500m

of rail or metro stations. Some exemptions are

allowed, but these are gradually phased out over

the coming decades. Location away from such

zones requires that the property owners establish

and maintain approved mobility management

services or pay higher property taxes.

6.2.2 Policies

In 2014 Viga successfully formulated a joint vision and

a long-term strategy for urban mobility in support of an

economically, socially and environmentally sustainable fu-

ture towards 2030 and 2050. The strategy incorporates

an interpretation of the European Transport White Paper

goals for urban mobility by aiming to halve the use of con-

ventionally-fuelled, owned and operated vehicles by 2030.

The strategy was developed through the following efforts:



broad collaborative effort involving all municipal-

ities and jurisdictions in the city region, concluding

with a governance reform which created a unified

strategic collaborative framework with harmonised

rules, procedures, goals and funding schemes;



wide stakeholder engagement process, including

all stakeholder groups with an interest in mobil-

ity including providers, organisers and innovators

of transport and mobility services; businesses in-

volved in urban commerce, freight and logistic ser-

vices; representatives of citizen organisations and

other NGOs; and many others – from school chil-

dren to marketing companies to rock bands;



extensive analytic effort involving universities,

research centres and private consultants to im-

prove the data and knowledge base – in particular

for urban freight – and to review and prioritise po-

tential policy measures to fulfil the ‘halving’ goals.

A joint SUMP process provided a procedural frame-

work for connecting the three abovementioned ef-

forts and the subsequent joint SUMP document en-

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programme to support and promote

car-sharing and ride-sharing

via preferen-

tial treatment in congestion charging, parking;

access restrictions, and urban development

schemes. There are subsidies for younger cit-

izens (under 35) joining a car-sharing scheme.

The two local auto manufacturers are conduct-

ing social experiments with new mobility ser-

vices and joint ownership models as alterna-

tives to conventional car ownership; these kinds

of experiments are supported city’s research

programme. Car-sharing is strongly linked with

public transport; a smart mobility card allows

for access to public transport, car-sharing,

bike-sharing and taxis.

7) A cycling and pedestrian policy

that provides

extensions to and ultimately completion of the

city-wide network of pathways, including 25 bi-

cycle bridges and flyovers, 10 regional super cy-

cle highways and three covered (all year) cycle

routes though the city. Extensive cycle parking

facilities and (advanced e-bike) sharing services

at all railway stations will be offered alongside

free bikes on all trains and even dedicated ‘cy-

cle buses’ in the BRT corridors. Students are to

be offered a 50% local government subsidy if

they purchase an e-bike with a green certificate

and forgo obtaining a driver’s license.

The

city logistics package involves

the con-

struction of three CLSCs for different types of

freight going into the city. The CLSCs offer a

range of logistics services to users, operating

under commercial conditions; CLSC vehicles

have privileged access and curb side rights in

the city. There is an authorisation scheme for

van delivery services that privilege companies

using EVs and green certificates.

2010

(Baseline)

2015

Stabilise modal share

of private cars

High quality public

transport 500m away

from 90% of dwellings

2020

Modal share of private

cars is below 35%

High quality public

transport 400m away

from 90% of dwellings

2025

Modal share of private

cars is below 30%

High quality public

transport 300m away

from 90% of dwellings

2030

Modal share of private

cars is below 25%

High quality public

transport 250m away

from 90% of dwellings

Private

car

Quality

of public

transport

Car-

sharing

Cycling

Car-sharing option less Car-sharing option less Car-sharing option less Car-sharing option less

than 500m away from

than 400m away from

than 300m away from

50% of dwellings

60% of dwellings

75% of dwellings

90% of dwellings

Cycling network

increased 10% from

baseline

60% of new offices and

housing located less

than 500m from rail/

metro station

20% of inhabitants

under 35 subscribe to

car-sharing or have no

driver’s license

10% of retail uses

CLSC; 5% delivered by

‘CO

-free’ vehicle

60% of public

transport fleet is

‘CO

-free’

Cycling network

increased 15% from

baseline, 5 bridges 3

super links complete

70% of new offices and

housing located less

than 500m from rail/

metro station

40% of inhabitants

under 35 subscribe to

car-sharing or have no

driver’s license

15% of retail uses

CLSC; 10% delivered

by ‘CO

-free’ vehicle

75% of public

transport fleet is

‘CO

-free’

Cycling network

increased 20% from

baseline, 10 bridges 6

super links

80% of new offices and

housing located less

than 500m from rail/

metro station

60% of inhabitants

under 35 subscribe to

car-sharing or have no

driver’s license

20% of retail uses

CLSC; 15% delivered

by ‘CO

-free’ vehicle

90% of public

transport fleet is

‘CO

-free’

Cycling network

increased 25% from

baseline, all bridges

and super links

90% of new offices and

housing located less

than 500m from rail/

metro station

80% of inhabitants

under 35 subscribe to

car-sharing or have no

driver’s license

25% of retail uses

CLSC; 20% delivered

by ‘CO

-free’ vehicle

100% of public

transport fleet is

‘CO

-free’

Access

to public

transport

Driving

Urban

logistics

Public

transport

fleet

Table 4: Milestones adopted in “Viga”

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9) Infrastructure for EV charging

is to be sup-

ported by, but not forced by the city. The pref-

erence is to The city has facilitated the deploy-

ment of pick up point network; the plan is to

allow authorised delivery services to use these

points. The city has established the Urban

Freight Partnership as a forum for collabora-

tion. mostly let market actors experiment and

offer solutions. To get any kind of support from

the city a charging system has to be based on

green certificates. The city will procure EV mo-

bility for its own transport on an ad hoc basis.

These are the packages of measures that were adopt-

ed in the context of the city-wide collaboration and the

SUMP. Adoption of additional packages and adjust-

ments to the existing ones are foreseen in the future,

with major revisions at regular (5-year) intervals, as

deemed appropriate following review. Indicators and

milestones for progress have been adopted.

Viga in 2014 has adopted a mini-roadmap with mile-

stones along on the way towards the goal as shown

in Table 4.

as provider of fast, comfortable and flexible mobility.

This is why this city puts so much emphasis on this al-

ternative in its pathway. Car-sharing may however also

have its downsides and limitations; first of all it may

compete with public transport or cycling; with back-

to-base models, as opposed to point-to-point shar-

ing, car-sharing schemes also do not offer exactly the

same flexibility as car ownership at the current time,

but this will change as demand increases. It may also

in some circumstances act more as a bridge towards

full car ownership than de-escalation from it. Howev-

er, pursuing the modal sharing approach towards the

‘halving’ goal will put a pressure on the local political

system; a strong charismatic leader and a strong local

culture (e.g. citizens depicting themselves as ‘mobil-

ists’ rather than ‘car owners’) may be important ele-

ments. Also the wider (national) political and cultural

framework may be important.

In terms of the individual packages and measures in

the city’s programme,

congestion charging

is contro-

versial. It is a potentially powerful tool to influence the

use of cars as well as to generate revenue to support

alternatives. It is regularly assumed that a congestion

charging scheme is more effective and acceptable if it

is a part of a wider package that also provides alter-

natives (public transport etc.). However, Viga struggles

to achieve acceptability. Congestion charging can be

introduced as there is national legislation that endors-

es it, and strong evidence from research that it is so-

cio-economically efficient. Viga has already conducted

a trial where the advantages became evident for many

citizens and businesses.

City logistics

is one of the measure packages where

local action and agreement is particularly important. In

many cities urban freight policy has a mostly reactive

approach, emphasising restrictions for noise or safety

reasons only. Viga has adopted a proactive approach,

where the different actors (e.g. retailers, forwarders,

carriers and the municipality) formed a partnership

that works together to identify solutions to local con-

flicts and also plans ahead of major events. It start-

ed out as a relatively weak, heterogeneous network.

Through different efforts it has managed to become

an important advocate for radical visions and policies.

In Viga, local stakeholders have not driven this radical

transition alone, but their support was necessary in

order for it to occur.

6.2.3 Politics and governance frameworks

To be able to implement the plan and make actual

progress towards the goal there is a number of po-

litical factors and wider governance issues that are

important for the city. Some political factors concern

the internal relations within the city while others relate

to outside actors, higher levels of decision making or

overarching framework conditions.

First of all it is difficult for Viga to create and maintain

political consensus

and wide stakeholder support

to such a radical goal that challenges the role of the

conventionally-fuelled car in the urban economic sys-

tem and everyday life of citizens, given the populari-

ty of cars. To maintain the vision of a modal sharing

approach towards halving the amount of cars, there

first of all has to be credible and attractive alternative

forms of access and mobility available or in the pipe-

line. But available alternatives may not be equally ap-

pealing to all, and the drawbacks may appear more

evident than the benefits to many. In this city a wide

majority were in support, but it is fragile.

The

sharing of cars

is a promising alternative, since

it does not fundamentally alter the ‘gestalt’ of the car

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6.2.4 External factors

While Viga’s pathway is mostly focused on strategies

and measures that can be pursued at the local level

by the city itself, there are nevertheless many external

factors that would be important for the feasibility and

success of the modal sharing approach.

