International Journal for Traffic and Transport Engineering, 2017, 7(4): 430 - 442 DOI: http://dx.doi.org/10.7708/ijtte.2017.7(4).03 UDC: 711.73:656.1(497.5) A STRATEGIC MODEL OF SUSTAINABLE MOBILITY IN THE CITY OF ZAGREB AND ITS SURROUNDING AREA
Jasna Blašković Zavada1, Borna Abramović2, Denis Šipuš3 1,2,3 University of Zagreb, Faculty of Transport and Traffic Sciences, Zagreb, Croatia Received 8 September 2017; accepted 20 October 2017
Abstract: The European Union is trying to strengthen economic, social, and territorial cohesion of certain regions in order to improve the quality of life for its residents. The key part of that process is improving the urban and regional mobility, which is essential for a modern living standard of the residents in those areas. This paper discusses the attitudes and documents of the EU that encourage sustainable urban and regional mobility through the development and use of public transport networks as a part of the regional, urban and suburban transport in larger cities. Special emphasis is placed on Master plans for transport development in cities, counties and functional regions, which serve as initial and strategic points for launching further transport projects. Co-funding of the design documentation of the Master plans is encouraged, as well as carrying out projects of sustainable urban and regional mobility through EU operational programmes. A case of an integrated passenger transport system and shipping tariff in the City of Zagreb, Zagreb county, and Krapina-Zagorje county was analysed.
Keywords: EU’s cohesion policy, urban and regional mobility, Master plan, integrated passenger transport, transport projects.
1. Introduction 2017) encourages developing a Master plan of traffic development and mobility which The cohesion policy of the EU for the period would act as a starting document for further 2014-2020 lists urban and regional mobility transport projects. One of the main priorities as one of the key challenges for European of the urban, suburban and regional mobility cities and functional urban areas. Emphasis sector is introducing integrated transport is on the importance of integrated strategies systems in larger cities and their suburbs, and cooperation in a functional regional and/or regional areas. context. The key factor in the process of harmonisation of the urban and suburban The railway systems in the model of development is an integrated urban-suburban integrated transport and shipping tariff transport with emphasis on sustainable in the City of Zagreb, Zagreb county and mobility. Krapina-Zagorje county should take on the traffic load. The Transport Development Strategy of the Republic of Croatia for 2014-2030 (Ministry Authors in their paper (Šimecki et al. 2013) of the Sea, Transport and Infrastructure, stress the need for a regional connectivity
1 Corresponding author: [email protected]
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between transport networks which would objectives set by the economic, social, and improve the social and economic status of territorial cohesion. The urban and regional the connected regions. The issue of limited mobility plays an important role within transport accessibility in certain regions the EU’s cohesion policy, particularly with brings about the lack of development and regard to the territorial cohesion. Certain even causes potential emigration. In their integrated strategies are stimulated that paper, (Zitricky et al., 2015) pointed out would expedite sustainable development and to the problem the difference in views of strengthen the city’s transport resistance. the quality of transport service in regional passenger transport between the users Territorial Agenda of the European Union and the operators. The main setbacks in 2020 (European Commission, 2011) the improvement of quality are evident in encourages cooperation and networking the vehicles and infrastructure. (Gašparik of cities, and long-term smart development et al., 2015) proposed in their research of urban regions that look beyond a methodology of quality assessment in administrative borders. Integrated urban regional passenger transport. They stress development directs cities towards their that its applicability is possible when functional urban areas and their surrounding comparing integrated transport systems rural spaces creating urban-rural based on the levels of service quality. In connections. Advantage should be given their work (Stopka, et al., 2015) showed to functional regions, and developmental a subjective evaluation of customer processes should be analysed regardless of satisfaction with the transport service in the administrative-territorial borders. This the integrated lines, compared to the non- initiative poses a great challenge for cities integrated ones. (Van de Vijver et al., 2016) and regions, and requires a multidisciplinary research scrutinizes the mutual and complex approach and cooperation of all parties. causal relationship between air passenger transport and regional development in the Transport infrastructure should support a European NUTS2-regions. (Torok, 2016) balanced regional development and should researched the journey times in the region, mutual supplementation of rural and urban for example, in Budapest, and improved