City of St. Petersburg Transport Strategy for Main Report

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1 Public Disclosure Authorized Public Disclosure Authorized Public Disclosure Authorized Public Disclosure Authorized Advisory Services for the development of the City Transport Strategy for St Petersburg City of St. Petersburg Transport Strategy for Main Report March 6, 2011 Sustainable Development The World Bank

2 This document has been prepared by a World Bank team under a reimbursable Technical Assistance (TA). The strategy document was prepared over a period of about 6 months and it considered a draft document. Some chapters have relied heavily on direct input from several committees and additional analysis and input may be needed to complete the City urban transport strategy.

3 TABLE OF CONTENTS EXECUTIVE SUMMARY... iii PART ONE THE ORIGIN AND STRUCTURE OF THE STRATEGY... 1 The Historical Background... 1 The City Vision... 1 Transport in the Context of the City Vision... 2 The Transport Vision... 3 Objectives to Strategy the Fundamental Challenge... 3 Diagnostics Benchmarks and Targets... 6 PART TWO THE CONTENT OF THE STRATEGY... 9 The Basis Coherent Land Use and Transport Policies... 9 A. Efficient Use of Infrastructure Reducing Congestion A1. Strategic Road Investment A2. Improving the Physical Condition of Roads A3. Using Road Space Better Strengthening Traffic Management A4. Managing Private Car Demand Traffic Restraint A5. Improving the External Transport Links B. Social Equity Accessibility for All B1. Improving Operational Efficiency of Public Transport B2. Giving Priority to Public Transport System Development B3. Providing for Pedestrians and Cyclists C. Quality of Life Safe and Healthy Movement C1. Reducing Air and Noise Pollution C2. Making the Roads Safer C3. Protecting the Environment from Freight Traffic C4. Protecting Cultural Heritage a Policy for the Historic Center PART THREE IMPLEMENTING THE STRATEGY Financing the Implementation of the Transport Strategy The City Budget Overview and Outlook Non-Budgetary Financing Strategizing City s Transport Spending Improving Market Efficiency and Financial Sustainability Private Sector Participation and Public-Private Partnership Institutional Arrangements i P a g e

4 Preparation The Program of Studies Prioritizing Investments Sequencing A Consolidated Action Timetable Appendix Membership of the Working Group Annexes: (Volume 2) 1. Benchmarks and Targets 2. Experience with Congestion Charging in Four Cities 3. Parking Policies in Europe 4. Traffic Management Organization in New York, London, Paris, and Helsinki (as of 2005) 5. Reversing the Trend Travel in London Performance-Based Contracting for Management and Maintenance of Urban Road Networks 7. Gross Cost Contract Franchises in London 8. International Experience of Management of Transport in Metropolitan Areas 9. International Trends in Land Use Planning 10. International experience with urban transport integration 11. International experience with urban transport safety policy 12. International experience with environmental impacts of urban freight movement ii P a g e

5 EXECUTIVE SUMMARY In July 2007 the city government adopted a general strategy for the Social and Economic Development of St Petersburg until the year , while a Master Plan of St Petersburg elaborated on the physical planning implications of the emerging city strategy. These documents envisioned the city simultaneously as a political and cultural center, as the most important trade and transport hub in the Russian Federation, and as a center of high quality, high technology industry. Together these three activities were to bring income, living standards and the quality of life up to western European standards. The great cities of Europe London, Paris, Madrid have transport systems which assure efficient movement for business, affordable accessibility for all citizens through dense public transport systems, and support a high quality of life in which personal safety, a healthy environment and a vibrant cultural heritage are protected. The current state of the transport system of St Petersburg falls short of this. Roads are congested, often clogged with parked vehicles, the public transport system is inadequate in both quantity and quality, and environmental and safety impacts are unacceptable. The aim of this transport strategy is to overcome these deficiencies, producing a transport system worthy of a great European city. St Petersburg is in some respects very distinctive. By Western European standards it is very heavily populated. But it is very extensive, covering an area only 10% less than Greater London. This gives it an average population density of 3238 persons per km 2 very similar to that of Warsaw and Budapest. But unlike those cities, which are totally built up area, it has a city proper of only 606 km 2 which contains 90% of its population. So the density of the city proper is twice that of the city region and is denser than Athens or Madrid. And some of the residential areas, particularly in the north of the city, are even denser than that. Although the city is still relatively poor, with an annual GDP per capita less than that of Warsaw, Budapest or Prague, its economic development over the last decade has resulted in a rapid growth of car ownership, already reaching 300 per thousand compared with London s 350. At the heart of the transport problems of the city is that, despite the high population density of the built up city it has a very low overall road network of 2.15 km per km 2. Even if only the city proper is considered the density is still less than 5 km per km 2 which is less than any of the European capital cities except Sofia. The harsh climate damages the roads and contributes to making the roads congested and dangerous, with a death rate per head of population exceeding that of any of the other comparator cities. The relatively low income of the city also has the consequence that its public transport, though not expensive in absolute terms, appears among the most expensive in Europe in relation to GDP. As a consequence, its public transport network density per km 2 and coverage per head of population is only moderate and the network of metro and suburban railways is well below the norm for a city of its size. The crux of the problem is thus that the very high rate of growth of car ownership, and the high dependence on road transport of both transit and terminal freight movements, have put heavy pressure on a road infrastructure which has some significant defects both in structure and management, while public transport, caught in the resulting congestion, offers an insufficiently attractive alternative to the use of the private car, even at the most congested times and places. 1 Government decree 884, iii P a g e

6 Objectives Indicators Comparison with European Benchmarks Efficiency System inputs Outcome Accessibility System inputs Quality of Life Outcome Outcome Price of on-street parking in city center Peak hour road speed High-speed segregated public transport Network density Surface public transport peak hour speed Annual road accident fatalities per 100,000 residents St. Petersburg London Madrid Paris per hr per hour (Barcelona) 1 3 per hr Not reported 24 km/hr 23 km/hr 33 km/hr 0.08 km/km km per 100,000 residents 0.44 km/km km per 100,000 residents 0.56 km/km km per 100,000 residents 0.25 km/km km per 100,000 residents Not reported 31 km/hr 20 km/hr 17 km/hr (Ile de France) Further growth in car ownership, associated with increasing incomes threatens to make the situation even worse. However, the city government recognizes the attraction of car ownership to its citizens so, instead of concentrating on trying to resist the expansion of car ownership, it intends to follow a strategy of improving the efficiency of infrastructure provision and use by a combination of instruments. Land development control will be used to limit the total amount of transport necessary and encourage the use of public transport. The efficiency of the road system will be improved by better structure, maintenance and management. Road traffic will be better managed and where necessary restrained and public transport will be made a more attractive alternative to the private car where road congestion is most damaging. Performance of the system will be continuously compared with that of other great cities, and targets set on the basis of best international practice. All of this will be carried out within a revised institutional framework, distinguishing between strategic direction, tactical management, and operational decentralization. The general strategy, set out below, will act as a guide for all policy and budget decisions, applied by a dedicated, special purpose unit within the city government structure. Policy for each of the major functions roads, traffic management and public transport will be subject to management by functionally specific units with the city government organization. Operations on the ground implementation of the policies will be undertaken by separate agencies working as contractors at arm s length from the managing agency. These may be private or publicly owned, but will all be operating as business units on business principles. The context for the strategy will be the adoption of coherent land use planning and transport policies, recognizing their close interdependence. Within this context St Petersburg will aim to achieve three parallel and mutually reinforcing objectives. First, it aims to make efficient use of its road infrastructure by reducing road congestion: this will enhance its economic competitiveness. Second, it aims to provide affordable accessibility for all citizens through its public transport system: this will protect poorer citizens. And third, it will protect against adverse safety and environmental impacts of transport as well as the damage that transport can inflict on its cultural heritage: this will enhance the quality of life. The targets set for these objectives are as follows. In pursuit of these objectives the city government has identified the main policy instruments shown diagrammatically below. For most of the elements, successful implementation requires an optimal iv P a g e

7 mix of various instruments including administrative changes, investments, and technical improvements. For each element the main issues of concern are identified, best international practices are considered, and a strategy program of action is constructed, including any necessary institutional or policy reforms as well as the necessary investments or budget appropriations. Objective Instrument A: Transport Efficiency Fight Congestion B: Equity Transport for All G: Coherent land-use planning C: Quality of Life Planning and Administrative Measures Infrastructure Development Improvement of Management and Operation A1: A4: Strategic Manage B2: Give Road Private Priority to Investment Demand Links Car Public Transport C4: A2: Improve Physical Condition of Toads A5: Improve External Transport A3: Better Use of Road Space Traffic Management B1: Improve Operating Efficiency of Public Transport B3: Provide for Pedestrians and Cyclists C1: Reduce Air & Noise Pollution C2: Make Roads Safer C3: Protect Environment from Freight Traffic Protect Cultural Heritage G. The physical planning context coherent land use and transport policies The city government of St Petersburg will ensure that its pattern of economic development contributes to the achievement of all three of its transport objectives. The demand for transport is derived from the patterns of economic and social interaction within the city. Insofar as the levels and locations of the main social and economic activities (employment, education, residence, health, etc.) can be managed, the nature of the transport demands can be molded into preferred patterns, to contain the total amount of travel and to influence the choice of mode of travel. For example, planning controls may be used to influence the location of new developments, the provision of residential parking, and park and ride facilities for public transport. Though such controls may bring about change only slowly, especially where city population is static, they are potentially powerful influences. The 5 year program of action for this element is as follows: v P a g e