As already mentioned,

legislation

allowing for mea-

sures such as congestion charging, access restrictions

zones, parking charges, and possibly preferential

treatment of ‘green’ vans, trucks and cars within vari-

ous programmes is a necessary precondition. The city

was able to secure and influence part of the revenue

for urban transport investments, including the cycling

infrastructure projects.

Another more general aspect is the

funding

for in-

vestments in alternative modes and subsidies for var-

ious incentive schemes. Investments in urban trans-

port systems (e.g. increasing public transport service

level or building infrastructure for ‘green’ modes)

influence travel behaviour and attract travellers, but

require large sums beyond what the city budget

can sustain. Even with some income from conges-

tion charging, tolls and other funding sources such

as national government support, there is a need for

private resources. The national government provides

transfers to cities that adopt particularly visionary or

effective SUMPs. It has, however, not secured funding

from the European structural funds or loans from the

European Investment Bank (EIB) that are available on

similar conditions for other cities.

Car-sharing

may to a large degree be seen as self-fi-

nancing or market driven. Cities can support it by pro-

viding parking spaces and various forms of preferen-

tial treatment to, for example, shared EV systems, and

other subsidy schemes as adopted by the city. This

may be an area that is not as dependent on outside

factors (apart from marketisation of software and oth-

er technologies that facilitate its operation) as some

of the others and could be driven by more bottom-up

processes and price mechanisms. Therefore Viga has

not been able to ‘force’ such a strategy towards a spe-

cific goal, but is contributing to facilitating car-sharing

in different ways. The national government also sup-

ports the proliferation of the car-sharing companies

by revising company car taxation rules that tend to

favour the conventional car.

Finally cities to some extent depend on and

compete

with each other.

Radical strategies with substantial

interventions to reduce individual vehicle use without

similar measures that are taken in other cities accrue

considerable risks. If the strategy will ‘scare’ citizens

and business away, the city may suffer and lose in

terms of competitiveness and quality of life. On a lo-

cal scale, strict location policies, parking restrictions

and other measures may induce shoppers to visit

other neighbouring cities instead. Such anxieties (real

or imagined) often discourage city governments to

pursue policies significantly more constraining than

others. In the case of Viga, the contemplation was

the opposite: exactly through the shift away from car

dependence the city thrives and prospers, and expe-

riences an improved quality of life. Yet it is to some

extent a gamble. Cities would be much more likely to

continue to pursue such strategies if they could do so

jointly, partly to lower the risks of economic backlash,

and partly to allow cities to learn from each other.

6.3

‘Starter’ pathway: Valanov

The following account describes the situation of and

measures being undertaken in the city of “Valanov”.

The city has embarked on a pathway towards an inter-

pretation of the goal that takes into consideration its

context as a smaller and less affluent city.

6.3.1 Valanov in 2014

Valanov has a population of 250,000. Its main charac-

teristics are an old but heavily utilised public transport

system, a high number of private cars and a limited

amount of walking and cycling, partly because the

hills around the city deter people from active travel.

Therefore, incremental changes are planned in the

city, mainly to improve the efficiency and maintain the

patronage of public transport, to improve the infra-

structure for walking and cycling and to promote al-

ternatively-fuelled private cars amongst residents and

commuters alike.

This strategy involves measures to limit sprawl outside

the city’s core area, efforts to integrate multimodal

journey management, as well as activities to manage

urban freight and delivery flows more efficiently. Most

of these measures are relatively new to Valanov and

require not only investment from the city authority

but also public buy-in. Also new PPPs will be required

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to facilitate and fund efforts to grow momentum for

modal shifts and to pilot alternatively-fuelled vehicles.

In order to benefit from international exchange, Va-

lanov actively seeks involvement in various European

projects to learn from and share experiences with

other cities across the continent. It also realises that

a truly complex challenge requires a truly systematic

approach and therefore, the city council recently ad-

opted a resolution to develop a comprehensive SUMP

according to the established guidelines of the Europe-

an Commission.

ing. The city is a regional centre for culture, but only

attracts limited visitors on the back of these cultural

offerings. Therefore, Valanov is pursuing a policy to

promote jobs and growth in the city centre to encour-

age younger citizens to stay in the area.

Being close to an international border, the city also

receives significant throughput of both national and

international passenger and freight traffic and mea-

sures are being discussed to manage the environ-

mental problems caused as a result of this location.

The majority of freight transport arrives via truck, al-

2014

Figure 6: Imagined pathway for fictive city “Valanov”

2050

6.3.2 Problems

Following a transition to a market-based economy,

Valanov has experienced significant growth in private

car ownership and use over recent decades and suf-

fers consequently from high levels of congestion, air

and noise pollution and inadequate parking provi-

sion. Walking and cycling infrastructure is limited and

somewhat poor where it does exist. Public transport

systems are old and underfinanced and public per-

ception regards transit as an outmoded and old-fash-

ioned means of travel. The city has no light rail system,

but its ageing bus fleet is made up of both trolleybus-

es and regular buses. Valanov’s taxi fleet is also run

privately and for most companies the cars are very

old and run on petrol. Increasing suburbanisation and

sprawl of residential areas over the past 30 years has

led to a dispersed wider urban area, which makes it

difficult for public transport routes to cover it ade-

quately. Spatial development management is a prior-

ity for the city over the next 15 years. Valanov has no

University, so the population is fairly stable, but age-

though Valanov is situated on a tidal river and has a

small port.

As a consequence of this situation, Valanov continues

to experience growing congestion on its road network,

as well as levels of air pollution and noise that exceed

health and environmental standards. Significant new

road infrastructure is not expected during the tenure

of the currently elected Mayor.

The market for alternatively-fuelled cars and trucks

are currently very small, as they are not economically

competitive now or in the foreseeable future. Never-

theless, there are currently two EV charging spots in

the city. There is no car manufacturing in the area or

the country for that matter. The electricity supply in

the region is mostly coal-based, though there is po-

tential for hydropower to be exploited using the river

and the city is currently investigating the feasibility of

this option. Small-scale wind power initiatives have

started to emerge in the last five years.

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Valanov has identified the need for an overarching

strategy to manage and upgrade its transport net-

works, with a cohesive and long-term view. The city is

divided into different local authorities and its public

transport is managed via a central city-governed agen-

cy, although there are also private bus companies op-

erating in the area that have little engagement with

the transport agency. Each local authority in the city

manages local roads and parking and the different

public transport companies collaborate only to a rath-

er limited degree.



Mayor set up a new Sustainable Urban Visions

The

team within his office to oversee the development

of the strategy. This aims to connect the officers

responsible for transportation, planning and eco-

nomic development and environmental protection

in the city.

In 2014, the city decided to integrate the progress so

far into the more systematic SUMP activities. A final

version of the SUMP document is expected in the

middle of 2015. Valanov is keen to engage in part-

nerships with other European cities, perhaps more

advanced on realising sustainable transport goals in

order to learn from their experiences.

The main short- to medium-term activities currently

underway are as follows:

1) An overhaul of the bus network:

The entire

public fleet of buses will be upgraded. This will

be an eight-year project, which will start with

the most heavily used routes. Twenty new CNG

buses will be bought for these routes. For the

remaining diesel fleet, particle filters will be

installed and a 30% blend of biodiesel will be

used to fuel the buses. Residue waste corn

stocks from the nearby agricultural production

will be used to manufacture the blend, provid-

ing an important new industry and jobs for the

surrounding communities. In addition, all of the

city’s trolleybuses will be electrified and a new

sub-station will be built to enable new trolley-

bus routes to be introduced to better link the

outer suburbs to the rest of the city’s public

transport network.

All buses and trolleybuses will run later in the

evening following the introduction of a new

time schedule and 80% of bus lines will have

buses running at least every 20 minutes, with

the most frequented routes offering 10 minute

services.

3) New parking guidelines:

Valanov will work

with the local authorities to produce and imple-

ment guidelines to standardise and improve the

on- and off-road parking infrastructure in and

around the city. Whilst the parking infrastruc-

ture is being standardised, applications are be-

ing made for funding to invest in car park-based

EV charging and a public partner for car-shar-

6.3.3 Policies

In 2005, Valanov formulated a new overarching spa-

tial development strategy, designed to limit sprawl

and increase the economic potential and competitive-

ness of the city. Reducing congestion was one priority

measure within this strategy. In 2010, this vision was

broadened to incorporate more emphasis on environ-

mental protection. Walking and cycling received great-

er political prominence and a significant investment

was allocated to the upgrade of the public transport

infrastructure, mainly to improve services and to mod-

ernise the fleet. The strategy now concentrates on the

following areas:



new governmental partnership between the cen-

tral city administration and the local authorities to

enable better coordination on road management

within the city;



wider platform for collaboration, bringing togeth-

er stakeholders including the private bus compa-

nies and the taxi companies to offer more integrat-

ed transport generally, but with a specific focus on

considering options for more fuel efficient and al-

ternatively-fuelled vehicle procurement within the

wider city-based fleet (both public and private);



freight group was established to understand the

feasibility of opening a series of CLSCs on the pe-

ripheries of the city to minimise through traffic;



public engagement process was set up to under-

stand public attitudes to walking, cycling and how

to improve perspectives on public transport. This

will feed into the public transport platform;

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ing trials is being sourced. This scheme will op-

erate out of the designated bays set aside for

car-sharing in the new parking guidance.