the areas. It is necessary to develop an integrated method of temporal-spatial visualisation approach and ensure mobility and equal that can be used in analysis of regional accessibility in all areas, which would create transport systems. (Stoilova and Nikolova, the conditions for economic growth, but also 2016) outlined a methodology for classifying social integration as an important element railway passenger terminals, claiming that of social quality and justice. the method can be used for all terminals and stations in railway transport. EU Cohesion Policy for 2014-2020 (European Commission, 2014) lists cities 2. Urban and Regional Mobility in the as catalysts for development, innovation, and Context of Strengthening Territorial creativity, places that gather developmental Cohesion potentials and challenges. By carrying out its cohesion policy, the Promoting a model of polycentric and European Union is aiming to achieve the balanced territorial development aims to
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avoid polarization between the capital city, 2017) encourages cooperation in the metropolitan areas and mid-size cities. The functional regional context by means of priority is given to efficiency and density of defining five functional regions: secondary transport infrastructure networks for an integration of regional and urban • Central Croatia; economies, as well as strengthening mid- • Eastern Croatia; size and small-size cities when generating • Northern Adriatic; regional development. Mid-size and small • Northern and Central Dalmatia, and cities should play a key role on a regional level • South Dalmatia. with transport accessibility the prerequisite of their development. The development Functional regions are defined based on the and use of public transport networks in the transport interaction analysis regardless function of regional, urban, and suburban of their administrative borders. Initially, traffic should be encouraged. (Croatian however, they were defined based on the Chamber of Economy, 2015) key characteristics of the regions. After the National Traffic Model has been designed, Intermodality, that is, integrated systems a more detailed scope of each functional of public transport and their development region will be available. is strongly supported by the White paper presented by European Commission 3. Master Plan of Transport Development/ (2011). White paper on transport, a Mobility – Requirement for EU Financing strategic document for the development of Urban and Regional Mobility Projects of the EU, suggests the possibility of introducing obligatory Mobility plans for Master plans of transport development cities of a certain size, according to national for cities, counties and regions represent standards based on EU directives. (European the starting and strategic documents for Commission, 2011) further development of transport projects. They act as a bridge between Transport The general objective of the transport Development Strategy and projects development of the Republic of Croatia themselves. As underlying foundations, is a balanced and sustainable transport problems and opportunities for improving system based on the principles of territorial the transport system of cities and regions cohesion. Developing regional spatial should be identified, and set the frameworks features ensures a balanced spatial, regional, for potential solutions. The regional strategic and rural progress and ensures the conditions documents are groundwork for designing for a quality life in the entire state territory. transport projects and their EU funding. A key factor of the balanced urban and suburban development is an integrated Master plans should place special emphasis urban-suburban transport with emphasis on solutions to connecting the public on sustainable mobility. transport of cities and municipalities within a county, stress the possibility of mutual The Transport Development Strategy of the connectivity of the counties and border Republic of Croatia for 2014-2030 (Ministry areas with neighbouring countries. It should of the Sea, Transport and Infrastructure, focus on the needs of the residents in their
432 Blašković Zavada J. et al. A Strategic Model of Sustainable Mobility in the City of Zagreb and Its Surrounding Area
daily commutes so that through projects Strategic Environmental Assessment of integrated transport, their transport (SEA) (Official Gazette of the Republic becomes more accessible, faster, and cheaper. of Croatia, 2015). Master plans, as Master plans of mobility, apart from defining regional strategic documents in the infrastructure investments, will ensure a transport sector, are required to conduct development of transport projects that will the Strategic Environmental Assessment. make it possible to implement common Therefore, likely significant impacts on tariffs and transport tickets for an easier the environment that might affect the purchase. (Ministry of the Sea, Transport implementation of the Master plan should and Infrastructure, 2015) be identified and measures that might alleviate those impacts should be proposed. A design of the Master plan should be preceded by a concept of a transport model 3.1. Transport Development Strategy of that should be interoperable