8 Intervention Administrative/ Legal Institutional/ Organizational Studies/ Technical Ref. Action # G.1 Institute traffic impact assessment for all major re/developments G.2 Strengthen and streamline collaboration between the Architecture and Planning and a Strategic Transport Unit (STU) created within the Transit through a small inter-committee working group G.3 Study the potential for encouraging mixed-land use patterns through planning and development controls G.4 Explore possibility for targeting densification of residential development around public transport stations G.5 Pilot telecommuting and staggering of work hours in the municipal government G.6 Assess alternative locations for the new Gasprom development Responsible Entit(ies) Architecture Comm., Traffic Management Authority Transit Policy Comm., Architecture and Planning Comm. STU, A&P Comm A&P Comm, Transport Comm. Various committees of the City Government A&P Comm., City architect Resources Starting Ending City leadership and staff City leadership and staff Immediately Immediately Staff Early 2012 Staff Early 2012 City leadership and staff Staff, consultant Immediately In 2011 A. The efficiency objective reducing congestion The proper functioning of the city requires efficient use of its infrastructure for movements within the city and for contacts with the rest of the world. As the bulk of trips are dependent on the road infrastructure the reduction of road congestion is central to this objective. Five main instruments are concerned. A1. Strategic Road Investment The city government will continue to improve its road facilities where this is consistent with the general strategy. There are some possibilities for increasing available road space which can be exploited in St Petersburg. However, unless carefully designed and associated with purposeful traffic management, increasing the capacity of the inner radial routes in St Petersburg may simply accentuate the congestion problem in the city center. In already densely developed areas building more roads can only be obtained by demolishing buildings or infringing upon them in ways which damages their value. Particularly where the cultural heritage is at stake this is unacceptable. It is also extremely costly unless a relatively unimpeded route already exists and the city does not believe that it can build its way out of congestion. The principal objective of this strategy element is therefore to facilitate cross town and orbital traffic movements with particular emphasis on minimizing traffic through the congested city center. This will include the following; Completion of the KAD (ring road around the city) and the Western High Speed Diameter (WHSD) as important elements in creating high speed and high capacity routes to reduce cross city travel times, and to divert traffic, including port traffic, from the city center. vi P a g e

9 Completion of orbital roads and bridges relieving pressure on the historical central area including the Obvotny Canal loop, the Vassilievsky island bridge and other bridge repairs. Completion of several radial roads outside the KAD to improve connections to the outer city and suburbs and improve external connectivity without generating significant extra inner city traffic. Establishing a functional road classification system and corresponding design guidelines to assist serve as a foundation for decisions on road investment priorities and on road design standards. Developing a mechanism for determining investment priorities, and a rolling 5 year road investment program to be assessed against other elements of the overall transport strategy. Mobilizing off-budget finance. The city will work to secure additional funding from sources including Federal Government contributions, road tolls and private sector investments, and prudent city borrowing either in the form of bonds or bank loans. The 5 year program of action is as follows: Intervention Ref. # Action Responsible Entit(ies) Administrative/ A1.1. Legal Studies/ Technical A1.2. Reform the municipal legislation requiring function-based road network classification Prepare a prioritized road investment program based on an agreed process and quantifiable economic and technical criteria. A1.3 Road classification and design guidelines study Transit Policy (Strategic Planning Unit) Transit Policy (Strategic Planning Unit) Infrastructure Resources Starting Ending City leadership and SPU staff SPU staff, external consultant SPU staff, external consultant Immediately End of 2011 Mid 2011 Mid 2012; annually update prioritized program Mid A1.4 Complete design of the loop road encircling the city center and connect-ing with WHSD both north and south of city center A1.5 Complete design of new bridge over the Neva from the city center to Vasilevsky Island and rehabilitation of other bridges along with public transport (PT) priority measures A1.6 Complete design of the Orlovsky tunnel including public transport priority measures Investments A1.7 Complete Western High Speed Diameter A1.8 Complete the loop road encircling the city center and connecting with WHSD both north and south of city Infrastructure Infrastructure ; Traffic Management Authority (TMA) under the Transit Policy for PT priority measures Infrastructure ; TMA for public transport priority measures Infrastructure Infrastructure External consultant External consultant Concessionaire, and/or External consultant ongoing Concessionaire Prep (financing) immediately 2015 Contractor Ongoing 2014 vii P a g e

10 center A1.9 Complete the Orlovsky tunnel including public transport priority measures A1.10. Construct bridge over the Neva River from the city center to Vasilevsky Island and rehabilitate other bridges along with public transport priority measures A1.11 Selected other proposed high priority investments as recommended under action A1.2 within the available city budget Infrastructure Infrastructure ; TMA for public transport priority measures Infrastructure Concessionaire End Contractor During Contractor Ongoing 2015 A2. Improving the physical condition of roads The city government will introduce a modern road maintenance management system. The performance of the existing road network depends critically on its condition. At present it is estimated that over 40% of the total network is at present in need of some kind of maintenance and repair. International experience shows clearly that the extra costs to road users resulting from inadequate current and periodic maintenance of roads greatly exceed any savings to the road agency. Proper maintenance is thus good economics. Better data and analysis is needed to identify optimum maintenance needs and to ensure that available maintenance funding is used to the greatest effect. The program of action is as follows: Intervention Administrative/ Legal Institutional/ Organizational Investments Ref. Action # A2.1 Pursue federal level legislative changes in order to implement performance-based contracts for road maintenance and rehabilitation A2.2 Create and build capacity for a road asset management assessment unit under the Infrastructure that is supported by adequate technology, equipment, staffing and management capacity A2.3 Institute a budgetary process that allocates resources on the basis of investment priorities developed by a computerized road asset management system A2.4 Create a comprehensive computerized road network database; Recommend and calibrate a road asset management program for the purpose of assessing and recommending road maintenance and rehabilitation priorities Responsible Entit(ies) Transit Policy (Strategic Planning Unit) Infrastructure City Government, with Strategic Planning Unit Infrastructure Resources Starting Ending Collaboration with Federal gov. City leadership and staff, supported by external consultant City leadership and staff External consultant Immediately Immediately After A2.5 Immediately or Mid 2011 End of 2011 Early 2012 Early 2012 Mid 2012 viii P a g e

11 A2.5 Purchase and install a computerized road network assessment tools, selecting from commercial off-the-shelf (COTS) software A2.6 Institute and start implementation of performancebased contract Infrastructure Infrastructure Provider, external consultant City leadership and staff In 2011 After A2.1 A3. Using road space better strengthening traffic management The city government will develop a program of improved traffic management. Even where the total amount of road space cannot be increased it is possible to manage the use of that road space to make it safer and quicker, using modern information technologies as well as long established traffic engineering techniques. Traffic management can also support the strategy by giving effective priority to public transport, focusing on minimizing total travel times rather than simply on increasing the speed of movement of cars. In comparison with other European cities St Petersburg has placed much less emphasis on traffic management measures, which have been found to yield very high rates of return, both economically and socially. This deficiency will be addressed in the coming 5 year action program. The 5 year program of action for this element is as follows: Intervention Ref. # Action Responsible Entit(ies) Institutional/ Organizational Studies/ Technical A3.1 Broaden and strengthen the responsibility of the Traffic Management Authority (TMA) to become responsible for comprehensively addressing all measures that affect traffic operations and safety on the existing street network. A3.2 Establish a high level Road Safety Working Party (see C2.1) A3.3 Undertake extensive and ongoing traffic surveys to update knowledge of existing traffic conditions and problems A3.4 Develop a strategic Intelligent Transportation System (ITS) Plan including improvement and expansion of the traffic signal system A3.5 Develop a public transport priority plan and design key segregated corridors (see B1.6 and B2.2) A3.6 Prepare prioritized program for addressing traffic bottlenecks including development of Transit Policy (Strategic Planning Unit) assigns new responsibilities to TMA SPU Resources Starting Ending City leadership and staff SPU, TMA and Police Immediate 2012 Mid 2011 TMA Staff Mid 2011 Continual Strategic Planning Unit, TMA SPU to designate corridors, TMA to design Strategic Planning Unit, TMA Staff and consultants Staff and external consultant Staff, external consultant Mid 2011 Mid 2012 Mid 2011 End 2012 Mid 2011 Mid 2012; annual update of prioritized ix P a g e