4) EV taxi pilot:

Through the new city partnership,

a consortium of the local taxi operators, togeth-

er with the city transport agency, is taking part

in a four-year European project to enable the

procurement of EVs and charging infrastructure

for the city. EVs will operate at reduced tariffs

compared to conventionally-fuelled vehicles

and charge points will be located at specific

taxi ranks and at key points throughout the city,

such as the train station.

5) Smart cards:

Once the public transport up-

grade has started, the introduction of a new

smart card will be introduced to the city, offer-

ing hassle-free payment to all. Regular commut-

ers, youth and elderly passengers will be enti-

tled to discounted fares.

6) Cycle training and infrastructure:

A new

cycle route along the river will be developed to

link the North and South areas of the city and

to provide a quick and reliable alternative to the

congested road corridor for cyclists. A separate

lane will be introduced for cargo bikes to carry

goods from the new CLSCs (see below). Cycle

lanes will be introduced throughout the city

to form a network on the city’s existing roads.

Free cycle training for adults will be provided

and cycle training for school children will be in-

troduced. A new e-bike-sharing scheme will be

installed with eight bikes in the hilly area of Va-

lanov,, near the main park, for leisure and com-

muting. This landscape was identified during

the initial public engagement activities as a bar-

rier and e-bikes were a key recommendation,

for which the city authority allocated funding to

deliver. The success of the scheme may lead to

further car- and bike-sharing in the city.

7) Personalised travel planning

will be offered

to up to 5,000 households to encourage new

users of public transport and cycling. This will

be part of a wider engagement campaign fol-

lowing the launch of the new bus network and

the smart card system.

8) CLSCs:

Through the establishment of a long-

term PPP, one or two CLSCs will be constructed

to manage freight going into the city. The idea

is to frame the first CLSC as pilot project and

to acquire European or national funding. A se-

ries of EFVs and cargo bikes will be procured to

manage the delivery of goods to the city centre.

These vehicles will have privileged access and

curb side rights in the city. In addition, the CLSC

will also be designated as the location to man-

age outward flows from the city and Valanov

council will also invest in ensuring that council

and municipal waste will be managed through

the CLSC.

The City has agreed to use the following mini-road-

map with milestones as points of orientation for ur-

ban policy:

2015)

(Baseline)

Use the initial SUMP

document to push-start

political moment

Create a network of

medium-sized starter

cities

Reduce car usage

Charging network for EV

and e-bikes

Cycle network and

promote cycling

Smart Card

CLSC funding acquired,

business plan approved

2020

SUMP established and

20% of SUMP measures

implemented

10 Member cities

2025

60% of SUMP measures

implemented

20 Member cities

2030

SUMP fully implemented

30 Member cities

40% of trips by car

50 points

10km

new network

30% Personal transport

customers

Successful pilot CLSC up

and running

35% of trips by car

200 points

15km

50% Personal transport

customers

30% of trips by car

500 points

20km

80% Personal transport

customers

CLSC fully operational

Table 5: Milestones adopted in “Valanov”

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6.3.4 Politics and governance frameworks

A number of political factors and wider governance

issues are important for the city as a precondition to

implement these plans and to make actual progress.

Some political factors concern the internal relations

within the city while others relate to outside actors,

higher levels of decision making or overarching frame-

work conditions.

First of all, it is difficult for the city to create and main-

tain

political agreement

and wide stakeholder

support to invest in a public transport system that is

regarded by many in the city as obsolete in times of

affordable automobility for all. Cars are widely per-

ceived as the most flexible and convenient all round

means of transport for modern complex mobility pat-

terns for both private households as well as business-

es (even if this perception does not necessarily always

hold in urban or congested conditions). Alternatives

have to be available and attractive in order for people

to choose it.

City logistics

is one of the measure packages where

local action and agreement is particularly important.

Not many cities have yet adopted a proactive ap-

proach – like planned in Valanov – where the differ-

ent actors (retailers, forwarders, carriers and the mu-

nicipality) form a partnership that works together to

identify and deliver solutions. Moreover, because a lot

of the issues caused in the surrounding areas – as a

result of through-traffic – support and buy-in for pos-

itive change is required and can be achieved through

collaboration with the national and even European

transport networks to relieve some of the burden on

local roads.

revenues are to be spent in other areas of the public

budget or will be used to lower general taxes, so the

city will not necessarily have leverage to implement its

own strategy as intended. Valanov however is able to

secure and influence part of the revenue stream for

urban transport investments, including the cycling in-

frastructure projects.

Another, more general aspect is the availability of

funds for investments in alternative modes and sub-

sidies for various incentive schemes. To turn an urban

transport system into a truly attractive alternative to

individually-owned cars typically requires large sums

that are beyond what a city budget can sustain. Even

with some income from congestion charging or tolls,

other funding sources such as national government

support or private sources are necessary. In some

countries, governments provide transfers to cities that

adopt particularly visionary or effective sustainable ur-

ban mobility plans or schemes. This was obtained by

Valanov, as it takes up its role as a so called “following

city” – learning from the frontrunner cities it partners

with elsewhere in Europe. Funding from the European

structural funds or loans from the EIB are available on

similar conditions for some cities.

6.3.5 External factors

As already mentioned,

legislation

that is conducive

to the implementation of Valanov’s plans is a critical

precondition. Measures such as congestion charging,

access restrictions zones, parking charges, and pos-

sibly preferential treatment of ‘green’ vans, trucks

and cars within various programmes clearly require a

stable legal framework. In some countries, the appro-

priate legislation for one or more of these areas is in

place, but that is far from being the case everywhere.

Even if certain measures are legally permissible, the

government may decide, for example, that charging

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Key messages and

action steps

7.1 Key messages

7.1.1 Transforming urban mobility requires

an open approach

A European roadmap for how to halve the use of

conventionally-fuelled vehicles in cities and provide

for CO

-free logistics in major urban centres by 2030

needs to adopt a broad and open approach since the

processes of transformation that are required cannot

be prescribed from above.

European urban areas are different and their trans-

port systems are often intertwined with the history,

culture, economy, and environment of individual cit-

ties and Member States. The impact of technological,

behavioural, and market trends are difficult to predict

and the associated possibilities for change will likely

materialise in dissimilar ways across the continent.

While stakeholders in Europe are broadly aligned in

their concerns for bringing more sustainable and re-

source efficient mobility solutions into cities, and gen-

erally supportive of the intentions behind the White

Paper goal, there is no overall agreement on which

This final chapter will provide a general roadmap from

a European multilevel governance perspective, with

action steps for “who is to do what by when in order to

reach the urban mobility goal.”

The roadmap is based on a summary of key messag-

es drawn from TRANSFORuM’s consultation of stake-

holders representing different dimensions of urban

mobility, different parts of Europe, and different levels

of governance and decision making.

The significance of private actors – in particular in the

logistics sector – in fulfilling the White Paper goal is well

appreciated and acknowledged. The potential role of

this actor group was discussed in the TRANSFORuM

workshops and is well addressed in the fictive cities

in chapter 6. This final roadmap, however, is clearly

focused on the actions that can be taken by govern-

mental organisation on the three relevant political

levels here. Quite often, the processes and measures

described in the roadmap intend to enable or catalyse

actions of the private sector.

The Key messages follow below in section 7.1. The

Action steps will be outlined in section 7.2.

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clean and efficient transport solutions are most ap-

propriate to implement in which cities or areas at this

point. It is clear that new types of technology, organi-

sation and governance will require time and room for

experimentation, evolution, and learning.

A roadmap even for the specific urban mobility goal

stated in the White Paper must take into account

these broader strategic conditions, and cannot pres-

ently assume the form of a European-wide ‘deploy-

ment plan’.

than currently. R&D in vehicle engine, fuel, and stor-

age technologies need to be enhanced and accelera-

ted. It would however be a mistake to design a Eu-

ropean roadmap according to a strategic formula like

‘cities + electrification = sustainable mobility”’

Specific technological solutions such as electromo-

bility are new and untested for most cities and still

suffer from various limitations. In some Central and

Eastern European countries there are hardly any EVs

on the market and citizens have yet to see a dedicated

charging point. In other cities knowledge and techno-

logy may be present on various non-conventional-

ly-fuelled alternatives for both passenger and freight,

but vehicles and systems remain expensive, impracti-

cal, or based on energy carriers that may be far from

-free or sustainable.

Practically all stakeholders engaged in TRANSFORuM

agreed that a roadmap for the urban mobility goal must

therefore embrace a much wider scope of transport

options than simply replacing conventionally-fuelled

vehicles with non-conventionally-fuelled ones. Other-

wise too many challenges would be left unsolved and

too many synergies with regard to accessibility, mobil-

ity, congestion, safety and the attraction of inner cities

would be left unexploited.

The most promising solutions may in fact be ones that

combine new technologies with new mobility solutions

such as sharing and partnering models for EVs, EFVs

or bicycles. The roadmap should help tease out the

new and yet unknown solutions and combinations.

7.1.2 European goals must be aligned with

local visions and benefits

80% of Europeans will live in urban areas by 2020 and

cities constitute the main arenas for realising the ur-

ban mobility goal. The active visions and goals of ur-

ban transport stakeholders, entrepreneurs, and deci-

sion makers are therefore needed to drive strategic

transformations.