with the the Republic of Croatia for 2014-2030 – National Transport Model. The transport National Strategy model is a computer simulation of the movement of people and goods in a transport The Transport Development Strategy of the network within the framework of a defined Republic of Croatia for 2014-2030 (Ministry spatial part of the Plan (functional region/ of the Sea, Transport and Infrastructure, several counties). It comprises a database 2017) (hereinafter: Strategy) is a strategic of the existing state and serves as basis document that represents the fundamental for planning and financial justification of reform of the transport policy of the Republic investments into the transport system. Upon of Croatia for the next 15 years, comprising completion of the Master plan, the transport six strategic multimodal goals, 28 special model should test the identified measures. multimodal goals, and 180 sector measures The Plan would thereby be confirmed as for achieving the objectives set by the the all-encompassing plan of a functional Strategy. region/several counties. Adopting the Transport Development The designed Master plan of transport Strategy of the Republic of Croatia for development should, as a developmental 2014-2030 (Ministry of the Sea, Transport document, be in accordance with the and Infrastructure, 2017) completes the other developmental plans. It is the basic first phase of the design of the Strategy. document for designing spatial plans of a Drafting the second stage of the Strategy new generation based on the principles of is currently in progress, with emphasis on integrated approach in spatial planning, strategic assessment of the environmental which goes beyond administrative impact for 2017-2030, which will become a and territorial borders, improving the complete national strategic document based accessibility to cities and isolated areas and on the all-encompassing transport data and strengthening territorial cohesion. national traffic model. For the first time, the Strategy lists “Urban, sub-urban and regional Pursuant to Environmental Protection mobility” as a separate sector that defines 22 Act, all strategies, programmes and measures (U.1-U.22) related to operability, plans financed by the EU are subject to organisation, and infrastructure.
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The introduction of the new sector into of the maintenance, reducing the strategic document on a national level the environmental impact, and ensured the co-financing of the design of implementing measures to increase the the Master plan of transport development safety of the system. and the preparation of project for a certain functional region/several counties. 3.2. EU Funding of the Urban and Regional Mobility in the Republic of Croatia Within certain sectors, the measure U.22 “Review/update local/regional transport The fundamental documents for financing master plans” was implemented as a priority urban and regional mobility in the sector measure. The measure introduces the Republic of Croatia by the EU funds are required transport planning on completely the Operational Programmes “Transport” new grounds, taking into consideration not for 2017-2013 (funding ensured up to 2016) only the infrastructure, but also the operative and “Competitiveness and Cohesion” for and organisational aspects. Functional 2014-2020. The operational programmes regions and/or cities will be required to are documents that define the priority areas develop their own Master plans, that is, (so-called priority axes) for EU funding. plans of sustainable urban mobility that (Ministry of the Sea, Transport and are crucial for an investment into public Infrastructure, 2015) transport systems. “Transport” ensures co-funding of projects The main priorities of the sector of public in urban and regional mobility, namely, urban, suburban, and regional mobility focus designing strategic documents (Master on the following: plans), economic and technological, and technological documentation, environmental • Establishing integrated transport documentation and other studies and systems in the main cities and their elaborates, the design of which is required suburban and/or regional areas; to co-finance the launch of the projects • Developing measures to increase the through the Operational programme share of public transport and means of “Competitiveness and Cohesion”. PT and zero emission modes, such as P&R, restriction to private traffic in the Within the thematic objective 07 of the centres of the cities, prioritisation for Operational Programme “Competitiveness public transport through ITS systems, and Cohesion” – Promoting sustainable etc.; and transport and removing bottlenecks in key • Increasing the sustainability of the network infrastructures – Priority axis 7, system by performing a reorganisation connectivity and mobility is covered by the of the sector, in the organisational transport sector. Urban and regional mobility and legislative sense, particularly by belongs to the investment priority 7ii, which introducing public service contracts ensures funding of the drafting of strategic in line with the regulation (EC) No. documents and project documentation and 1370/2007, improving the efficiency carrying out the projects (Table 1).
