Metropolis on the Move —Public Transport in Berlin Carola Jeschke

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the north-eastern suburbs. Introduction Berlin’s Growing Capital Role Until recently, 50% of the S-Bahn rolling stock was built between 1927 and 1942, As a result of the German unification on Berlin's growing role as federal capital resulting in higher operating and main- 3 October 1990, the federal government will act as a magnet for even more tenance costs. To solve these problems, decided on 20 June 1991 to move the activities, creating further demand for 500 new double-cars were ordered and r nation's capital from Bonn to Berlin. After more frequent air connections to more the first 100 are now in service. nearly 8 years of comprehensive planning destinations. In June 1996, it was decided and preparations, Berlin is on the verge to designate Schönefeld Airport as the U-Bahn Subway System e of becoming the new federal capital just future principal airport for Berlin. Before in time for the new millennium. In the assuming this role in 2007, the airport interim period, the opening up of eastern will be expanded and renovated. A new Berlin's subway system (U-Bahn) is nearly Europe has shifted Berlin from the edge north-south rail connection will provide 100-years old and carries the largest of Europe to a more central position on the a direct link between the city centre and number of passengers in Berlin’s public European axis, making the city a European the new airport on the periphery. transport—about 440 million per year— communication and transport hub. The expected increase in urban traffic will due to its reliability, frequency, high Berlin's skyline today is dominated by also place major burdens on the city's capacity, and speed. It has been chosen construction, and its new government future public transport systems, not least as the transport mode serving the newly functions and role at the heart of Europe because road capacity is restricted and built government districts housing the mean that it requires an advanced needed for commercial transport. Bundestag, and the offices of the German transport system. Deutsche Bahn AG Chancellor and President. A new city line (DB AG) is investing about DM20 billion is under construction but financial (DM1 = US$ 0.55) in developing the S-Bahn Suburban Railways restrictions have delayed its opening until region's ICE high-speed train network as 2004. One new station at Mendelssohn– well as the regional and suburban express Berlin's suburban railway system (S-Bahn) Bartholdy Park was opened in October trains (S-Bahn). DB AG is coordinating is basically a loop line with radiating arms 1998 and the extension of Line 2 to the planning and implementation of quite similar to that of Tokyo. The Berlin Pankow is under construction. many building projects in Berlin, the S-Bahn was built in the 1920s and 1930s From the tunnel viewpoint, the U-Bahn largest and most spectacular of which is and was being used by 2 million consists of two networks composed of the construction of the 9-km north-south passengers daily in 1943. Reinstating two lines with narrow tunnel profiles and link with a 3.4-km quadruple-track tunnel the S-Bahn after the unification has been the rest with wide tunnel profiles. The under the inner city. This link will connect a massive undertaking. Today, most carriage width in the narrow-profile with the east-west main line at the new investment in the S-Bahn is in the form tunnels is 2.30 m and power is drawn Lehrter Bahnhof to become a main of reconstruction and modernization from a live overhead rail. The longest junction on the European railway network based on the pre-war network structure. possible train is eight cars. To increase in 2004. Lehrter Bahnhof will be located Finally, the S-Bahn circle will be complete the capacity of the system, later wide- in Berlin's central Tiergarten district and again. Reconstruction in the south finished profile tunnels were built with a width of will integrate urban rapid transit systems in December 1997 and the north link 7.1 m. The carriage width is 2.65 m and with suburban, regional, and long-distance between the Jungfernheide/Westhafen power is drawn from a live third rail. The railway traffic. When completed, the and Gesundbrunnen stations is expected longest possible train is six cars. For station is expected to handle 240,000 to be finished in 2000. The old network, comparison, the body width of S-Bahn arrivals and 110,000 changes each day. which was built in the first half of this cars is 2.95-3.00 m. Passengers arriving at the station will century to match the city arrangement at The new Subway 2000 (H-series) trains travel directly into the government, that time, has been modernized to match serving both the wide- and narrow-profile business, and cultural centres of this the present-day arrangement. As a result, tunnels of the Berlin U-Bahn are fully historic city. some stations have been given additional walkthrough, creating additional standing access according to new or changed room and distributing passengers more relations. Some new stations have been evenly throughout the train. A low-floor built to serve new housing complexes in design makes it decidedly easier to get