The overarching concerns for climate change and de-

livering fossil fuel independence at the European level

must be clearly aligned with concerns and action-mo-

tivating factors at the urban level such as improving

accessibility, mobility, quality of life, safety, and health

of citizens and businesses. While offering a climate re-

sponsible approach for urban businesses, improved

city logistics is for example not the main solution to

reduce CO

emissions globally, whereas it is essen-

tial for creating more safe, efficient and viable cities.

Fortunately there is a significant potential for corre-

spondence between local and overarching goals, in as

much as many low carbon transport solutions are also

supportive of convenient, city-friendly and healthy ur-

ban transport. If the White Paper goal is to be fulfilled

it, must first and foremost become associated with

understandable and measureable benefits for a wide

range of stakeholders in each city.

The adoption – and adaptation – of the European goal

to local concerns, visions and solutions is an essential

part of further action towards the goal.

7.1.4 Limiting conventionally-fuelled vehicle

use can come at low costs

Investments needed for new technologies and infra-

structures may seem like impediments for transfor-

mation of urban mobility systems, especially in times

of economic contraction with limited funds available

and weaker demand. In some cities renewal and

change occur at a slower pace than was expected

when the White Paper was adopted.

However, TRANSFORuM’s review of possible building

blocks for change as summarised in chapter 4 of this

document has emphasised the promising potential of

many less costly options for limiting the use of con-

ventionally-fuelled vehicles. This includes for example

7.1.3 Replacing vehicles and fuels is

important but not sufficient

Current vehicle fleets and fuel systems create massive

problems that need to be resolved at a faster pace

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measures to enhance walking, cycling, e-bikes and

car-sharing that are not yet widely exploited in many

cities, as well as measures where up-front investments

can lead to significant efficiency gains over time, such

as the introduction of electric propulsion and efficient

ticketing systems for public transport, and the de-

ployment of ITS solutions in urban traffic and logistics

management. Some options like the introduction of

road and parking charging, or the revision of company

car benefits and taxation schemes can even release

economic resources to support investments in other

attractive solutions. In city logistics there are examples

of commercially viable models such as the ‘Binnen-

stadt’ concept of some Dutch cities that combine the

use of clean distribution vehicles with the provision of

additional logistics services, although large-scale solu-

tions of this kind are still rare.

The cost of alternative measures and models is of

course important but should rather be seen as chal-

lenges to be creatively explored and financed than as

barriers for action.

solutions, planning skills, or resources but rather a

missing culture for innovation and transformational

governance, and a low degree of political momen-

tum to foster such a culture. There is a strong need

to identify ways to inspire cities to take action at the

political level, for example by ensuring a mobilisation

of a broad range of local stakeholders around urban

transport transformational visions, and through the

support of European-wide or global networks of deci-

sion makers agreeing to commit to sustainable urban

mobility goals. A recent example of the latter is the

Urban Electric Mobility Initiative (UEMI), launched at

the Climate Summit in New York, in September 2014,

urging city governments to ensure that EVs constitute

30% of the travel by 2030 (UEMI, 2014).

Partnerships for change at the political level are need-

ed to embody the transformation of urban transport

and logistics as a ‘winner’ case for cities, and to sup-

port underlying processes of analysis, planning, delib-

eration, and innovation.

7.1.5 Political momentum must be fostered

in many cities

Looking across Europe a number of cities stand out as

already advancing towards a more sustainable urban

transport situation in various areas, but in many more

cities essentially no significant steps towards the goal

have been taken, and essentially no ambitions to do

so are apparent.

The distinction between already advancing and not

yet active cities is important even if there is currently

no clear information available about how many cities

would belong to each category. Especially the latter

group needs to be transformed into what we optimis-

tically call ‘starters’. The broad set of building blocks

presented in chapter 4 offer all cities different oppor-

tunities to make their transport systems more sustain-

able and efficient, some of which can be applied im-

mediately, and the frameworks presented in chapter

5 describes mechanisms that can help promote, fund

and govern a more transformative use of these build-

ing blocks to reach the goal.

However, stakeholders have repeatedly pointed out

that the most fundamental impediments to start a

transformation in many cities is often not a lack of

7.1.6 National and state frameworks must

support European goals and local

actions

Even if cities are the main arena for transformation

they cannot fulfil the goal without active support from

initiatives at national, state and regional governmental

levels, be they starters or more advanced ones.

There is a clear but differentiated need across Europe

for both hard and soft infrastructures in areas such as

planning regulations, taxation rules, investment sup-

port, ICT solutions, monitoring procedures, and ca-

pacity for experimentation, in addition to systems and

standards for cleaner vehicles, fuels, infrastructures,

and products. While technical standards for important

elements such as charging equipment, and fuel effi-

ciency are best defined at the European level, and gov-

ernance arrangements for urban mobility must have

a local basis, the benefits and even necessity of na-

tional/regional support in several areas should not be

underestimated, even if stakeholders do not all agree

about the role of central government. Cities advancing

today – such as Oslo in terms of electromobility, Co-

penhagen in terms of cycling, and many other cities in

terms of modernised public transport schemes – do

so not least because of favourable background condi-

tions supported by national tax incentives, legislation,

investment support and R&D.

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ROADMAP TOWARDS THE WHITE PAPER GOAL ON URBAN MOBILITY

New actions at Member State and regional level are

essential in areas such as deployment of alternative

fuel infrastructure, rules on access restrictions and

charging schemes, fiscal incentives, and national

frameworks for planning to enhance SUMP.

7.2 Action steps – who has to do

what by when?

To reach the urban mobility goal of the White Paper

coordinated actions must be taken by stakeholders at

all levels of decision making over an extended period

of time starting now.

The proposed roadmap of actions – who has to do

what by when – is described in the following sections.

The proposed actions are summarised in two main

Tables, 6 and 7.

The action tables are structured in the following way:



The

vertical

table dimension depicts the dif-

ferent policy levels of action (the ‘who’)



The

horizontal

table dimension depicts the

time towards the future (the ‘when’)



The table

cells and arrows

depict the pro-

posed

actions

(the ‘what’)

The three

levels

are the European, the national/region-

al, and the urban. ‘Regional’ here includes countries

with a federal structure (e.g. the Länder in Germany).

The distinctions are only indicative, as the roadmap

of actions does not consider specific institutional ar-

rangements in the Member States.

The two upper levels (EU and national/regional) are

covered in sections 7.3 and 7.4 and in Table 6, while

the urban level is addressed in section 7.5 and Table 7.

The

time

covers the span from now (2015) to 2030,

when the goal is to be fulfilled. The timeline is for sim-

plicity divided into three periods, each approximately

five years long. This supports a distinction between

actions to be taken now/in the near term (2015–20),

in the mid-term (2020–25), and in the longer term

(2025–30). It must be stressed that these divisions are

indicative and qualitative.

The

actions

proposed are divided in two types,

called

‘processes’

and ‘measures’ respectively. This

distinction draws on quality management for ur-

ban transport policy.

The processes concern com-

munication and coordination actions, whereas the

10 See for example FGM-Amor (2013) Final ADVANCE Audit Schem

and Guidelines. URL:

eu-advance.eu

7.1.7 Communication, coordination, and

knowledge consolidation will advance

the learning curve

The most widely shared observation emphasised

among stakeholders is the strong need for contin-

ued communication, coordination and dialogue on

sustainable urban transport solutions and transfor-

mations. A reinforced dialogue among stakeholders

should be prioritised at all levels, and across them,

because enhanced dialogue is the best way to move

upwards on the learning curve.

Given the subsidiarity principle, action at the local po-

litical level is important to support innovations, initia-

tives and developments that are underway in a ‘bot-

tom-up’ manner. City governments need to work as

catalysts supporting local ideas and initiatives just as

much as authorities exercising power. Particularly in

the area of freight and logistics a need for a dialogue-

and partnership-based approach has been pointed

out, since private transport operators, urban consign-

ees, and public authorities, can each only observe a

limited part of the whole picture. National fora for di-

alogue and exploration such as DINALOG in Nether-

lands, the CLOSER arena in Sweden for logistics, and

Mobi-E for electromobility in Portugal, are also im-

portant for defining country-specific frameworks and

roadmaps.

It was confirmed in TRANSFORuM that a lack of data is

a serious factor hampering progress, in the passenger,

but in particular in the logistics sector. The European

Commission has a key role to consolidate the knowl-

edge base for European-wide dialogue and learning.

The Commission should continue to support the de-

velopment of frameworks and databases though re-

search, monitoring and dialogue with stakeholders.

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measures refer to more direct policy, regulation, in-

tervention and investment actions. These types of

actions are sometimes overlapping or connected

in practice, so the distinction is not always clear cut.

The proposed actions mainly refer to such activ-

ities expected by

policymakers

and

authorities

the different levels acting as convenors, catalysts,

or regulators in regard to urban transport tech-

nologies, systems, markets and users. Actions to

be undertaken by other stakeholders are not di-

rectly described in the roadmap, but their mul-

tiple contributions are essential, as will be clear.