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Table 1 Priority axis 7. Connectivity and Mobility – Investment Priorities 7ii. Priority investments Specific Objective Cohesion funds [106 €] Specific objective 7ii1 Improving territorial cohesion and 80,00 Investment priority 7ii connectivity and accessibility to the Developing and improving environmentally- islands friendly (including low-noise level) and low- Specific objective 7ii2 carbon transport systems, including inland Development of intelligent, sustainable 370,00 waterways and maritime transport, ports, 170,00 and integrated system of public transport multimodal links and airport infrastructure, with low CO2 emissions in order to promote sustainable regional and local mobility Specific objective 7ii3 Improvement of accessibility to 120,00 Dubrovnik by air Investment priority 7iii Developing and rehabilitating comprehensive, Specific objective 7iii1 high quality and interoperable railway Increased capacity and use of public 480,21 480,21 systems, and promoting noise reduction transport and promotion of a modal shift measures. Source: (Ministry of the Economy, 2014)
So far the local and regional governments and (the City of Šibenik); self-governments and development agencies • Transport sustainable development in the Republic of Croatia have received master plan for the Brodsko-Posavska 43 mil. Croatian kuna (5.73 mil. €) from county; the European Regional Development Fund • Transport master plan for the City of through the OP “Transport” 2017-2013 for Vinkovci; drafting 10 Master plans of sustainable urban • Development of the functional region and suburban mobility (Figure 1) (Ministry Southern Dalmatia (Dubrovnik-Neretva of the Sea, Transport and Infrastructure, county); 2017) (Ministry of the Sea, Transport and • IPP and IPT Development Project Infrastructure. 2015.): for the regions of Northern Croatia (Varaždin county, Koprivnica- • Transport development master plan for Križevci county, and Međimurje the City of Osijek and Osijek-Baranja county); county; • Sustainable mobility master plan for the • Development master plan for the traffic region of the City of Zadar; and direction Rijeka (the City of Rijeka); • Phase 1 of the Transport system Master • A study of transport development of the plan for the City of Zagreb, Zagreb Karlovac county; county and Krapina-Zagorje county • Intermodal urban eco-friendly bus and (analysis of the current situation and ferry public transport system – UrbEco transport model development).
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Fig. 1. Sustainable Urban and Suburban Mobility Master Plans in the Republic of Croatia (Currently Being Drafted) Source: (Ministry of the Sea, Transport and Infrastructure, 2015)
Upon completion of all the plans, funding • Introduction of common ticket system is possible for designing local plans of and modernised systems of notifying sustainable urban mobility and other passengers; and documentation required to carry out projects • Construction and improvement of through the OP “Competitiveness and cycling lanes. Cohesion” (2014-2020). 4. System of Integrated Passenger The projects must be in accordance with the Transport and Shipping Tariff Union in OP and include the following (Ministry of the City of Zagreb, Zagreb County, and the Sea, Transport and Infrastructure, 2015): Krapina-Zagorje County • Infrastructure development and parking Integrated passenger transport is a new systems that are a continuation of the system of public transport recognized and public transport; supported as being the optimal system of • Procurement and modernisation of the organising public transport in all the basic
passenger transport fleet with low CO2 strategic documents (White paper, 2011). emissions for the operators in the public All the vehicles of public transport (trains, transport; buses, trams, and others) comprise a • Application of surveillance system unified system of passenger transport in a and intelligent transport system certain region. There are common (single) management within the urban areas; transport tickets for all the lines of public
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transport throughout the region. The government and regional self-government. system commonly uses timetables adjusted This requires reaching a partnership to regular time intervals. There is a large agreement which would commit all the number of stations (terminals) for various parties to adhere to the agreement in order vehicles in the public transport system. The to realise the project. In 2012, Agreement on railway acts as the axis of the system (trains, integrated passenger transport and shipping trams) due to its ecological and energetic tariff union for the City of Zagreb, Zagreb benefits. The rest of the vehicles (buses) act county and Krapina-Zagorje county was as inflows to the railway. signed.