Velten Oranien- burg Bernau

Figure 1 Berlin S-Bahn Suburban Rail Network Hennigsdorf Frohnau Buch

suburban rail system extensions Waidmannslust options Blankenburg Tegel subway Warten- berg Ahrensfelde 1 Hauptbahnhof Falkensee 2 Alexanderplatz Hakenfelde Bornholmer Straße 3 Friedrichstraße Gartenfeld 4 Lehrter Bahnhof Westhafen 5 Zoologischer Garten 9 4 6 Charlottenburg Spandau 2 7 Westkreuz 1 8 Ostkreuz 3 Strausberg Nord 5 10 8 Lichtenberg Mahlsdorf 9 Nordbahnhof Pichelsberg 10 Potsdamer Platz 6 7 Karlshorst Papestraße

Rathaus Friedrichshagen Steglitz Schöneweide Spindlersfeld

Wannsee Zehlendorf Erkner Lichterfelde Süd Grünau

Teltow Stadt Lichtenrade Flughafen Stahnsdorf Potsdam Schönefeld

Zeuthen Blankenfelde Königs Wusterhausen

Wittenau Alt-Tegel Pankow Osloer Vinetastraße Figure 2 Berlin U-Bahn Subway Network Str. subway Rohrdamm Hönow Rathaus extensions Spandau 4 Alexanderplatz Ruhleben Kaulsdorf-Nord suburban rail system 5 1 1 Wittenbergplatz 6 3 2 Hermannstraße Biesdorf-Süd 3 Warschauer Straße 4 Lehrter Bahnhof 7 5 Zoologischer Garten 6 Uhlandstraße Krumme 2 7 Innsbrucker Platz Lanke Rathaus Steglitz Alt- Mariendorf Rudow

Rosenthal Buchholz 11 Zingster Falken- 6 Straße berg Ahrensfelde Figure 3 Berlin Tramway Network 7 9 tramway Virchow-Klinikum 4 5 Riesaer Straße extensions Lehrter Bahnhof 2 subway/suburban rail system 1 S Mahlsdorf 3 8 1 Am Kupfergraben Potsdamer Platz 2 S+U Alexanderplatz 3 S+U Warschauer Straße 4 U Schwartzkopffstraße Alt-Rüdersdorf 5 S Landsberger Allee Woltersdorfer 6 Heinersdorf S Schöneweide 7 Pasedagplatz Schleuse 10 Rahnsdorf 8 S+U Lichtenberg/Gudrunstraße Haeckelstraße Friedrichs- 9 Eberswalder Straße hagen 10 Köpenick Adlershof 11 Schillerstraße Wendenschloß

Schmöckwitz

38 Japan Railway & Transport Review 20 • June 1999 Copyright © 1999 EJRCF. All rights reserved. Subway 2000 rolling stock (H-series) (Author) Latest 'big yellow' double-decker bus with low-platform technology and three doors (Author) on and off the trains, especially for wheel- renewed in some cases. Planned tramway average route speeds of about 31 km/h. chair users. Side bench seating caters to investments cover extensions to connect Early this century, Berlin was famous for the growing passenger traffic. The control housing and commercial areas as well as its characteristic open-roof omnibuses, system is also designed to permit fully to improve tramway development in the the predecessor of the double-decker automatic operation with or without eastern part of the city centre. However, omnibus. This tradition of visual identity operation personnel. the massive necessary investment in continues today with Berlin's 'big yellow' the S-Bahn and U-Bahn has deferred double-decker buses. However, to improve addressing the imbalance in the city's efficiency, the metropolitan bus operator Tramways trams. runs many different types of vehicles: The majority (60%) of the tram network articulated, single- and double-deckers, Tramways started operating in Berlin runs on its own right of way and the midibuses and minibuses. Many pleasant more than 130 years ago and the Berlin remaining 40% shares it tracks with minibus services are offered in the late Horse-drawn Railway Company E. normal road traffic. As a result, the evening and night to housing complexes. Besckow was already carrying 960,000 progress of trams is impeded by traffic jams, At night on weekdays, the Berlin transport passengers in 1866. Former West Berlin so a special programme is underway to system depends mainly on buses. Sixty- closed its tramway system in 1967, and adapt traffic signals for trams and to one night buses and four tram lines offer put emphasis on the subway for fulfilling implement appropriate traffic separation services from midnight until the early transport duties. In contrast, former East regulations. morning hours at intervals of 30 minutes Berlin retained and expanded its tramway or less. On weekends, two U-Bahn lines network. In the eastern housing complexes, operating at 15-minute intervals, and the the trams carry large numbers of Buses main S-Bahn lines operating at 1-hour passengers approaching the densities of intervals form the backbone of public the U-Bahn lines. Since October 1997, Berlin's buses function as city-wide transport at night. one 5.4-km tram line now extends from feeders for the other transport systems. About 100 km of priority bus lanes have the old network in the east to former West The easy accessibility of buses and the been designated mostly in crowded city Berlin. The first priority is to modernize short distances between stops offer special street sections to improve average speeds the old tram routes and stops, to match advantages for elderly people. and punctuality. the railway systems as well as to renew Since 1993, nine longer-distance routes the rolling stock. The tramway power with fewer intermediate stops are served supply systems are being expanded and by so-called ExpressBus services with

Improving Transport Systems

The Berlin metropolitan government has decided that rail systems have priority in solving the city's transport needs, so future bus networks will be adjusted to feed new railway links.