Proposed

milestones

are inserted in both tables, and

explained in Table 8. The milestones refer to combined

results at the European level, and not to milestones for

individual Member States of for individual cities, as were

exemplified in chapter 6. The proposed milestones are

examples that reflect important indicators of progress.

The exact formulation and timing of milestones would

have to take into account the final design of a roadmap.

7.2.1 Action Tables and Milestones

No.

Milestones for the European and national levels

Data, indicators and procedures to measure urban mobility goal performance resolved

A comprehensive benchmarking system for clean and efficient urban transport defined

Concept of SUMP recognised by all cities in Europe; 2

generation SUMP framework adopted

generation SUMP integrated as part of wider urban development frameworks adopted

European platform for cities committing to urban mobility goal formed with 20 Mayors

100 Mayors have committed their cities to urban mobility goal

A European platform for aspiring cities formed with 50 Mayors

500 Mayors have joined the aspiring cities platform

All European cities have committed to urban mobility goal; The platforms are merged

Prestigious award for clean and efficient urban transport launched

Survey demonstrates high awareness or European urban mobility goal and strategies

Funding schemes adapted to support aspiring cities investing to reach urban mobility goal

100 cities have received European support; All funding efficiently spent on relevant projects

All relevant technical standards to support clean and efficient urban transport revised/proposed

National programmes for promoting alternative fuels evaluated and new measures proposed

All Member States have defined how to orchestrate national support for urban mobility goal

All Member States have reviewed national planning frameworks to support SUMP

All Central and Eastern European Member States have launched campaigns or similar

85% of citizens in Central and Eastern European Member States express support to non-conventionally-

fuelled vehicles

All Member States have communicated convincing plans for deployment of alternative fuels

All Member States have implemented effective plans for deployment of alternative fuels

Efficient markets for affordable alternative fuels emerging in all Member States

All Member States have reviewed legislation to allow cities necessary leverage over access

All Member States have reviewed legislation to allow cities to restrict non-zero-emission access

All Member States have reviewed taxation schemes

All Member States have national programmes supporting CLSCs

M10

M11

M12

M13

M14

M15

M16

M17

M18

M19

M20

M21

M22

M23

M24

M25

M26

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No.

M27

M28

M29

M30

M31

M32

M33

M34

M35

M36

M37

M38

Milestones for the urban level

All cities have conducted a stakeholder dialogue on urban mobility goal and strategies

All cities have adopted a certified SUMP by 2020

25% of cities have adopted a second generation certified SUMP by 2025

Half of the major cities have established some form of freight transport partnership

All major cities have established a freight transport partnership following ‘good practice’

Most cities have joined city networks for urban mobility goal (=M6 and M8)

At least 50% of the cities are experimenting with or have implemented alternatively-fuelled buses

At least 50% of cities committed to only use renewable energy for public transport

At least 50% of cities have fully switched to renewable energy for public transport

At least 50% of cities have MIMP system in place

800 cities have adopted basic pedestrian and cycling networks and strategies, cycling in European cities

increased on average 100% between 2015 and 2020, with minimal reduction in walking and public transport

400 cities have extensive bike-sharing systems with e-bikes and/or large secured bicycle parking at public

transport nodes; cycling in European cities has increased on average 200% between 2015 and 2025, with

minimal reduction in walking and public transport

Most cities provide support to car-sharing initiatives, and have adopted Mobility Management strategies

jointly with employers and business parks

At least 25% major cities (that have a legal basis to do so) have introduced road and/or extensive parking

charging favouring non-conventionally-fuelled vehicles (according to a standard definition)

At least 25% of major cities (that have a legal basis to do so) have introduced access restrictions favouring

non-conventionally-fuelled vehicles (according to a standard definition)

All major cities have introduced charging or access restrictions favouring non-conventionally-fuelled vehicles

(according to a standard definition)

In 40% of major cities one or more CLSCs have been established, based on a review of needs and

opportunities in the particular context

10% of urban freight is carried by ZEVs

25% of urban freight is carried by ZEVs

At least 75% of cities have adopted a procurement policy for alternatively-fuelled mobility

All publicly procured mobility in European cities is zero emissions and based on renewables

M39

M40

M41

M42

M43

M44

M45

M46

M47

Table 6: Milestone descriptions for urban mobility roadmaps

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ities expected by

policymakers and authorities

the different levels acting as convenors, catalysts,

or regulators in regard to urban transport tech-

ACTION TABLES

nologies, systems, markets and users. Actions to

be undertaken by other stakeholders are not di-

individual Member States of for individual cities, as were

exemplified in Chapter 6. The proposed milestones are

examples that reflect important indicators of progress.

The exact formulation and timing of milestones would

have to take into account the final design of a roadmap.

7.2.1 Action Tables and Milestones

MIDDLE

M11

M13

EARLY

LATE

Evolving the Urban Mobility Observatory

Deploying and developing SUMP framework

transport goals

Merging SUMP into general urban governance framework

Merging fora into a coalition of “transition cities”

Processes

Platform

for cities adopting urban

Platform

and forum for aspiring cities

LEVEL

Campaigning

M10

for clean and efficient mobility solutions

F i n a n c i a l l y

M12

supporting SUMP and goal-implementing cities

Measures

Strengthening and extending technical standards

M14

Promoting the deployment of alternative fuel infrastructure

M15

M16

Orchestrating national support

Continuous dialogue

Revising national planning framework

M19

Processes

Integrating SUMPs into national planning framework

M17

Increasing awareness for non-conventional

M18

forms of mobility and their combination

M21

infra- structure

Preparing

M20

M23

and deploying alternative fuel

M22

M24

LEVEL

NATIONAL

Legislation enabling cities to levy/restrict

Legislation enabling ULEZs

Markets for low carbon freight and

passenger vehicles and fuels taking off

Measures

Reviewing taxation schemes

M26

M25

Supporting CLSCs

Developing common vision with stakeholders

M27

Regularly reviewing and updating vision jointly with stakeholders

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Reviewing taxation schemes

M26

M25

Supporting CLSCs

Developing common vision with stakeholders

M27

Preparing/implementing 2

generation SUMP

M29

M31

Preparing/implementing 1

generation SUMP

M28

M30

Regularly reviewing and updating vision jointly with stakeholders

Preparing/implementing 3

generation SUMP

integrated with freight, regional level, and general

sustainability strategy

Undertaking peer review, exchanging good practice, benchmarking, learning

Processes

Establish urban freight partnerships

Joining city network with shared commitments

M32

Land use

Comprehensive sustainable carbon neutral urban development

M35

Ensuring compact mixed-use transport oriented urban development

Shift to fully renewable energy public

M34

transport

Experimenting/introducing alternative fuel buses

M33

M36

Public transport

Implementing MIMP system

Walking and cycling

Integrating cycling in public transport by expanding cycle parking/allowing bikes on public transport

M37

M38

Seamless integrated urban mobility

service system including public,

private, and shared resources

Walking and cycling networks and schemes

Car-sharing and mobility management

LOCAL LEVEL

Initiating/advancing support for car-sharing and mobility management

M39

M40

Introducing parking and/or road charging

Adapting parking and charging policies to limit use of conventionally-fuelled vehicles

M42

Action Areas

Streets and traffic flow

Restricting access to urban areas for conventionally-fuelled vehicles

M43

M45

Restricting access to city centres for polluting vehicles

M41

‘Catalysing’ commercial CLSCs

Urban freight and delivery

Preferential delivery for alternatively-fuelled freight vehicles

M44

Markets for low carbon freight and

passenger vehicles and fuels taking off

Supporting emerging refuelling market for alternatively-fuelled vehicles

Procurement policy based on life cycle zero emission mobility

M47

Alternative fuel vehicles and infrastructure

Procurement policy on alternatively-fuelled vehicles for city functions

M46

Table 7 and Table 8: Proposed processes and measures at the EU and national levels/Processes and actions at the urban level - key examples

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7.3 European level

Action at the European level is especially relevant in

order to set common technical standards for vehicles,

fuels and refuelling systems, to define frameworks for

common national and local actions, and to support

research in common urban transport problems and

solutions with a view to exchanging good practices, and

monitoring performance and results across countries

and cities in Europe. The following are the proposed

key processes and actions at the European level.

the use of SUMPs for benchmarking and for regula-

tory or funding decisions. SUMP should also gradually

be extended so at to apply to peri-urban areas and

larger polycentric urban regions and SUMP should be

integrated in broader urban sustainability governance

frameworks such as the European Reference Frame-

work for Sustainable Cities (RFSC) or the ISO standard

ISO 37120 on the sustainable development of com-

munities.

3) Enabling a political platform for sustainable

urban mobility goals

A platform for political commitment to urban mobil-

ity goals should be facilitated at the European level.

The commitment platform should include explicit ref-

erence to the White Paper goal, but should also take

into account other relevant initiatives such as the

Covenant of Mayors and UEMI. Whether the platform

could be based in existing city networks or if it would

be more effective to set up a new framework of cities

committing specifically to a set of sustainable urban

mobility goals should be agreed in a process of con-

sultation involving the European Commission and city

representatives in the early phase of the roadmap.

Whatever the basis of the platform it should involve

high-level policy meetings based on regular reporting

on achieved progress, as well as joint actions and ex-

changes at the practical level.