End users, i.e. passengers profit the most The agreement regulates the cooperation from an integrated system, receiving in the organisation, development and transport connectivity with lines of the advancement of public urban and suburban network of public transport, a common transportation by means of setting up a system of transport tickets, a common and system of integrated passenger transport simplified system of notifications about all and shipping tariff union in the area. The the aspects of public transport, a common agreement was preceded by “Study on purchasing system, and a shorter journey integrated passenger transport in the City of times, and reduction in fares. Zagreb, Zagreb county, and Krapina-Zagorje county” (City of Zagreb, 2008) carried out 4.1. The Realisation of Integrated in 2008. The study proved that the proposed Passenger Transport System Projects model of public transport organisation can be applied in the researched region. The transport systems of the City of Zagreb, Zagreb county and Krapina-Zagorje county With the partnership agreement all the have previously not been viewed as one entity, requirements have been met to initiate the which resulted in unbalanced development realisation of the IPTS project, defined in of traffic infrastructure and management of the Contract on phase 1 of the IPTS Project, transport processes, particularly in urban which includes a design of two subprojects and suburban transport. This led to the completed in 2014: fact that 60 per cent of journeys include personal vehicles. Consequently, there • Preliminary design of the IPTS are many congestions, the traffic safety organisation; and is lower, the noise level higher, there are • Preliminary design of the tariff system harmful emissions, which ultimately affects of the IPTS. the quality of life and competitiveness of region’s economy. Improving mobility by The model proposes that the urban and relieving the traffic congestion, lowering the suburban railway in the greater Zagreb number of accidents and reducing pollution area, and the existing tram network in is a challenge for the cities and regions. the centre of Zagreb, become the pillar of public passenger transport, until a Transport projects demand cooperation construction of a newer and faster urban and common efforts of more units of local railway system. Urban and suburban bus
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connections would then complement the 4.1. The Master Plan of the Transport main railway lines. System of the City of Zagreb, Zagreb County and Krapina-Zagorje County In the new model of organisation of public passenger transport, railway systems should The undertaker of the Master plan is become carrier of traffic load, as an eco- Integrated traffic of Zagreb area Ltd. (or friendly and sustainable system. According “IPZP d.o.o.”), founded with the objective to the new concept of organisation of urban- of drafting and implementing projects suburban railway transport, urban and related to the establishing and managing suburban trains would depart in regular a new model of passenger transportation time intervals (adjusted timetable). and management in the geographical area of the City of Zagreb, Zagreb County and Proposal for managing bus connections in Krapina-Zagorje County. Based on the initial the new organisation of public urban and investment by the City of Zagreb with a suburban transport made for the model of share of 60%, Zagreb County with a share the IPTS assumes significant undertakings in of 25% and Krapina-Zagorje with a share adapting the transport infrastructure to the of 15 %, in 2016 the three parties signed a IPTS, which mostly affects the organisation contract on the design of the Master plan for of intermodal junctions. the transport system of the City of Zagreb, Zagreb County and Krapina-Zagorje County, Figure 2 shows the preliminary design of to be carried out in two phases: the organisation of integrated passenger transport with intermodal junctions, existing • Phase 1: Analysis of the current situation and planned railway and tram lines between and development of the transport model. the junctions in the Zagreb area by the year This phrase includes the collection of 2025. data on the current state of the transport system, which includes extensive traffic Phase II of Integrated passenger transport studies, counting, traffic surveys, (IPTS) is comprised of projects and studies: data analysis and processing with the (Integrated traffic of the Zagreb area, 2017) help of traffic model for the purpose of identifying problems and defining • A study of adjustment of the operator’s measures and actions to address them; organisation structure to the modal of • Phase II: Development and selection integrated passenger transport; of transport solutions by testing • Plan of transport infrastructure and evaluating various scenarios for adjustment to the needs of the integrated development of the transport system passenger transport; and specific transport solutions, through • Project of automation of tolls and ticket appropriate, previously developed inspection in the integrated passenger and adopted traffic model, defining transport system; and priorities and stage development of • Project of notifying passengers – users the transport system, and carrying out of the integrated passenger transport. Strategic Environmental Assessment.