Barrier-free access The standard of vehicles is an important factor in user acceptance. It is important to provide comfortable transport for people with different mobility requirements. New buses and trams are meeting the needs of disabled passengers by use of low-floor technologies and more flexible use of space. Not only do low floors provide better access for mobility- Low-floor Berlin tram (Author) impaired passengers, they also speed passenger flows which leads to reduced To counter these problems in Berlin, After the unification, Berlin is now journey times. vandalism and personal safety issues surrounded by the Brandenburg Land (a The new double-deckers carry a maximum have been tackled by using open spacious German Land is a semi-autonomous of 90 passengers but possible conflict designs with tough materials and security regional government) with a sparsely between passengers getting on and off are systems for the buses, S-Bahn and U-Bahn. populated countryside covering 29,500 avoided by a second staircase in the rear Federal and State police patrol the S-Bahn km2 with about 2.5 million inhabitants of the bus. and U-Bahn stations and railway carriages. (86 people/km2)—the average figure for All new subways and railway stations In January 1998, the Berlin Senate passed Germany is 225 people/km2. throughout the transport system offer the '1998/99 Plan for Urban Public In recent years, many housing and com- barrier-free access to wheelchair users Transport' to set standards governing mercial projects have sprung up on the and people with other disabilities through operating quality. The plan includes the outskirts of Berlin, creating a so-called use of lifts, etc. A financial support goal of good-quality public transport fat belt and resulting in more commuters. programme is also in place to retrofit matching the requirements of each At present, 131,000 people commute daily existing stations with similar aids. customer group on the basis of their into the city, while 64,000 commute out culture, occupation, travel purpose, etc. of the city to Brandenburg. Families with Better public transport quality The plan is expected to be confirmed in small children tend to live outside the city standards January 2000. in their own homes, closer to nature with The competition between automobiles less traffic and noise pollution. Car and public transport has increased ownership is increasing in the sprawling customers' awareness of quality aspects, Passenger Demand housing estates. Many households in the such as punctuality, information, passenger- city itself consist only of one or two oriented services, cleanliness, and security. Berlin covers 889 km2 and is home to 3.4 persons. In many big cities around the world, million people (3825 people/ km2). Its Every Berliner makes about three journeys public transport is perceived as dangerous, polycentric structure of several urban each day, giving a daily total of around although the statistics show that it is not. areas with mixed housing, business, and 10.2 million journeys of which 28% are However, passengers' subjective feelings leisure functions, as well as the long on foot, 5% by bicycle, 40% by private about security govern their quality isolation of West Berlin from the surrounding car, and 27% on public transport. This evaluation and acceptance of public country have resulted in shorter-than- totals some 1.2 billion passenger journeys transport modes. average travel distances until very recently. annually on Berlin public transport. For

40 Japan Railway & Transport Review 20 • June 1999 Copyright © 1999 EJRCF. All rights reserved. had risen to 1.27 millions or 374 cars per Table 1 Berlin Public Transport 1000 inhabitants. This figure is still modest compared to other German cities—497 S-Bahn U-Bahn Trams Buses for Düsseldorf, and 427 for Dresden. The Length of network (km)318 143 179 1,261 main reasons for the lower rate in Berlin Number of stations/stops167 169 359 2,706 are the good public transport network, the polycentric urban structure, and the Average distance between stations/stops (km) 1.90 0.85 0.45 0.40 many small households. On average, there Lines are 699 cars per 1000 Berlin households. • Day 13* 10* 28 157 Some of the main aims of Germany • Night 11* 2* 4 61 transport research are to develop strategies Length of lines (day) (km)569 164 250 1,899 for promoting public transport demand Maintenance depots4 6 6 9 and to create attractive and efficient Passenger-km/year (million)2,533 2,427 442 1,311 public transport for smaller numbers of * On weekends passengers, such as better mobility in the suburbs, in the late evening and night, and at weekends.