4) Creating a dedicated platform for aspiring

cities

A special platform should be established to engage

‘starting’ cities that have not yet embarked on trans-

formations and who are not yet ready to commit to

ambitious goals, but aim to empower themselves to

do so. All starter cities could be offered training in

SUMP, access to knowledge resources, and to join

specific ‘twinning’ arrangements with an advancing city

of choice, specifically to facilitate progress being made

in this area. A milestone should be that all starter cities

have adopted a SUMP and joined the network of com-

mitting cities before 2020, after which special platform

could be terminated as no cities would be considered

‘starters’ any longer.

7.3.1 Processes

1) Evolving the Urban Mobility Observatory

(UMO)

The UMO function currently supported by the Euro-

pean Commission should be further evolved and en-

hanced as a knowledge co-production and co-utilisa-

tion platform involving stakeholders and knowledge

institutions. Results from research and experiments

on efficient, low cost, low carbon transport solutions

across Europe should be collected, condensed and

communicated. Progress towards urban mobility goal

should be monitored with a view to scoring and bench-

marking. Key assignments for the UMO should be to

develop and apply measures of the use and share of

non-conventionally fuelled vehicles at city level (not

just ownership), as well as methods to map freight

transport services and impacts in cities including ac-

curate carbon emission calculations of supply chains.

The observatory activities should be coordinated with

other relevant urban, transport and environmental

observatories and monitoring agencies.

2) Deploying and further developing the SUMP

framework

The concept of SUMP should be continuously de-

ployed, developed and enhanced as a basic frame-

work for transport policy in European cities. Existing

concepts and guidance should be reinforced in areas

such as goal and target setting, roll-out of alternative

fuel infrastructure, support for city logistics (as part

of the SUMP, not as a separate activity), and evalua-

tion and learning methods.

A SUMP certification or

grading scheme should be established to facilitate

11 It should be mentioned here that some experts suggest a

particular focus on sustainable urban logistic plans (SULP); in

this document we understand urban logistics plans as being

integrated into the SUMP concept

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7.3.2 Measures

1) Strengthening and extending technical

standards

European technical standards for vehicles, fuels and

infrastructure should be continuously reinforced and

extended to further limit emissions and fuel con-

sumption, including CO

limits for heavy duty trucks

and vans. The standards should be technology neutral

and supported by clear labelling for consumers. Fuel

efficiency test cycles should be made to reflect real

consumption in urban driving. Sustainability criteria

for fuels in the Renewable Energy Directive should be

regularly updated to reflect the latest knowledge on

environmental and climate effects including indirect

land use change (ILUC) impacts. Green certificate-like

models could be considered for EV-based mobility

services if this could help promote low carbon mobil-

ity solutions. It could also be considered to introduce

green standards or certification schemes for urban

traffic management systems in regard to energy/CO

savings.

2) Promoting the deployment of alternative

fuel infrastructure

Following the adoption of rules for the deployment

of alternative refuelling points across Europe in 2014,

Member States have until 2016 to detail their plans.

The European Commission should closely monitor

and review the effectiveness and cohesion of the na-

tional plans and subsequent implementation efforts,

including the adequacy of information provided to

consumers on alternative fuel availability. The Com-

mission should also support research into the effec-

tiveness and adequacy of different national plans,

strategies and measures for deployment of alterna-

tive fuel infrastructure and the associated market re-

sponses, compared to other ways of limiting the use

of non-conventionally-fuelled vehicles.

3) Financially supporting SUMP and goal

implementation

European institutions (funds, banks, programmes)

should continue and extend the financial and practical

support offered to sustainable urban mobility initia-

tives in European cities, emphasising measures that

would reduce the use of conventionally-fuelled vehi-

cles. The future support levels could be conditioned

on the cities’ adoption of a SUMP, and possibly the

level of commitment to urban mobility goals. Spe-

cial support could be provided to starter cities that

cannot yet adopt a comprehensive SUMP, but would

commit to start preparing one. Funding for guidance

and training on SUMPs should be extended to reflect

the need to engage many more cities. A regulation,

requiring cities to adopt SUMPs should be considered

again on the medium-term timeframe.

4) Campaigning for clean and efficient mobility

solutions

Current campaigns conducted by the European Com-

mission like ‘Mobility Week’ and ‘Do the right mix’

should be maintained and reinforced with potentially

higher rewards for cities adopting more innovative,

ambitious mobility solutions. There could be a stron-

ger emphasis on rewarding solutions, innovations

and partnerships on the freight side where there is a

growing need for sustainable solutions that are also

economically viable. It could be considered to offer a

special prize for the best city in the category of ‘local

transport’ within the European Green Capital award

scheme, to exploit the trendsetting prestige of this

award. The general awareness about sustainable mo-

bility problems, goals and solutions should be moni-

tored.

7.4 National level

Urban planning frameworks and general transport

policies as well as taxation and charging rules remain

largely within national jurisdictions. The national level

is especially important to align country specific legisla-

tion, fiscal regulations, and planning frameworks with

transformations needed to accomplish European and

local goals for urban transport systems, as will be out-

lined in the following.

7.4.1 Processes

1) Orchestrating national support for

sustainable urban mobility goals

The chances to fulfil the White Paper or any other

urban transport goals are strongly dependent on

national policies and frameworks, and all Member

States should therefore undertake a review of these

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in the light of the emerging European agendas and the

needs of their cities. Member States should consult

their cities on their views on European goals and strat-

egies, and the national support and implementation

efforts. This will also help prepare the communication

of national policy frameworks for the deployment of

alternative fuels by 2016. Member States should also

consider how they could support the European plat-

forms for political commitment to urban mobility goals

that were outlined in section 7.3.

2) Integrating SUMP in national planning laws

and frameworks

National planning frameworks should be adapted so

SUMPs or SUMP-equivalents become a required, or

natural (as appropriate) element in urban transport

planning. National initiatives such as training schemes,

network formation, and benchmarking activities that

could further support the adoption and implementa-

tion of SUMPs should be introduced. Member States

should also consider how sustainable urban mobility

is addressed in other urban planning and develop-

ment frameworks, and undertake reviews to ensure

mutual support.

Member States should make sure to include Mobility

Management as an element in the national planning

frameworks for cities, to ensure that cities seek to af-

fect the demand for transport in connection with the

development and operation of major urban activity

centers (like shopping malls, cultural venues, sport

stadiums, hospitals, and major workplaces).

3) Increasing awareness of public transport,

cycling, car-sharing and their combination

Member States, not least in countries with weak tra-

ditions should deploy effective campaigns to promote

awareness of alternative solutions to the use of con-

ventionally-fuelled vehicles in cities, for example in-

spired by direct marketing approaches. In countries

with advancing cities it would be particularly relevant

to help raise awareness of possibilities for outper-

forming the use of conventionally-fuelled cars by com-

bining various modes and technologies in providing

near-seamless travel. Campaigns may be targeted to

particular segments of the population, such as young

adults before they acquire a drivers’ license, or par-

ticular businesses such as company clusters engaged

in Mobility Management schemes, or retailers and

restaurants in city centres. Campaigns could be com-

bined with more direct measure to incentivise shift in

behaviour.

7.4.2 Measures

1) Preparing and deploying alternative fuel

infrastructure and facilities

While some countries have adopted visions with in-

dicative targets for the number of alternative fuel ve-

hicles by certain years, EU Member States have jointly

agreed to set goals and prepare national frameworks

for the deployment of alternative energy supply and

standardised supply interfaces before the end of

2016. The Directive instructs countries to provide for

infrastructure for recharging EVs in urban areas by

2020, and measures for LNG, CNG, and (optionally)

hydrogen by 2025, in addition to clear information to

consumers. In adopting such goals and frameworks

Member States need to develop ambitious, effective

and realistic deployment strategies allowing markets

for alternative fuels to mature quickly – including e.g.

‘smart charging’

options– to mature. Targets and

strategies should be regularly updated to accelerate

progress towards a mature and diverse market for al-

ternative fuels in all Member States by 2030.

2) Allowing cities to charge and restrict

unsustainable vehicle traffic

Today some Member States allow cities to restrict ac-

cess to the most polluting trucks and cars in order to

meet air quality goals. In a few other countries cities

are allowed to charge road users that enter or drive

into (parts of) the city to limit congestion, sometime

with exemption for low-emitting cars. In the UK, the

Greater London Authority will introduce an ULEZ, that

will support the Mayor’s plans for making EVs, PHEVs

and other alternatively-fuelled vehicles commonplace

in London (Transport for London, 2014). However,

several Member States have little or no legislation that

allow such initiatives at city level. All Member States

should undertake a review of what they could do to

yield more leverage for cities to regulate the uptake

and use of vehicles according to goals for sustainable

and resource efficient urban transport, while taking

into account European legislation, the associated

costs for businesses and households, and the need

for fair competition. Member States should encourage

cities to undertake experiments and, if successful and

12 Smart charging options optimise the use of the electric grid and

the available energy to minimise additional investment needs and

to facilitate the integration of renewable energy

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ROADMAP TOWARDS THE WHITE PAPER GOAL ON URBAN MOBILITY

cost effective, to introduce permanent vehicle restric-

tions to support sustainable urban mobility goals. By

2020 all Member States should be able to present an

analysis of the available options to increase leverage

for cities and how they propose to release them, and

at least some of them would be able to introduce leg-

islation allowing cities to deploy ULEZ or zero emission

zones, if deemed feasible and appropriate.