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Fig. 2. Preliminary Design of the Organisation of Integrated Passenger Transport Source: (Integrated traffic of the Zagreb area, 2017)
Master plan will ensure the integration of Using one ticket for a single trip in the area of transport subsystems through institutional, integration would, in an integrated transport organisational and infrastructural system, ensure higher quality and appeal of improvements with emphasis on integrating public transport services for passengers, as systems of public urban and suburban well as the shortened travel time, reduced transport. Implementing measures for cost of travel, and a better notification the improvement of urban mobility is system. encouraged, as well as strengthening connectivity of the county with a city. An With the help of the Master Plan, the eco-friendly, energetically and economically following capital projects will be evaluated, acceptable urban transport is desired in the which are either already planned to be counties. implemented into the integrated transport system of the City of Zagreb, Zagreb County The concept and realisation of the Master and Krapina-Zagorje County, or will be plan through the project of integrated separate projects that will be supplement transport system will aid in improving the integrated transport system project: accessibility to public transport, that is, the inclusion of neighbouring cities and regions • The project of reconstruction of the into the integrated transport system of the Zagreb railway junction, including the City of Zagreb, through a common tariff. As de-levelling of railway line through a result of operational and organizational the centre of Zagreb, the construction integration of all means of transport – of the double-track railway towards rail, tram and bus, as well as a variety of suburban destinations: Velika Gorica, alternative forms of movement – there will Samobor, Jastrebarsko, construction be an increase in efficiency. of freight bypass and the construction
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of Zagreb – Zagreb Airport – Velika Cities and regions are expected to develop Gorica connection, modernization and their own master plans as strategic electrification of the Zaprešić – Zabok documents for further development of railway, reconstruction of Zabok – transport projects and their funding from Đurmanec – State border railway, and the EU. the reconstruction of the Savski Marof – Kumrovec – State border railway; The Transport operational programme 2017- • Project of bus stops arrangement in the 2013 in the Republic of Croatia ensured co- Krapina-Zagorje County; funding of the design and undertaking of • Project of central automated traffic 10 master plans of sustainable urban and management of the City of Zagreb; suburban mobility. • Project to construct fast, underground or over-ground rail system, such as a Agreement on integrated transport and metro or light rail transit; the shipping tariff in the area of the City • Project to design a new Sljeme cable car; of Zagreb, Zagreb County and Krapina- • Project of the new road bypass around Zagorje was signed in 2012. The agreement the City of Zagreb; stimulates implementing the measures for • Project of reconstruction and upgrade improving urban mobility, and strengthening of the road distribution ring around the connectivity of the counties with the City of central part of the City of Zagreb; Zagreb. Emphasis is placed on the needs of • Project of central distribution station the local residents in their daily commutes, for road freight traffic of City of Zagreb; so that they would be guaranteed, through • Project of reconstruction and upgrade of projects of integrated transport, a more the tram network in the City of Zagreb; accessible, faster, and affordable public • Project to construct a third lane of transport. An eco-friendly, energetically and Karlovac-Zagreb motorway; economically acceptable urban transport is • Project to construct a railway from promoted. A model, in which the urban and Podsused (factory) to Samobor-Bregana suburban railway would assume the main and others. role in the public passenger transport in the greater Zagreb area, and the tram network 5. Conclusion in the narrow area of the City of Zagreb, is suggested. In such an organisation, urban The general objective of the transport and suburban bus lines would have to transit development of the Republic of Croatia to the railway network. is a balanced and sustainable transport system based on the principles of territorial Phase I of the Master plan of the transport cohesion. The Transport Development system for the City of Zagreb, Zagreb Strategy of the Republic of Croatia for county and Krapina-Zagorje county is 2014-2030 introduces the requirement of currently being drafted, which would transport planning founded on a completely ensure integrating transport subsystems new bases, taking into consideration not only through institutional, organisational and the infrastructural, but also operational and infrastructural improvements with emphasis organisational aspects. Cooperation in a on integrating systems of public urban and functional regional context is encouraged. suburban transport.
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Acknowledgements Ministry of the Economy. 2014. Operational Programme Competitiveness and Cohesion 2014 - The paper is supported by the PROM – 2020 2014HR16M1OP001-1.2. Zagreb, Croatia. 316 PRO research project „Adapting the railway p. Available from internet:
Croatian Chamber of Economy. 2015. Cohesion Šimecki, A.; Steiner, S.; Čokorilo, O. 2013. The Policy of the European Union and Croatia (Kohezijska Accessibility Assessment of Regional Transport Network politika Europske unije i Hrvatska 2014. - 2020.; In in the South East Europe, International Journal for Traffic Croatian). Zagreb, Croatia. 72 p. Available from internet: and Transport Engineering 3(4): 351 – 364.
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