12 geometric designs for improvement of road segments, intersections and interchanges (see A5.4) Investments A3.7 Complete full coordination of traffic signal system at 250 intersections A3.8 Implementation of the first phase of proposed ITS measures A3.9 Implement geometric road improvement program to improve traffic operations (as proposed in A3.6) TMA TMA Infrastructure Staff, contractor Staff, contractor Staff, contractor Ongoing After A3.4 program End of 2011 End of A4. Managing private car demand traffic restraint The city government will implement a program of strategic traffic restraint. The balance between the supply of road space and the demand for it, which is what determines the level of congestion, can be altered by measures to restrain demand at times and in locations where congestion is worst. This can be done through physical controls on access or parking or through pricing measures charging for parking and for access to the most vulnerable areas of the city. Both can be effective as evidence of recent improvements in traffic conditions in London have shown and have the added advantage that they yield revenues to the city which can be used to improve public transport provisions. Traffic restraint implies either that trips are suppressed which may be possible for some less essential activities or that provision must be made for them to be accommodated in some other acceptable way. The city government will therefore introduce restraints on private car traffic should only be introduced when they are accompanied by the provision of adequate alternatives. This means improving public transport very substantially. Off-street parking in residential areas needs to be increased both to increase the road space available for movement and to improve the environment. The 5 year program of action for this element is as follows: Intervention Ref. # Action Responsible Entit(ies) Resources Starting Ending Institutional/ Organizational Administrative / Legal Studies/ Technical A4.1 In line with A3.1, strengthen skills and analytical capabilities of the TMA for parking policy setting and parking system design A4.2 Strengthen implementation and enforcement function of the Garages and Parking Lots Authority (GPLA) A4.3 Secure Federal legislation to permit introduction of paid onstreet parking and congestion pricing A4.4 Update and extend the existing central area parking study A4.5 Extend and complete the GPLA study on residential parking conditions and demand Strategic Planning Unit, TMA Strategic Planning Unit, GPLA Strategic Planning Unit Strategic Planning Unit, TMA Strategic Planning Unit, GPLA City leadership and staff City leadership and staff Collaboration with Federal government. External consultant External consultant Immediately Immediately Earliest possible Immediately Immediately Complete within 2011 Complete within 2012 End of 2011 End of 2011 End of 2011 x P a g e

13 A4.6 Extend and complete the draft Park&Ride Program GPLA * A4.4 A4.6 can be done under one single study. A4.7 Study alternative congestion pricing possibilities and recommend a solution for implementation. Investments A4.8 On-street parking charging and enforcement equipment Strategic Planning Unit TMA External consultant External consultant Contractor or concessionaire Immediately Mid 2011 After A4.3 End of 2011 End of 2012 Early 2012 A4.9 Implement city-wide parking program including construction of new parking facilities in the city center, residential areas, and Park&Ride A4.10 Implement congestion pricing in the historic city center including installation of congestion charging technology GPLA TMA Contractor or concessionaire Contractor or concessionaire After A4.4 - A4.6 After A4.7, if recommended to adopt congestion charging By 2015 End 2015 A5. Improving the external links The city government aims to enhance its national and international passenger transport connections. It will continue its policy of improving the sea and air ports, largely through the adoption of PPP schemes such as that for the reconstruction of Pulkovo airport. It will also collaborate with the national rail company in improving the inter-city rail facilities within the city, including the development of a combined long distance bus and rail terminal. Road access will be improved by improvements to the radial road system outside the KAD as well as by initiating construction of the St. Petersburg segment of the Moscow-St. Petersburg toll road. The program of action is as follows: Intervention Ref. # Action Responsible Entit(ies) Resources Starting Ending Studies/ Technical Investments A5.1 Examine possibilities to improve and expand commuter rail services (see also B2.2) A5.2 Identify locations and designs of intermodal stations A5.3 Continue the ongoing Pulkovo Airport and Vassilievsky Passenger Terminal projects A5.4 Remove at-grade crossings at intersections with heavily used rail lines, including the highspeed link to Finland (see A3.6) A5.5 Construct intermodal stations that combine long-distance bus and rail terminals A5.6 Complete the St Petersburg- Moscow Toll Road and other outer area radials Strategic Planning Unit, Transport Comm. Transit Policy Infrastructure Infrastructure, City Architect Infrastructure Staff, external consultant Staff, external consultant Contractor Contractor Federal funding Early 2012 Early 2012 Ongoing Early 2013 After A5.2 Ongoing End of 2012 End of 2012 B Social Equity Affordable accessibility for all social groups xi P a g e

14 There is no large city in the world that can fulfill its residents needs for mobility and accessibility without support of well-developed public transport system. With income growth and subsequent car ownership growth, an increasing number of citizens of St. Petersburg use cars, partly because of the unattractiveness of the public transport alternative. In this circumstance, providing high-quality public transport is not an option but a mandate for sustainable development. For those without cars, the deficiencies of public transport are inescapable; hence, it is also a social equity issues opportunity and accessibility to all citizens. Improving the quality of the non-car alternatives is thus essential not only to lure people away from their cars to increase the efficiency of the use of infrastructure but also to improve the quality and reduce the cost of services available to those less wealthy citizens without cars. Three instruments are to be used to achieve this. B1. Improving Operational Efficiency of Public Transport The city government will take measures to improve the efficiency of public transport provision, and to ensure that it provides adequately for all types of people and all forms of demand (referred to as inclusiveness ). This involves looking closely at the way in which transport services are currently procured, provided and charged for, as well as at ways in which the potential of private sector involvement in supply can be better mobilized than under present arrangements. The program of action is as follows: Intervention Ref. # Action Responsible Entit(ies) Institutional/ B1.1 Corporatize the publicly owned bus Transport Organizational and electric transport operating Administrative/ Legal Studies/ Technical companies B1.2 Strengthen the capacity of Public Transport Organizer, to promote its status to Public Transport Executive B1.3 Remove the "two-tier" distinction between social and commercial services, and integrate all services in a single system B1.4 Convert all contracts except those with the Metro company to competitive tender that is gross-cost based B1.5 Commercialize the existing publicly owned transport companies B1.6 Long-term structure study: design of comprehensive routes, highspeed segregated track services, and roles of trams and trolley buses (see B2.2) B1.7 Short-term supply efficiency study: design of competitive tender services, preparation of gross-cost contract tenders, restructure of operating companies, cost analysis for the new tender system Transport, in collaboration with Strategic Planning Unit Strategic Planning Unit, Transport Transport Transport Strategic Planning Unit, Transport Transport Resources Starting City leadership and staff City leadership City leadership and staff City leadership and staff City leadership and staff External consultant External consultant After completion of task B1.6 Ending End of Gradually as financial situation permits After B1.6 and B1.8 Early 2012 Aiming to complete by 2014 In 2012 Immediately Mid 2012 Immediately End of 2011 xii P a g e

15 B1.8 Study possibility of automatic controlling system to reduce headways on the Metro Blue Line Metro Authority Metro staff, contractor Early 2012 Investments B1.9 Secure fare collection equipment and GPS equipment for performance monitoring Public Transport Authority Operators, Contractor Mid 2012 End of 2012 B2. Giving Priority to Public Transport System Development The city government is committed to develop an extensive program of public transport segregation. If public transport is to be attractive as an alternative to use of the private car it will have to match the private car on a balance of cost, comfort, speed and access to location considerations. Cities in which public transport carries very large shares of journeys, particularly journeys to work, are mostly very large, and have good urban and suburban rail systems. In St Petersburg the metro can match or improve on the travel time of the private car for journey to work from many locations. But the existing metro services are nearing full capacity utilization, while further expansions of the system are extremely expensive. A suburban rail system exists but has not yet been well developed as part of an urban transport system. The road based surface public transport modes are caught up in the same congestion as the car, while having the extra disadvantage of being less comfortable and less flexible in their ability to provide door to door service. Furthermore, public transport often carries the stigma of being inferior in quality. Only by extensively segregating surface public transport from the general traffic stream can public transport achieve a travel time advantage over the private car. New higher speed public transport routes will be developed and their attractiveness enhanced by the provision of better station comfort and improved park and ride provision at the outer stations. Premium (express) services will also be provided on new LRT lines. The program of action is as follows: Intervention Institutional/ Organizational Studies/ Technical Investments Ref. # Action B2.1 Strengthening strategic planning function for comprehensive route planning, intermodal connection, service quality control B2.2 Study to identify and design the high priority segregated public transport corridor demonstration projects (bus, light rail transit, and suburban rail) (see A3.5, B1.6) B2.3 Study of institutional alternatives for development of integrated high speed trunk network. B2.4 Complete the Metro Purple line B2.5 Light Rail Transit (LRT) and possible BRT and suburban rail demonstration projects B2.6 Expand bus lane system serving the central area including Nevsky Prospect Extension Responsible Entit(ies) Transit Policy (Strategic Planning Unit) Transport Strategic Planning Unit Metro Authority Metro Authority TMA, Public Transport Authority Resources Starting Ending City leadership and staff City leadership and staff Immediately Mid 2011 End of 2011 Staff Mid 2011 Mid 2012 Contractor In 2013 End of 2015 Staff, operators Staff, operators Immediately after B2.2 Immediately after B2.2 Aiming to start implementation in 2014 Aiming to start implementation in 2014 xiii P a g e