Table 2 Berlin Age Groups in 1998 User Interface

Under 6 years 4.9% An important topic in German public 6 to under 14 years 9.2% transport policy is to integrate the different 15 to under 19 years 5.4% transport systems. In Berlin today, 57% of 20 to under 44 years 39.6% passengers change lines or transport modes 45 to under 64 years 27.1% during a journey, so buses, trams, the U-Bahn and S-Bahn are all really different 65 years or older 13.8% parts of the same transport 'product'. A comprehensive unified information and fare system, as well as convenient physical connections, greatly simplifies the comparison, German local transport as positive passenger trends since the network difficulties of changing between lines or a whole carries 9 billion passengers per was revitalized after unification by modes. year. upgrading lines, timetables, and quality. The east-west line through the city between Ostbahnhof and Zoologischer Garten Table 3 Growth of S-Bahn Changing Post-unification Passenger Levels Travel Patterns was rebuilt in May 1998, allowing RegionalExpress (RE) trains to serve the S-Bahn/passengers Travel patterns are changing greatly since Ostbahnhof. However, due to the line's per year the German unification, and a transport limited capacity—it also serves main-line (million) survey targeting about 80,000 people was and international traffic—DB AG will 1991 171 completed in 1998 to assess the nature build five more RE lines, two of which will 1992 187 of the changes. The growing number of connect Schönefeld Airport to Berlin. 1993 232 commuters has created an urgent need 1994 249 to reconstruct the S-Bahn tracks. Recon- 1995 245 struction increases the network speeds, Competition with Automobiles 1996 264 which, in-turn draws more passengers 1997 264 from the buses, trams, and U-Bahn. In 1990, 1.16 million automobiles were 1998 269 The regional railways are also seeing registered in Berlin. By 1998 the figure

In Berlin, all rail transport operators use the same uniform fare system so there is Table 4 Operator Train-km (million) in 1996/97 no need to buy a new ticket when making changes. For fare simplicity, the city is divided into three fare-zones: A (inside Berliner Verkehrsbetriebe (BVG) – Subway, tram, bus – 260.30 the S-Bahn loop), B (outside the S-Bahn loop), and C (the belt outside the city). A S-Bahn Berlin Gmbh – Suburban railway – 24.00 marketing strategy using discounted Deutsche Bahn AG (DB AG) 1-month and 1-year passes supports – Regional railway (part Berlin) – 2.15 * public transport by 'locking' customers into long-term use and cuts operating * Reduced because of extensive constructions; costs by reducing the numbers of ticket increase of 93% expected from 1996/97 to 1998/99. offices and sales staff. As a result, 85% of Berliners buy passes, which also save time queuing at ticket machines and when leaving the station because passes Railways (DB). When the railways of covered by public subsidies. For example, do not need to be shown. However, this former East and West Germany were the average shortfall in Berlin is about leads to problems of fare dodgers. In the integrated and unified in 1994 as German 50%. Better services and efficiency are future, electronic ticketing and exit gates Railways (DB AG), the company created seen as the answers. Fare hikes are not will probably be used to prevent this a special unit to operate the S-Bahn. a solution because higher fares would abuse. Another problem caused by joint Responsibility for providing subsidies reduce demand as customers transferred ticketing is how to divide the revenues shifted from the federal to the regional to private cars. fairly between the three operators. Since governments. The federal government The transport operators also play a each operator has different costs, division granted subsidies for transport duties to significant role. Today, Berlin has based only on passenger-km is unjust. the regional governments by levying a three transport companies: Berliner A model based on a mix of counted federal tax on fuels. However, in some Verkehrsbetriebe (BVG), S-Bahn Berlin passenger-rides and passenger-km could new projects, private investors take GmbH, and DB AG. harmonize the differences between the full responsibility for the financing. Berlin's subways, trams, and buses are all Berlin transport companies. For example, two stations on the Berlin operated by BVG, which belongs to the The ultimate aim is to establish a single S-Bahn near new housing complexes regional government. In the future, BVG ticketing system for the entire were financed by the real-estate developers. will be privatized and is discussing Brandenburg region, with Berlin at the Berlin tram and bus shelters are financed separation of infrastructure and operating centre. by income from advertising posters. divisions. Both BVG and DB AG own the In Germany, good public transport is seen infrastructure and rolling stock. S-Bahn Changing Public Transport as an important social and environmental Berlin GmbH is a new S-Bahn operating Organizations requirement and politics has played a company formed by DB AG. major role in service and fare levels. The The public ownership of German transport German public transport is more under the German public expects frequent, extensive, is facing radical change. Market forces influence of different government levels— fast, comfortable, and safe trains with low and reduced government involvement federal, regional, and municipal. Three fares. As a result, German railways require are pushing publicly owned companies cities: Berlin, Hamburg and Bremen/ high subsidies for investment and towards privatization, which should Bremerhaven have a government status operations. The regional governments make services more competitive. of both Land (region) and city, so they play an important role because they plan However, the market has yet to open up are responsible for both the municipal which services are to be retained and due to fears that entry of more operators public transport—subways (U-Bahn), how they are to be provided. They also will lead to severe competition. trams, and buses—and the regional contract with DB AG or other existing As a solution, Germany has developed a suburban trains (S-Bahn). Before the independent operators to run the services. model of transport consortia composed German railway reforms, the S-Bahn was One serious problem is that ticket revenues of regional and local governments, and operated directly by German federal often do not cover costs. Shortfalls are transport operators. The government and