3) Reviewing taxation schemes (vehicle taxes,

VAT, company car tax exemptions)

Taxation is a hugely effective instrument to incentivise

and regulate the purchase and use of different types

of cars and propulsion systems. Especially in countries

like Norway and Denmark where vehicle taxation is

high this has been demonstrated. Company car rules

can also affect the number and types of cars that are

acquired. Changes to taxation rules can however also

have major impact on public revenues and the private

economy, and ‘green taxation’ can even boost the sale

and use of cars. All Member States should review their

current taxation rules and schemes in order to iden-

tify ways in which revisions could be made to limit the

use of conventionally-fuelled cars in cities, while taking

into account all environmental, economic, fiscal and

social impacts.

4) Supporting CLSC

CLSC is one of the promising methods to promote

more sustainable urban freight in cities, especially if

combining consolidation of freight with low emission

vehicles and added services for the commercial users

of the CLSCs. National governments should not nec-

essarily operate or directly subsidise CLSCs on a per-

manent basis, but could provide support for instance

by harmonising regulations of freight vehicles allowed

to access to urban LEZs. Eventually the use of CLSCs

could become a requirement for certain product or

service types, for example publicly procured goods.

Governments should support experiments with

CLSCs for different types of supply chains, vehicles

types, consolidation models, and urban areas, with ac-

companying research and evaluations. By 2020 there

should be on-going experiments with CLSCs using al-

ternatively-fuelled vehicles in major cities in all Mem-

ber States. By 2025 there should be commercially suc-

cessful CLSCs in operation in at least half of Europe’s

urban centres.

7.5 City level

The city level is important as the main locus for the

transformations needed to reach the urban mobility

goal. Options for urban and regional governments to

contribute include the use of measures such as spatial

planning, parking regulations, access restrictions, and

provisions for public transport, walking, cycling and

low carbon freight vehicles. However, as emphasised

by TRANSFORuM stakeholders and illustrated exten-

sively in this document, cities face highly diverse spa-

tial conditions, transport needs, resource constraints,

mobility cultures, and policy priorities when they seek

to intervene in the transport system. It is obviously

not feasible to define specific combinations of actions

within detailed timeframes that all European cities

should jointly follow. Prevailing diversity – and limit-

ed knowledge – does not even allow for categorising

cities into standardised areas (like the three pathways

exemplified in chapter 6), for which pre-designated

‘packages’ of actions could be prescribed.

The local processes and actions proposed for the city

level in the following section refer to general areas

that could arguably contribute the most to reach the

urban mobility goal, and ones that all cities should

therefore consider to exploit

to some degree and in

some form,

to become part of the transformations

towards more sustainable urban mobility as envis-

aged in the White Paper and other European policy

documents on urban transport. The specific actions

and measures cannot be meaningfully prescribed in

a European roadmap but only exemplified. Neverthe-

less it is necessary that cities do in fact take action in

most or all of the proposed areas if the goal is to be

fulfilled. What we term ‘starter’ cities should begin by

adopting early or basic versions of each process and

action, while cites already ‘advancing’ would build on

existing results and adopt more ambitious and trans-

formative developments of some of these processes

and actions.

The logic of the timeline for the urban level is that

basic frameworks and actions sometimes need to be

taken before more advanced ones can be rolled out

(for example, a basic cycling network is a prerequisite

for maximizing the benefit of investing in advanced

bike-sharing schemes), while some of the more ad-

vanced steps also depend on actions at the nation-

al and European levels described in sections 7.3 and

7.4. The number of cities mentioned in the milestones

compares to the approximately 800 cities in Europe

with centres larger than 50,000 inhabitants.

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7.5.1 Processes

1) Bring stakeholders together

The basis for successful transformation at the city lev-

el is to bring local stakeholders together and engage

them in dialogue and visioning processes. All relevant

stakeholder groups should be invited, including busi-

nesses, transport operators, citizens, knowledge insti-

tutions, and others. A key element in the dialogue will

be to address the European (and national) goals for

urban transport and adapt them to local conditions,

opportunities, and aspirations that would be mapped

as part of an on-going policy and planning process.

2) Prepare, adopt, and extend SUMPs

All European cities should develop some form of

SUMP to serve as platform for connecting political vi-

sions and goals, strategies, plans, measures, and ev-

idence utilisation in a common approach. The basis

will be European SUMP guidance and related national

frameworks. The first generation SUMPs should be

completed by all starter cities before 2020. Advancing

cities would already develop next generation SUMPs

in the early phase, gradually incorporating a wider

scope and range of issues, areas, and innovations,

connecting to broader plans for sustainable urban de-

velopment, prosperity and quality of life.

3) Establish freight partnership

Most cities today address freight transport issues in

a reactive way, if at all. Cities need to develop partner-

ships around urban freight deliveries that involve busi-

ness and transport operators in joint efforts to analyse

problems and develop solutions and strategies. A form

of freight partnership or other collaboration should exist

in all European cities by 2020. The partnerships should

proactively look for ways to provide more efficient and

less emission intensive logistic services and procedures,

with viable business models to exploit them profitably.

4) Joint city commitments

Cities should join one or more platforms of Europe-

an cities committing to specific urban transport goals,

as appropriate. This should be led by advancing cit-

ies who could already today make well-informed am-

bitious commitments and who could join in bench-

marking with peer cities. Starter cities could join and

commit, with less stringent parameters for inclusion

initially, and be twinned with suitable advancing cities.

Eventually, as starter cities advance their experience

and confidence and become ready for bold commit-

ments. Eventually, the two groups would be merged,

and new ones, distinguished by for example size, or

strategic priorities, could be formed.

7.5.2 Action areas

1) Land use

All cities should adopt an integrated transport and land

use plan, as appropriately defined in national planning

frameworks. The planning should help identify oppor-

tunities for limiting the need for individual motorised

transport through various land use measures including

zoning and parking and to map out how different areas

of the city or region should be served by different low

carbon energy efficient modes of transport, as well as

the distributed need for alternative fuel infrastructures.

2) Public transport

Public transport offers some of the best opportu-

nities to reduce the dependence of conventionally-

fuelled passenger cars, especially if it is served by dense

networks of modern convenient vehicles operating

through integrated ticketing and information systems,

and well supported by land use measures and easy ac-

cess by foot and bicycle. Conventionally-fuelled buses

should gradually be replaced by alternatively-fuelled

ones or rail based systems where appropriate and

feasible, to maintain environmental advantage over in-

dividual cars. By 2025 public transport in all European

cities should be based mostly on fossil free fuels.

3) Walking and cycling

The most environmentally sustainable alternatives to

the conventionally-fuelled passenger car (and indeed

to delivery of packages by vans) are walking and cy-

cling. While not all European cities have equally bi-

cycle-friendly topographies, every city should have a

basic walking and cycling network in place. On such

as basis more advanced plans and strategies can be

deployed, such as pedestrianised areas, bike-shar-

ing systems including e-bikes and large scale bicycle

parking facilities. Cycling facilities and systems should

be well connected to the public transport network and

eventually integrated in a future comprehensive mobility

service system of a city encompassing elements such as

public transport, shared cars and bikes, taxis, and infor-

mal ride-sharing. Cycling also has a potential in freight

and parcel distribution, especially in inner city areas.

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ROADMAP TOWARDS THE WHITE PAPER GOAL ON URBAN MOBILITY

4) Car-sharing & mobility management

Car-sharing offers promising potentials for reducing

the use of conventionally-fuelled passenger cars, di-

rectly through eliminating the need for cars, and indi-

rectly if EVs are incorporated in shared car fleets. The

latter is seen in some European cities today where

car-sharing works as a business model for introducing

EVs to consumers and vice versa (Beltramello, 2012).

Usually car-sharing is financed and managed by pri-

vate organisations. Cities can support car-sharing, e.g.

by analysing the potential demand, providing reserved

parking, promoting it, and procuring mobility services

from car-sharing organisations. While car-sharing is

today mostly seen in a number of advancing cities, all

cities including starters, and smaller ones should de-

velop a car-sharing strategy.

Mobility Management strategies should be promoted

in all cities in order to affect the demand for transport

in connection with the development and operation

of major urban activity centers (like shopping malls,

cultural venues, sport stadiums, hospitals, and major

workplaces). Mobility Management measures are best

incorporated already at the phase of location, design,

and development of major urban activity centers, but

can also be adapted to existing facilities and locations.

Cities should promote mobility management strate-

gies, reaching out to major workplaces and facilities

to ensure they integrate sustainable mobility solutions

in their location decisions, corporate plans, and em-

ployee relations. In more advanced stages shared cars

and mobility management initiatives would become

part of a comprehensive integrated mobility service

system for a city region.

5) Street design and traffic flows

Ownership and control of the street network provides

urban authorities with their most direct and potential-

ly effective opportunity to influence the use of vehicles

in cities. Access restrictions can reserve certain parts

of the street network for non-conventionally-fuelled

vehicles, depending on available national legislation.