16 B2.7 Public transport priority measures at bottleneck points especially the Orlovsky tunnel and bridges B2.8 Extension of demonstration projects toward integrated segregated surface public transport network TMA, Infrastructure Metro Authority, Public Transport Authority Staff After A1.9 End 2015 Contractor or concessionaire After 2.5, 2.6 B3. Providing for Pedestrians and Cyclists The city government will improve facilities for safe movement by pedestrians and cyclists. It is generally recognized that non-motorized transport including walking is least damaging environmentally. Though cycling is limited in St Petersburg by the harsh winter weather and by safety concerns, most people have to walk to complete their trips at all times of the year. In many parts of the city it is unpleasant, as parked cars clutter the sidewalks. It is also dangerous; partly due to lack of adequate crossing facilities pedestrians account for a majority of traffic accident fatalities in the city. Improving pedestrian facilities is not just a matter of reducing accidents, however, as a good pedestrian environment is good for business, as Nevsky Prospect shows. The city government has already approved a plan for the development of pedestrian facilities in the inner city but recognizes the need for this to be extended in a more general emphasis on pedestrian and cyclist safety and convenience. The program of action is as follows: Intervention Action Responsible Entit(ies) Resources Starting Ending Studies/ Technical B3.1 Explicitly require investigation of pedestrian and cyclist interests in the design of new roads or the upgrading of existing streets B3.2 Develop prioritized pedestrian safety program and improvement designs and measures B3.3 Undertake commuter bicycle route study Investments (C2.5) Implement pedestrian road safety improvement program B3.4 Improve pedestrian crossings and walking environment TMA Staff Immediately Continuous TMA TMA Infrastructure Infrastructure, City Architect Staff, external consultant Staff, external consultant Mid 2011 Mid 2012; annual update of program Mid 2012 Mid 2013 Contractor Staff, contractor After B3.2 C The Quality of Life The quality of life of citizens is adversely affected by urban transport through air and noise pollution and traffic safety hazards. The city government will act to minimize these effects both by direct actions in the fields of environmental pollution and road safety and by controls of the impacts of the most damaging categories of traffic (heavy freight) and in the most sensitive areas (the historic cultural center of the city. C1. Reducing Air and Noise Pollution xiv P a g e

17 The city government will further refine its policies on transport and the environment. Transport is associated with a range of adverse effects on the living environment air pollution, noise, visual intrusion, ecological damage and so on. In 2008, a review of Russian cities placed St Petersburg as 85t out of 89 cities on account of its high level of air pollution and poor ability to maintain fragile ecosystems. In the same year the City on Environmental Management and Environmental Safety in its environmental strategy for the city estimated that 80% of air pollution in the city was generated by its transport activity. While it concluded that the transport strategies of the city were correct and appropriate to address the problem it is clear that much more needs to be done. The city therefore intends to set up a special team within the Strategic Planning Unit to co-ordinate actions to reduce air pollution from transport, including tightening vehicle emission standards to western European standards, strengthening inspection procedures, and considering measures to bring sulfur content in diesel used in the city down at least to Western European standards of 50 parts per million. The program of action for this element is as follows: Intervention Institutional/ Organizational Studies/ Technical Ref. # Action C1.1 Creation of special team to co-ordinate environmental action in the Transport Strategy C1.2 Tighten vehicle emission standards to Western European standards C1.3. Implement freight vehicle routing control in the city center C1.4 Introduce environmental issues in bus franchising process C1.5. Improve data collection and analysis for traffic emission and noise C1.6 Examine possibilities of reducing sulfur content of fuel to 50 ppm or less Responsible Entit(ies) Strategic Planning Unit Strategic Planning Unit, Environmental Transit Policy, Traffic Management Auth. Public Transport Authority, Transport Strategic Planning Unit, Environmental Environment Resources Starting Ending Staff Mid 2011 City leadership and staff City leadership and staff Immediately Early 2012, following C1.5 Staff From 2012 Staff, Mid 2011 external consultant Staff Mid 2011 Data collection continually C2. Making the Roads Safer The government is committed to securing further reductions in road accident rates, and particularly road fatalities within the city Although accident rates have been falling as a result of previous campaigns undertaken by the city, there is still scope to reduce accidents by 50% to reach best European city standards. Of particular concern is the high level of pedestrian fatalities. The role and procedures of the police in traffic law enforcement will be strengthened. The Traffic Management Authority capacity to undertake accident analysis will be strengthened, as will its commitment to address safety issues in traffic engineering schemes. A program of segregated pedestrian crossings of the major arterial roads within the city will be developed as a high priority. And the design of new road facilities, under the auspices of the Infrastructure, and traffic management schemes, under the auspices of the Traffic management Authority in the Transit, will be subject to systematic safety audit by an independent engineer. xv P a g e

18 Intervention Ref. # Action Responsible Entit(ies) Resources Starting Ending Institutional/ Organizational Studies/ Technical C2.1 Establish a strategic Road Safety Working Party in the Strategic Policy Unit (see A3.2) C2.2 Develop accident analysis capability within the TMA C2.3 Raise threshold for police involvement in accident investigation (B3.2) Develop prioritized pedestrian safety program and improvement designs and measures (B3.3) Undertake commuter bicycle route study (see also Element B3) C2.4 Review organization of onstreet traffic accident recording and clear-up procedures Investments C2.5 Implement pedestrian road safety improvement program C2.6 Procurement of accident investigation equipment and red light and speed cameras SPU SPU, TMA and Police Mid 2011 TMA TMA 2011 TMA Staff, external consultant 2012 Mid 2011 TMA Staff, external consultant Police Police Infrastructure Contractor Police, TMA 2012 Mid 2012; annual update of prioritized program C3. Protecting the Environment from Freight Traffic The government is committed to measures to reconcile the efficiency needs of freight traffic with the environmental and passenger transport needs of the city. Freight transport is very important to the city, which is Russia s largest port and second largest manufacturing center. It is important that the freight traffic which it generates is efficiently provided for while minimizing its adverse effect on the local environment. Port traffic has already been handled with considerable success by the policies on arterial road construction and port facility location, as well as restrictions on freight traffic routing. The Western High Speed Diameter route will further insulate the city against adverse effects of port traffic. The carriage of traffic serving industrial and commercial activities cannot be suppressed without damage to the economy, but it can be managed by a purposive approach to freight transport logistics. Selection of locations for freight transport intensive activities, and identifying acceptable routes of access to those facilities is thus part of the city transport strategy. The program of action for this element is as follows: Intervention Action Responsible Entit(ies) Institutional/ C3.1 Create an Urban Freight SPU, Transit Organizational transport unit C3.2 Continuation of existing Transit arrangement under Transit Policy that addresses intercity transport needs both for freight and passenger Studies/ Technical Resources Starting Staff 2012 Staff Immediate Ending C3.3 Designation of truck routes TMA Staff Ongoing Refinements as needed xvi P a g e