42 Japan Railway & Transport Review 20 • June 1999 Copyright © 1999 EJRCF. All rights reserved. consortium agree on the service levels and the consortium contracts services with Figure 4 Berlin-Brandenburg Regional Railway System (1998) operators. The consortium is responsible

Pasewalk for market development, timetables and RE3 fares. In this model, the government retains some influence over public Güstrow transport and it is hoped that this will Ludwigslust 186 Neustrelitz Hbf RB12 Prenzlau Szczecin RB66 prevent excessively severe competition. 174 RE5

170 RB70 Putlitz Fürstenberg Templin RB63 A new consortium with responsibility for (Havel)

RB66 coordinating public transport in the Berlin- Pritzwalk Wittstock Schwedt RB70 (Dosse) RE7 Angermünde Rheinsberg Groß Brandenburg region was established on Perleberg RB12 RB73 Kyritz Schönebeck RE4 RB27 RB71 Wittenberge Wensickendorf RB63 Eberswalde 1 January 1997. Neuruppin RB27 Herzberg Neustadt RB71 Löwenberg (Dosse) RB53 RB60 RB50 Basdorf RB22 The experience of Tokyo where both JR RB53 Kremmen RB55 Oranienburg Stendal RB73 RE- Berlin- RB27 East and many private transport operators RB21 RB55 Karow Nauen RB21 Hennigsdorf Wriezen RB30 provide integrated services may offer an Tiefensee RB25 RE7 RB29 RB30 Buckow alternative model to the German cities. Berlin- Berlin- Werbig Rathenow Spandau Lichtenberg Kostrzyn Stendal RB13 RB25 RB26 Berlin Müncheberg RB50 Berlin RB26 Seelow Similarly, the wide business diversification RB51 Berlin Friedrich- RB29 Griebnitz- Zool. Garten straße Hauptbhf. see RB21 Frankfurt (Oder) of railway companies in Japan could be Magdeburg Hbf RB60 RE1 Branden- RB36 RE2 Berlin- Berlin Fürstenwalde RB35 burg Hbf Potsdam RB22 Berlin- Charlottenburg Alexanderpl. RB14 (Spree) RB16 Stadt Wannsee a model for better profitability, reducing RB51 RB11 Berlin- RB52 RB33 RB13 Schöneweide the overall need for transport subsidies RB16 Berlin- Beeskow Schönefeld Königs RB12 in Germany. RB24 Wusterhausen RB36 RB35 Michendorf 258 Sperenberg Zossen Güsten RB31 RB31 Wünsdorf Belzig Luckenwalde RB46 RB11 RB24 Peitz RB52 Jüterbog Lübben Hbf Gubin Guben RB33 RB49 Conclusion Dessau RE2 RB41 RE3 RB41 RB43 RE1 250 Lübbenau (Spreewald) Tuplice Cottbus RE5 Forst Lutherstadt RE4 RB46 Wittenberg 216 Calau Berlin faces great challenges and (Niederl)

Herzberg opportunities at the start of the next century. Stadt Finsterwalde RB43 (Niederl) RB14 220 It is Germany's new federal capital located Falkenberg Doberlug- Senftenberg Bad Kirchhain Liebenwerda Görlitz RE4 at the heart of an ever-expanding Europe RE1 Leipzig Ruhland RegionalExpress-Line RB49 Hoyerswerda Hohenbocka RE5 RE- Elsterwerda RB49 RE15 and will require a modern transport RE-Bus 227 Kamenz

RB11 216 infrastructure matching its new status. RegionalBahn-Line 520 Buses replacing railway services during construction Riesa Priesterwitz Dresden Hbf RE5 Customer-oriented services that attract RE15 large numbers of passengers are the key to commercial success in an increasingly (Source: DB AG) competitive European transport market. I

Carola Jeschke

Dr Jeschke is General Manager for Public Transport Services with the Berlin Metropolitan Council. She has also worked as a transport engineer for AEG, and as a researcher at the Technical University of Berlin where she obtained her doctorate in engineering. She has published extensively on public transport and passenger safety.