In more advanced versions cities could be envisaged

to adopt ULEZs. Charging for the use of the road net-

work or for parking are other means to regulate the

transport flows and the composition of the vehicles

that are used on the street networks, again depending

on national frameworks and regulations.

6) Urban freight and delivery

Cities could adopt a number of strategies and measures

to support more efficient and climate-friendly logistics.

One possibility is to encourage and support private

CLSC initiatives, while another is to designate decoupling

points for parcel deliveries, but the actions that are rel-

evant and viable need to be identified and explored in

each city through the establishment of freight delivery

partnerships. Experience from numerous on-going Eu-

ropean projects and partnerships should be reviewed in

each city as inspiration for local action.

7) Alternatively-fuelled vehicles and

infrastructure

Cities should support the deployment of infrastructure

for alternative fuels in accordance with national strate-

gies and plans that are yet to be defined in most coun-

tries. Measures that can be exploited include provision

for fuelling and charging systems away from home,

transport advantages, such as waiving of parking fees or

road user charging, and preferential treatment in the ac-

cess to street networks, lanes, parking facilities etc. Cities

can either be the organiser or just the catalyser for such

measures. Charging infrastructures are often set up by

private utilities. Cities can also adopt procurement

policies in areas such as waste collection, public trans-

port service and health services that favour mobility

services and deliveries based on alternative fuels and

clean solutions. Eventually more advanced procure-

ment strategies with a view to zero emission mobility

considering the full lifecycle of products and services

could be adopted.

7.6 Conclusion

The proposed actions represent recommendations for

decision makers and other stakeholders at the Europe-

an, national and urban level with milestones proposed

for all levels. If the actions are well coordinated and

implemented in practice this should enable clear prog-

ress towards the urban mobility goal. It is however be-

yond the scope of this roadmap to identify the precise

combination of processes and actions that would deliv-

er the goal in the optimal way across European Mem-

ber States and cities. The proposed roadmap should

be further scrutinised, debated and enhanced in the

coming months and years.

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A word on the independence, credibility and relevance of TRANSFORuM's results

Goals raise expectations and attract criticism but with-

out them, we could only stumble into the future. So

TRANSFORuM's starting point was to take the goals

as formulated in the European Commission's White

Paper on Transport (2011) seriously. A second consti-

tutive principle of TRANSFORuM was to listen to those

whose job it is to implement these goals, that is, all kinds

of stakeholders in the European transport arena. Be-

cause transformation requires, by definition, innovative

ideas, products, policies, services and new actors we

made sure that the stakeholders we consulted includ-

ed the entire spectrum from incumbent market players

to emerging niche creators. For the same purpose, our

workshops were held under the Chatham House rules

and their minutes as well as list of attendees are avail-

able to the public on our website.

At times, these two principles (loyalty to the White Pa-

per goals and a stakeholder-driven approach) got into

conflict when stakeholders questioned the sensibility,

operationalisation or feasibility of certain White Paper

goals. We consider this in itself a worthwhile finding

and as such this is recorded at appropriate points in

the Roadmaps. On such occasions, the TRANSFORuM

team felt called upon as a neutral broker to think about

possible amendments of the goals to ensure that they

are more widely accepted and therefore more likely to

be implemented. A similar phenomenon occurred

where stakeholders highlighted that certain aspects

of a White Paper goal are already outdated, for ex-

ample, due to technical developments since 2011.

It is worth emphasising in this context that the per-

ceived appropriateness of these goals varied across

the four thematic areas pursued by TRANSFORuM.

In other words, we had to find a balance between

our loyalty to the White Paper goals and to the prin-

ciple of a stakeholder-driven process. An ideological

dominance of either of them would not have led to

a coherent set of policy packages. To put it bluntly:

TRANSFORuM is not a frictionless communication

channel of stakeholders’ wish lists to the Europe-

an Commission. Neither is it the Commission's un-

conditional servant. Instead, TRANSFORuM used

the strength of its members' scientific calibre and

independence in the process. Our results are there-

fore “based on” stakeholders’ views but essentially

TRANSFORuM’s. There is, however, a slight “division

of labour“ across TRANSFORuM's different outputs.

For the

Roadmaps,

we tended not to question the

White Paper goals as such. They are designed to be

implementation-oriented, focusing on actors, bud-

gets, time horizons, etc. TRANSFORuM has released

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ROADMAP TOWARDS THE WHITE PAPER GOAL ON URBAN MOBILITY

"A wish is a dream until you write it down.

Then it’s a goal!"

(Anonymous)

four Roadmaps, corresponding to its four thematic ar-

eas: Urban mobility, long-distance freight, high-speed

rail and multimodal travel information, management

and payment systems.

The

Recommendations

are also contained in a sep-

arate document, covering all four thematic areas in

combination. They highlight proposed actions by all

relevant actors and show how coordinated action can

be more than the sum of isolated efforts.

The

Strategic Outlook

will be released in January

2015 and is essentially a sensitivity analysis to assess

the robustness of the current Roadmaps and recom-

mendations against the inevitable insecurity of long-

term trends beyond the year 2030.

We hope this suite of products is not only useful to

practitioners, stakeholders and policy-makers but also

of particular value for the forthcoming review of the

Transport White Paper. And even if not every page

abounds with radically new ideas, the added value of

TRANSFORuM is still:



new robustness and independence of the sug-

gested prioritisations;



cross-disciplinary and cross-sectoral consolida-

tion of what has been done in silos before;



fresh approach, based on a balanced chorus of

voices, including incumbent and new actors;



refreshing sensitivity to the national and cultural

differences across Europe;



rare legitimacy and credibility of our conclusions

based on the transparency of the entire process;



first-ever attempt to build a Roadmap specifically

towards the Transport White Paper goals;



holistic view, manifest in suites of suggested

measures in the form of “policy packages”;



encouraging and transferability-aware good

practice collection across four White Paper themes;



novel and thorough participatory process with

stakeholder-backing throughout.

Ralf Brand

(Project coordinator)

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Acknowledgements

TRANSFORuM would not have been possible without the help and contributions of a very large number of peo-

ple, many of whom worked tirelessly in the background, facilitating, supporting, commenting etc. Amongst them

all, we would like to express our explicit gratitude to the following:

Eight external reviewers provided comments on our near-final Roadmaps. One of them prefers to remain

anonymous; the other are: James Tate, Laetitia Dablanc, Wiktor Szydarowski, Francesca Pagliara, Jacques

Beltran, Eric Sampson, Stephane Kaba, Jaime Borrell and Jennie Martin.

All members of our Advisory Board: Stefan Back, David Banister, Ivo Cré, Yves Crozet, Torsten Fleischer,

Sylvain Haon, Krzystof Kamieniecki, Niels Buus Kristensen, Gunnar Lindberg, Lars-Göran Mattsson, Martin Pipa,

Cristina Pronello, Siegfried Rupprecht, Martin Russ, Dennis Schut, Jolanta Skalska, Inge Vierth, Marcin Wolek.

34 stakeholders and experts, who agreed to being interviewed by a member of the TRANSFORuM team.

127 stakeholders who attend one or several of the 10 TRANSFORuM workshops.

Ulla Kaisa Knutsson for the perfect organisation of these events.

The European Economic and Social Committee (EESC) whose premises TRANSFORuM was allowed to use

for the final conference on 8 December 2014. Special thanks to the members of the EESC’s permanent

study group “Implementation of the White Paper on Transport".

Ralf Brand

(Project coordinator)

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ROADMAP TOWARDS THE WHITE PAPER GOAL ON URBAN MOBILITY

List of Deliverables

TRANSFORuM's final results are primarily based on the views of stakeholders we consulted through various means,

in particular through a series of 10 face-to-face workshops. In the spirit of complete transparency and credibility

we made the essence of these events available online at

www.transforum-project.eu/resources/library.html.

Our conclusions also build upon a dovetailed set of background research and genuine analysis, which was con-

densed into a number of Deliverables we produced along the way. These are:

D2.1: “Shaping the TRANSFORuM Network”. This document spells out the criteria that guided the selection of

stakeholders to TRANSFORuM events;

D3.1: "Summary on main policies, funding mechanisms, actors and trends";

D4.1: "Challenges and barriers for a sustainable transport system – A state of the art report“;

D4.2: "Challenges and barriers for a sustainable transport system – exploring the potential to enact change";

D5.1: "Good Practice Repository - Transformation is possible!";

D5.2: "Good practice in the context of delivering the White Paper";

D7.1: “Communication and Outreach Strategy”. This document defined TRANSFORuM´s target audience and the

best means and channels of communication with them.

These documents are also available at

www.transforum-project.eu/resources/library.html

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CONTACT DETAILS

Questions or comments

about the Urban Transport

roadmap

Henrik Gudmundsson

Direct: +45 45256543

[email protected]

Jens Schippl

Direct: +49 721 608 23994

[email protected]

General questions about TRANSFORuM:

Ralf Brand

Direct: +49 221 60 60 55 - 18

[email protected]

RUPPRECHT CONSULT

Forschung & Beratung GmbH

Clever Str. 13 - 15

50668 Köln (Cologne)/ Germany

Tel +49 221 60 60 55 - 0