19 Investments Investment programs A1.4, A1.5, A1.6, A4.9, A4.10 help toward this strategy element C3.4 Development of Pulkovo freight terminal Private sector (PPP) 2013 C4. Protecting Cultural Heritage a Policy for the Historic Center The city government will elaborate and implement a comprehensive strategy for transport to and within the city center. Not all parts of the city have the same problems, and it is intended to differentiate the treatment of transport issues by area. This is already done through land use controls, as considered strategically by the approved city development plan. However, because of its sensitivity as the site much of the cultural heritage of the city, the city center area calls for special treatment involving many of the elements already discussed. It is here that access needs to be best, where parking is at its most intrusive, and walking is particularly prevalent, that a well balanced package of measures of public transport provision, private transport restraint and environmental management, is most critical. The program of action for this element is as follows: Intervention Action Responsible Entit(ies) Institutional/ Organizational C4.1 Develop central area plan and coordinate its implementation Strategic Planning Unit Administrative/ C4.2 Issue land planning regulations to City Architect Legal limit private provision of parking spaces in city center (align with A4.3) Studies/ Studies A3.6, A4.4, A4.5, A4.7, B1.6 Technical (on demand management and public transport efficiency) help toward this strategy element Investments C4.3 Construction of new Metro station Metro entrances in City center Authority Road Investment programs A1.7, Infrastructure A1.8 are crucial to toward implementing this strategy element (A4.10) Investment A4.10 helps toward this TMA strategy Implement congetion pricing in the city center (B2.7) Investment B2.7 helps toward this TMA, strategy Implement public transport Infrastructure priority measures (B3.4) Investment B3.4 helps toward this Infrastructure strategy Improving pedestrian, crossings and walking environment City Architect Resources Starting Ending Staff, consultant City leadership and staff Immediately End 2015 Immediately Contractor Early 2012 End of 2015 Contractor or concessionaire After A4.7 End 2015 Staff After A1.9 End 2015 Staff, contractor After B3.2 Financing the Strategy Implementation of the Transport Strategy will require a great deal of public resources the city budget particularly given the need for capital investments for infrastructure network extension. Having been allocating about 15 percent of its budget for transport sector in the last few years, the City is looking to increase transport sector budget in support of successful implementation of the Strategy. Increased budgetary allocation will be used not only for capital investments for xvii P a g e

20 infrastructure development, but also for initial investments in key strategic areas, which will lead to long-term efficiency gains and improve financial sustainability of the transport sector, as follows: - Investment in advanced technical tools to aid strategic investment and expenditure decisions, to monitor investment impacts, and to maintain and manage existing infrastructure more efficiently. - Investment in innovative technologies to help mitigate traffic congestion and improve quality of public transport services. - Improved institutional efficiency through strategic planning and coordination among the City s organizations. - Introducing a streamlined mechanism for project evaluation and prioritization. In addition to the expansion of budgetary arrangements, the City will continue seeking and securing non-budgetary financing sources where possible and necessary. The City will continue to collaborate with the Federal Government to ensure due support for major motorways which serve passenger and freight transport of great national and international importance. Private sector participation will be encouraged where it can develop transport infrastructure and provide transport services more efficiently than the public sector. To this end, the City will introduce necessary legal and regulatory changes that will allow balanced risk-sharing between the public and private sector and facilitate competition and efficiency. Projects will be selected on the basis of their financial viability and economic benefits, ensuring that private sector participation will bring in greater value for money than the public sector s provision. The Strategy will reform the way that transport infrastructure and services are financed and introduce policy measures that improve efficiency of the transport service market. With the reform, it is expected that benefits and costs of transport system are shared among citizens in a fairer way, and financial sustainability of the transport systems improved. Specific changes that will be fostered by the Strategy include the following: - Providing more options and some premium public transport services that meet varying needs of the citizens, at prices that reflect demand and service quality while retaining basic services at affordable prices. Differentiated pricing that aligns with quality differentials are expected to better serve different needs of citizens while bringing more revenues to the city. - Introducing user charges for on-street parking and road use in the busy city center during peak hours will help mitigating congestion and generate a stable revenue stream. User charging systems would require some initial capital investments for infrastructure and equipment, which will quickly be recouped by revenues. - Additional revenues from user charges will be used for improvement of transport infrastructure and services, particularly public transport, which together with infrastructure development will further help mitigating congestion. A sequenced program The strategy includes a number of radical reforms to the organization for transport in the city, the preparation of which can be commenced immediately and 2012 are therefore heavily weighted with study and institutional development commitments. The physical investments associated with the early stages of these developments are not great. But the proposed major road projects (WHSD and loop road) as well as other proposed road improvements would consume a considerable amount of the xviii P a g e

21 city budget unless federal and private sector funding were secured. If external funding is not secured, other proposed priority investments articulated in the strategy could be adversely affected or some of the proposed road projects might have to be deferred. It is therefore critical to the strategy that the larger physical investments be funded largely from external sources (Pulkovo, Western High Speed Diameter and Orlovsky tunnel), with only the investments in the metro and some other spot road improvements on budget. There will, however, be investment costs associated with the high speed public transport demonstration projects, and an increase in the need for current funding as the twotier public transport fares system is phased out by incorporation of more services in the social network. Nevertheless, the budget for 2011 and 2012 will need to be more than usually software oriented. Thereafter, in 2013 and after investments in equipment for the reforms, including parking equipment for the on-street parking development and ticketing equipment for the public transport reforms will increase. Particularly important to timely implementation of the strategy will be early progress on some of the proposed administrative reforms and studies. Among those initiatives which are particularly important are the following: Reform municipal legislation requiring function-based road network classification (task A1.1) Obtaining federal approval to proceed with on-street paid parking (task A4.3) Road maintenance inventory and investment prioritization study (task A2.5) ITS study (task A3.4) A study of parking (tasks A4.4, A4.5, and A4.6) Strategic structure study of the public transport network (task B1.6) Short-term public transport efficiency study (task B1.7) Public transport demonstration projects study (task B2.3) Congestion pricing study (task A4.7) xix P a g e

22 PART ONE THE ORIGIN AND STRUCTURE OF THE STRATEGY The Historical Background Development planning strategies are not new to St Petersburg. A comprehensive territorial development plan for the St Petersburg metropolitan area was adopted in 1987, based on Soviet socioeconomic assumptions and institutions, and covering the whole Leningrad oblast. This was essentially a physical plan, with great technical specification but relatively little consideration of economic and social issues. Since the early nineties the scope and style of planning has changed. In 1993 St Petersburg municipality became a subject of the Federation, separate from the rest of the former Leningrad oblast. After some years of turbulence at the end of the last century the socio-economic situation has stabilized with improved urban planning legislation and growing GDP. In 1997 the city adopted a strategic plan concentrating on city competitiveness and socio-economic and environmental development rather than simple physical planning. In 2005 a further planning and development strategy was published, reflecting the new economic and political realities the elaboration of a city vision. The City Vision That new outlook was set out in two major documents. In July 2007 the city government adopted a general strategy for the Social and Economic Development of St Petersburg until the year In parallel with this, adopted and published in 2008, a Master Plan of St Petersburg elaborated on the physical planning implications of the emerging city strategy. The fundamental objective of the Social and Economic Development Strategy is to increase the living standards of the citizens of St Petersburg so that they correspond with European levels. Those living standards are defined to include not only the money income of citizens but also the quality of the natural and built environment within which our citizens live and the quality and variety of social, educational and health services available. The economic basis for achieving that aspiration is a city with a threefold role. As a political and cultural center, open to the world and integrated into the world economy. As a trading and transport center of international significance, aiming to handle 50% of Russian exports and over 50% of its imports from the European community. As a center of commercial and industrial innovation, concentrating on products of high quality and high value added, including banking and financial services. 2 Government decree 884, P a g e

23 The objective of the Master Plan is to establish a reliable urban physical development structure to achieve the social and economic objectives. The characteristics of the city have undergone a number of critical changes since Soviet times. First, population has declined from 5.2 million in 1990 to 4.62 million in 2004 and is expected to remain stable for the next decade and only to increase modestly to 4.7 million by A decline in total employment is also anticipated. Second, a shift in occupational patterns is likely from the manufacturing and agrarian sectors towards trade, services, education and financial sectors. Third, there is an incipient trend to suburbanization, with the combination of city apartments and rural dacha being progressively replaced by independent permanent housing in suburban and rural neighborhoods. Fourth, transport aspirations are shifting rapidly, with car ownership having risen from 55 per thousand inhabitants in 1985 to around 300 per thousand in All of these trends have significant implications for the nature of transport demands in the longer term. Other recent strategy papers are relevant to transport. An environmental policy for the city, published in 2007, contains discussion and recommendations on environmental impacts of transport policy. In 2009 strategy on the development of the Transport and Logistic Center, TLC, contains the basis for the content of the transport strategy on freight transport. Transport in the Context of the City Vision Some of the elements of the general strategy such as the development of the trade and transport functions of the city are directly transport related, requiring improvements to port and airport facilities, as well as to national and international rail links. Even for those elements not expressed in transport terms such as the protection and development of the historic city as an international tourist and cultural center, or the development of the high value added industrial, commercial and financial services of the city transport performs a critical enabling function. It is thus entirely appropriate that the strategic development and physical planning documents should contain observations on transport strategy. But it is inevitable that the level of detail in articulating transport strategies is limited in these high level and broad ranging strategy documents. Moreover, these strategic planning documents were not able or intended to ensure either the internal consistency of the transport proposals or their consistency with resource availability. Hence there remain some apparent inconsistencies in the transport elements of the social and economic development strategy which need to be reconciled and clarified in the transport strategy. For example, the aspiration to double car ownership rates from those of 2000 would appear inconsistent with the desire to reduce congestion. This means that strategies will be necessary to control the location and timing of use of the increased car stock to prevent increased congestion. This transport strategy document amplifies and clarifies the transport requirements of the wider objectives of the Social and Economic Development Strategy and the City Master Plan. Coherence between the physical and economic plans of the city and the transport plans is an over-arching requirement for the achievement of all the economic, social and environmental objectives of the city. 2 P a g e

24 The Transport Vision The aim of the transport strategy is thus to set out how the city government will manage and develop the transport sector to best achieve its overall economic, social and environmental objectives. It therefore starts from a vision of the transport system that the city needs, expressed as follows: St Petersburg must have a transport system which ensures: Economic efficiency including the reduction of road congestion and good access for passengers and freight both internally and with the external economy Social equity allowing all citizens whatever their income, personal characteristics or car ownership status to have access to their main necessities of life jobs, education, shopping, health and other social facilities Quality of life protecting the cultural heritage of the city and ensuring a safe and healthy environment for all citizens Objectives to Strategy the Fundamental Challenge The context of the transport strategy will be a more coherent and purposeful use of the general physical planning functions of the city. This will include the use of land use controls and other administrative powers of the municipality both to limit the amount of motorized travel that is necessary to satisfy the main requirements of urban inhabitants and to increase the probability that the trips made will be undertaken by public transport. This is particularly important in respect of new developments and in the context of a trend to suburbanization, which is like to accelerate in the future. Within that context measures will be taken in the transport sector to increase efficiency of movement, extend accessibility, and improve the quality of life for all citizens. Efficiency of movement of transport is primarily impeded by congestion on the road system which carries, and will in future continue to carry the bulk of both freight and passenger traffic both within the city and in its links with the rest of the country. At the heart of the problem is a rapid growth of car ownership, already in 2010 at 310 per thousand population, and forecast to rise to about 400 per thousand by The city development plan recognizes car ownership at western European levels as a legitimate aspiration and views increasing car ownership as a reasonable target and indicator of development. It is unlikely that this growth can be reversed so a range of measures will be needed to reduce congestion and improve road performance in the presence of a growing private car fleet. It is not possible to increase the total size of the road infrastructure in line with the growth of car ownership, as attempting to increase road capacity significantly in the inner city of St Petersburg would damage the architectural and cultural heritage it is the objective to protect. However, it is possible to make some carefully selected strategic additions and to focus on those road investments which contribute most to the reduction of congestion. The first element of the efficiency strategy is therefore the planning and implementation of some critical new items of road infrastructure, particularly those which divert traffic away from the central area of the city (Strategy Element A1). In addition, emphasis will be put on making more efficient use of existing road space by better maintenance of roads (Strategy Element A2) and better management of traffic on the roads (Strategy Element A3). Even that will not be enough. The city will also need to act, as all other large European 3 P a g e

25 cities have done, to influence the choice of mode of transport by restraining the growth of private car traffic (Strategy Element A4). In respect of the external transport connections much is already in place. The port facilities for the Baltic Sea ferry connections have been improved. New road facilities serving the freight traffic of the ports are under construction or in preparation. High speed rail passenger links already exist on the two main axes with Moscow and Helsinki. A concession for the redevelopment of Pulkovo Airport has already been let, and the city government is planning a fast public transport link with the central city. And the construction of a fast road to Moscow is nearing completion. But there are some remaining problems. Some of the outer radial routes within the city need improvement and there is a need for better connections between the modes. Dealing with these deficiencies will be the second instrument of policy to improve the efficiency of road transport movement (instrument A5). Much of the legal and financial responsibility for this rests with the Federal Government, but the city government is continually pressing for, and collaborating with the national authorities, to improve its external links. The social equity objective has two sources. First, it derives from the need to provide for those who do not have access to cars and therefore do not benefit directly from reduced road congestion. But, second, it also derives from the need to provide an attractive alternative to car use for those who are prevented from using their cars at some times or in some areas by the efficiency oriented measures of restraint of car use. At the moment, however, public transport is often crowded and inadequate, while parked cars infringe on sidewalks and cause inconvenience and danger to pedestrians both in the city center and in many residential areas. The objective will therefore be achieved through three main instruments: increases in the efficiency of operations of the public transport system (instrument B1) through provision of new high quality high speed public transport services (instrument B2); and through substantial improvement in provisions for pedestrians and cyclists (instrument B3). In this way the efficiency and social equity objectives can be seen as complementary. Improving quality of life has a number of dimensions. In St Petersburg increased car use in the congested city center is associated with environmental impacts which reduce the quality of life, and damage both access to and enjoyment of the cultural heritage. At the same time heavy traffic volumes moving at speed on some radial and orbital roads are associated with high pedestrian accident and fatality rates. The strategy for improving the quality of life has four main instruments. First, increased attention will be given to the impacts of transport on the human environment, with particular emphasis on air pollution (instrument C1). Second, a parallel focus will be placed on road safety (instrument C2). Third, particular attention will be directed to protecting against the adverse impacts of heavy freight movement within the city (instrument C3) Industrial and commercial activities damaging to the local environment are gradually being moved to more appropriate locations (particularly in outer areas close to the KAD), and the movement of heavy vehicles are being reduced and controlled. But further investment is still required in some parts of the primary road network, and the planning for freight vehicle movement control within the city has still not been fully implemented. Finally, special attention will be given to the historic center of the city, partly because it is the focus of the highest demand and partly because it is the most sensitive location culturally and historically. The roadmap below shows the relationships between the various strategic objectives and their elements. For most elements, successful implementation requires an optimal mix of various instruments including administrative changes, investments, and technical improvements. 4 P a g e

26 Objective Instrument A: Transport Efficiency Fight Congestion B: Equity Transport for All G: Coherent land-use planning C: Quality of Life Planning and Administrative Measures Infrastructure Development Improvement of Management and Operation A1: A4: Strategic Manage B2: Give Road Private Priority to Investment Demand Links Car Public Transport C4: A2: Improve Physical Condition of Toads A5: Improve External Transport A3: Better Use of Road Space Traffic Management B1: Improve Operating Efficiency of Public Transport B3: Provide for Pedestrians and Cyclists C1: Reduce Air & Noise Pollution C2: Make Roads Safer C3: Protect Environment from Freight Traffic Protect Cultural Heritage While the instruments to be adopted have been introduced in relation to one or other particular objective, in practice many of them serve more than one. For example, public transport system development contributes to social equity but is also an important complement to private car restraint in securing reduction in traffic congestion through shifts in the split of traffic between public and private transport modes. Similarly strategic road infrastructure investment strategy apart from being an important contributor to reducing congestion within the city is also critical for the environmental objective of protecting local living environments from air and noise pollutions from heavy goods vehicles. One of the most important aspects of the relationship between the instruments, and between individual policies, is their sequencing in time. For example, restraint on access to the center for car commuting traffic would cause considerable hardship, and almost certainly generate public resistance, if there were no acceptable public transport alternative available. Similarly, the introduction of road pricing to discourage through traffic from using routes through the city center might have very damaging effects in the border areas of the charging zone if no high speed alternative route was available outside the charging zone. The strategy therefore emphasizes not only correct sequencing but also the early completion of demonstration projects to show what benefits might be achieved through wider application. 5 P a g e

27 Population Density (persons/km2) The links between the strategic objectives of the city and the instruments of transport strategy have been explained in general terms above. But to be more operational it is necessary to spell out each of these strategic elements in more detail and to indicate what actions and resources are necessary to implement them. For each of the elements, Part 2 of this report will thus spell out in more detail what is the current situation and the problem issues which a strategic instrument is designed to address, and how it will be implemented. Each section also includes an examination of the relevant international experience and good practice and a tabulated action program for the first five years. Diagnostics Benchmarks and Targets Converting those broadly stated objectives into realistic targets against which the progress of the strategy can subsequently be judged is an art rather than a science. The approach adopted is to compare the characteristics of St Petersburg and the performance of its transport system with those of a group of 15 large European cities. These comparisons give some indication of what can be achieved in favorable circumstances, as well as indicating some of the underlying economic and physical factors which determine that performance Paris - Ville Barcelona * Bubble sizes represent population 1 million 3 million 5 million Lisbon Bucharest Athens Brussels Madrid Vienna Warsaw Cologne Prague St P'burg Rome Greater London Ile de France (Greater Paris) City Area (km2) Figure 1-1: Population, area size, and population density of European cities (pop > 1mln) The international comparisons show the issues in St Petersburg to be very distinctive. By European standards it is a very heavily populated city, ranking third after Moscow and Greater London. It is also very extensive, covering an area 28% greater than Moscow and only 10% less than Greater London. This gives it an average population density of 3238 persons per km 2 very similar to that of Warsaw and Budapest. But unlike those cities, which are totally built up within their administrative boundaries, the developed area of St. Petersburg covers only 606 km 2 which contains 90% of its population. So the density of the city proper is twice that of the city region and is denser than Athens or Madrid. And some of the residential areas, particularly in the north of the city, are even denser than that. Although the city is still relatively poor, with an annual GDP per capita less than that of Warsaw, Budapest or Prague, its economic development over the last decade has resulted in a rapid growth of car ownership, growing currently on trajectory 1 in figure 1.2. Even if that growth were to follow the 6 P a g e

28 Car Ownership (per 1000 population) pattern of the large north western European cities (trajectory 2 in figure 1.2) the pressure on road space is still likely to increase appreciably Sofia St P'burg Prague Warsaw Naples 1 Madrid Rome Cologne Vienna Barcelona Budapest Athens Ile de France London 2 Brussels 200 Bucharest GDP per capita (euro) Figure 1-2: Correlation between income and car ownership of European cities (pop > 1mln) At the heart of the transport problems of the city is that, despite its high population density it has a very low overall road network of 2.15 km per km 2. Even if only the built up city is considered the density is still less than 5 km per km 2 which is less than any of the European capital cities except Sofia (which has the same characteristic of not being restricted to a totally built up area). Road traffic is therefore already congested and also very dangerous, with a death rate per head of population exceeding that of any of the other comparator cities. The relatively low income of the city also has the consequence that its public transport, though not expensive in absolute terms, appears among the most expensive in Europe in relation to GDP. Even though St Petersburg has the density of travel demand which supports rail mass transit systems in the other large cities, its public transport network density per km 2 and coverage per head of population is only moderate and the network of metro or high speed rail is below the norm for a city of its size. The distinctive strategic quandary for St Petersburg is thus to find a way for a relatively low income city with high residential density and relatively low density of both road and public transport networks to handle the increased motorization which might be expected to come with economic growth. While there is some scope for increasing the road network size through investment and its effective capacity through better traffic management, the nature of the existing city infrastructure, with large block sizes and a large proportion of historic buildings, limits the amount of extra road capacity which can be provided. It is therefore essential that, whatever happens to car ownership, a way must be found to halt the modal shift from public transport to car, particularly for trips to the central city. That shift has, of course, been associated with the increase in car ownership permitted by increasing income. But it has been fuelled by the fact that the use of the car for trips to the central city is extremely cheap by international standards as the consequence of free on-street parking, and by the fact that the relative performance of public transport in carrying people to the central city is also poor by international standards, particularly from locations not well served by the metro. 7 P a g e

29 So the central strategy of the city will be to control growth of car traffic where and when there is severe congestion, particularly in commuting traffic to the city center, while improving connectivity between city districts and facilitating traffic by-passing the center. This will be done by a combination of pricing and non-pricing restraints on car use with dramatic improvement of the performance of public transport. For a relatively poor city, which cannot in the short term afford a very large underground metro investment, this means giving really effective priority to public transport, as achieved in London (see Annex 6). The targets for the strategy, relating to the efficiency, accessibility and quality objectives, and the key performance indicators with which to assess its effectiveness follow from that analysis. Objectives Indicators Comparison with European Benchmarks Efficiency System inputs Outcome Accessibility System inputs Quality of Life Outcome Outcome Price of on-street parking in city center Peak hour road speed High-speed segregated public transport Network density Surface public transport peak hour speed Annual road accident fatalities per 100,000 residents St. Petersburg London Madrid Paris per hr per hour (Barcelona) 1 3 per hr Not reported 24 km/hr 23 km/hr 33 km/hr 0.08 km/km km per 100,000 residents 0.44 km/km km per 100,000 residents 0.56 km/km km per 100,000 residents 0.25 km/km km per 100,000 residents Not reported 31 km/hr 20 km/hr 17 km/hr (Ile de France) P a g e

30 PART TWO THE CONTENT OF THE STRATEGY The Basis Coherent Land Use and Transport Policies Transport demands are derived from the level and location of economic and social activity patterns. Influencing those activity patterns and levels has long been recognized as a potent means of influencing the transport conditions of the city. Strong, directive, physical planning exercised by the City Department of Architecture and Planning was one of the salient characteristics of the socialist planned economy, used to plan the supply of transport facilities to meet the demands created by its residential and industrial development policies. While extended reliance on a market economy has increased the flexibility of that control, the basic apparatus for land use control remains in place. What the city government now intends is to use that influence in a rather different way, to generate transport demands that are economically and environmentally sustainable. The current arrangements A number of the land use planning strategies adopted in the 2005 Master Plan are critical for transport policy. These include: Development of an urban framework with a hierarchy of central places of different order Enlargement of the city central area at the expense of the areas under industrial use Shift towards a development density profile reflecting that of the market economies (with density declining progressively from the city center) Priority to public rail transport development Associated with these planning strategies are some important assumptions about the allocation of space for transport and the capacity of transport infrastructure, including: Relocation of most freight transit lines from dense city areas Reservation of space for development of the metro and high speed tram lines Development of some major road facilities (the western north-south expressway, new bridges and a major tunnel and major bridge improvements). The Issues Some of the traditional precepts of land use planning remain intact. It is still not a good idea to mix heavy industry with residential and service activity. But in other respects the issues confronting land use planning have changed significantly. First, the growth of car ownership has reduced the advantage of planning for high local densities in both residential and economic activity locations, as such policies create unsustainably large private car flows in specific corridors. As a consequence, transport becomes part of the environmental problem rather than merely the benign servant of an environmentally dictated separation of residence and workplace. At the same time, however, motorization permits increased concentration and locational decentralization in the retail sector where car use eases the burden of transporting purchases. 9 P a g e

31 Second, changes in economic structure from traditional heavy industry to light industry and service sectors reduce the environmental need to separate activity types so rigorously. Mixing light industry and service activities with residential locations, makes access to employment easier as well as reducing total transport demand. Environmentally the problem shifts from being one of air pollution from the industrial source to that of air and noise pollution from transport sources. For this reason warehousing and major retailing concentrations are increasingly located peripherally and close to major arterial roads. Warehousing needs to be decentralized and freight movements within the inner city area carefully managed. Where concentrated flows continue as is inevitable given the slow pace of change of land use with a static population they need to be managed to reduce their impact, primarily through increased reliance on public transport Third, developments in information technology reduces the need for functional clustering of economic activity, making it more locationally footloose both at the firm and the individual level. Working from home, or telecommuting is an increasingly viable option. Even the retail sector is increasingly based on purchases from the home computer in some countries. Relevant international experience A primary concern of both socialist and western land use planners in the 20 th century was the separation of residences and heavy industry. Socialist planners forced industry inwards in the city and residence outward, while western planners tended to do the opposite. Both generated long journeys to work and heavy demands on the urban transport system. Changes in industrial technology in recent years have reduced the need for such separation. This has shifted the emphasis in land use planning towards smart growth - higher-density settlement with an emphasis on providing a balanced mix of housing, jobs, and shopping opportunities within a community. As the problems of motorization have become more apparent, many cities in the world have begun to think further in terms of transit oriented development - congregation of housing, jobs, shops, and other activities around mass transit stations. Associated with improved access to these varied land uses, the physical environment is often enhanced with wide sidewalks, an absence of surface parking lots and large building setbacks. Many aspects of these policies are now being widely adopted in the U.S and in Europe with an emphasis on densification central to maintain the attractiveness and viability of the transit mode. While international experience cannot be applied directly to St Petersburg, there are some important lessons to be learned. First, much closer co-ordination is required between land use and transport planning, rather than simply requiring the transport system to respond to independently determined land use structures. Second, development control instruments need to be used very pro-actively to achieve the preferred structural outcome for example large developments such as the proposed Gasprom tower should be located in conformity with the strategy. Third, greater attention needs to be paid to the land use needs of transport, including provision for park and ride facilities and transport depots. The strategy The city government has already implemented many of the new planning philosophies. It has planned its road networks to relieve the city of the bulk of the freight traffic generated by its ports. It is shifting warehousing to more suitable locations, but is more flexible in respect of the location of new light industrial establishments. It is shifting away from the traditional socialist peripheral housing 10 P a g e

32 concentrations, though the size of the existing housing stock and the stable population limits the pace of this change and much remains to be done. Four main initiatives are to be pursued. First, the city government will aim for a more mixed land use pattern, increasing residential densities in the intermediate areas between the old housing estates and the city center while at the same time adopting a more flexible approach to the location of environmentally acceptable light industrial and service sector developments. Second, the city will encourage the development of its information technology facilities to encourage telecommuting and working from home as well as to decentralize part of its service sector. Third, more attention will be given to matching transport and land use developments. Metro stations developments will be accompanied by high density residential development, and in the case of outer areas, by provision of adequate park and ride facilities. Similarly, the process of suburbanization will be planned through emphasis on development around selected suburban rail stations. Fourth, the city government will supplement the traditional development control instruments by using its administrative powers over public sector activities to encourage the staggering of hours of work to reduce the peaking of transport demands. The Five-Year Action Program This strategy element is largely concerned with making decisions about how the structure of the city will develop, rather than in the investments which will ultimately embody the restructuring. For that reason most of the actions need to be commenced immediately, with the appropriate procedures in place and operating well before the completion of the first five year period. The program of main actions is as follows. 11 P a g e

33 Intervention Administrative/ Legal Institutional/ Organizational Studies/ Technical Ref. Action # G.1 Institute traffic impact assessment for all major re/developments G.2 Strengthen and streamline collaboration between the Architecture and Planning and a Strategic Transport Unit (STU) created within the Transit through a small intercommittee working group G.3 Study the potential for encouraging mixed-land use patterns through planning and development controls G.4 Explore possibility for targeting densification of residential development around public transport stations G.5 Pilot telecommuting and staggering of work hours in the municipal government G.6 Assess alternative locations for the new Gasprom development Responsible Entit(ies) Resources Starting Ending Architecture Comm., City Immediately Traffic Management leadership Authority and staff Transit Policy City Immediately Comm., Architecture leadership and Planning Comm. and staff STU, A&P Comm Staff Early 2012 A&P Comm, Transport Comm. Various committees of the City Government A&P Comm., City architect Staff Early 2012 City leadership and staff Staff, consultant Immediately In P a g e

34 A. Efficient Use of Infrastructure Reducing Congestion St. Petersburg has been experiencing unprecedented growth in motor vehicle ownership and use over the past two decades. This trend is expected to continue, albeit at a somewhat reduced growth rate. Traffic conditions, already considered unacceptable, are likely to deteriorate further unless remedial action is taken urgently. Four complementary elements are involved directly is the strategy for reduced congestion and efficiently will also be improved through measures to improve the external links of the city A1. Strategic Road Investment While the city government does not believe that it is possible to provide enough road capacity to accommodate unrestrained motorization, substantial investment to expand and improve the road network is still essential to support the other strategy elements. The challenge is to devise a selective road improvement program in appropriate balance and coordination with other measures to reduce congestion. The current arrangements The Ring Road (KAD) around St. Petersburg is nearing completion. This strategic facility has already had a major positive impact on travel around the more densely populated northern, eastern, and southern portions of the city. The completion of the southern and northern legs of the KAD extending west along the Gulf of Finland as well as the crossing of the Gulf are expected to have a similarly positive effect on longer distance in-city travel as well as travel to outlying areas. Similarly, construction underway on the northern and southern legs of the Western High Speed Diameter (WHSD) when joined by the proposed center section will have a significant positive effect in reducing travel through the congested city core as well as permitting high speed north-south travel within the city. The partially completed southern section of the WHSD has already had a positive impact on port oriented truck traffic. The Issues Selective improvement of the road network is an essential element of the transport strategy, not as an attempt to provide for unrestricted motorization, but as a means of channeling traffic efficiently away from the historic city center and to improve connectivity between city districts. There are three major issues to be confronted. Lack of good orbital roads around the historic city center. While there is a very good ring road (KAD) at the periphery of the city, provision for orbital travel movements is less well catered for inside the developed area of the city resulting in severe traffic congestion in the city center and on radial roads approaching the center. Moreover bridges across the Neva River are fewer and further between than in many riverside cities further restricting travel between city districts. Lack of clearly established methodology and process for determining road investment priorities. While the city does make road investment decisions, these have not been entirely made within a strategic road development framework or on the basis of a clearly acceptable methodology based on quantifiable economic and technical criteria. 13 P a g e

35 Lack of an adequate functional road classification system. Contributing to the lack of clear investment priorities is a lack of a clear delineation of the existing and intended functions of the various road segments of the city road system. An agreed functional road classification system is needed along with appropriate road design guidelines for each road classification category. High percentage of total transport investment in roads. The cost of expanding and improving the proposed strategic road network threatens to consume a disproportionate amount of available city resources and could undermine the funding other very deserving elements of the proposed transport strategy. For this reason it will be important to take into account the above three issues in making road investment decisions. Relevant International Experience With the advent of rapid motorization most cities in the United States and European countries embarked on ambitious urban road construction campaigns during the 1960s though 1980 s to accommodate the private motorist. These campaigns focused largely on creating limited access expressways or motorways featuring higher speeds and accommodating large volumes of traffic. Some cities also made considerable investments in widening arterial roads and other measures to substantially increase the capacity of the existing road network. At various points in the development of these road networks the general public and transport professionals reached a decision that substantial additional investments to increase the capacity of the road network was either not cost effective in addressing traffic congestion and/or was counterproductive in terms of adverse impacts on the environment and adjacent land developments. Most cities in both the United States and Europe at this juncture are not investing significant sums in expanding or increasing the capacity of their road networks (with the exception of rapidly growing suburban areas) in favor of placing greater emphasis on public transport, lower cost traffic management measures, and demand management measures including paid parking and in some cases congestion pricing to dampen travel demand. London, Rome, and Stockholm have implemented congestion pricing. Several other cities including Budapest, Copenhagen, Hamburg, Paris, and Zurich have established caps or have even reduced available parking spaces in the city center as a means to reduce motor vehicle travel into these congested areas. With the impending completion of the KAD and the programmed completion of the WHSD, other orbital roads around the city center, and radial roads serving the city outside the KAD, St. Petersburg appears to be approaching a similar inflection point where a shift in transport investment priorities within the 15 year horizon of this strategy will need to be made in favor of public transport investments, travel demand restraints, and traffic management measures. Taking international experience into account, it therefore will be important to carefully select additional investments in the city s road network in relation to and in balance with other important competing transport investments. The strategy The principal objective of this strategy element is to facilitate cross town and orbital traffic movements with particular emphasis on minimizing traffic through the congested city center. Beyond this objective the road investment strategy has the following specific objectives: 14 P a g e

36 The completion of the KAD (ring road around the city) and the Western High Speed Diameter (WHSD) as important elements in creating high speed and high volume capacity arteries to reduce travel time between city districts. The WHSD will also serve as an important route for port traffic and for diverting traffic from the city center. It is estimated, for example, that the WHSD will reduce travel across in Neva River bridges in the city center by 20%. Improvements in travel time and speed upon completion of road investments will be measured and documented. Completion of orbital roads relieving pressure on the historical central area. The specific investments proposed are set out under the 5 year action program described below. Bridge and tunnel connections across the Neva associated with public transport priority features. Completion of radial roads outside the KAD. Several radial routes serving outlying districts of the city are already committed. These have the function of improving the connections to outer areas of the city and surrounding suburban areas, as well as improving connectivity with the rest of the country, without generating significant extra traffic in the congested portions of the inner city. Establishing a functional road classification system and corresponding design guidelines. This classification system will assist in clearly articulating the function of the various city road segments as well as serving as a good foundation for making important decisions on road investment priorities and on design standards for these roads. Establishing and utilizing a mechanism for establishing investment priorities. Beyond the above articulated road investment priorities, there are a large number of proposed road investments which will be subjected to careful assessment based on a clearly established methodology and process for determining investment priorities. The candidate road investment program will be be updated annually as part of a rolling 5 year road investment program and further assessed against other elements of the overall transport strategy. Mobilizing off-budget finance. The cost of expanding and improving the proposed strategic road network threatens to consume a disproportionate amount of available city resources and could undermine the funding other very deserving elements of the proposed transport strategy. Along with careful appraisal and prudent phasing of the strategic road investments, the city will work to secure additional funding from an array of sources including Federal Government contributions, road tolls and private sector investments, and prudent city borrowing either in the form of bonds or bank loans.. This will be particularly important on the costly WHSD and the Orlovsky tunnel where tolls, private sector investments, and Federal government funding are all possible. The Five-Year Action Program 15 P a g e

37 The following are the principal actions will be undertaken during the five year period to implement the selective road network strategy. Studies. The following studies will be undertaken: (a) Preparation of a prioritized road investment program. This investment program will be based on an agreed process and quantifiable economic and technical criteria. (b) Functional road classification and design guidelines study. This study will recommend specific functional road classifications as well as design guidelines for each functional classification of roads. Based on this system the entire road system of the city will be mapped displaying these road classifications. (c) Design of the high priority loop road around the city center. Design of parts of this road system is already completed. This study will complete the design process including connections to the WHSD. (d) Design of bridge connections to the city center. This activity will include design of a new bridge connecting Vasilevsky Island with the city center as well as designs for rebilitation of other bridges connecting with the city center. The design also will include provisions for surface public transport priority across these bridges into the city center. (e) Complete design of the Orlovsky tunnel and approach roads. This activity will include finalization of the Orlovsky tunnel and approach road designs as well as provisions for surface public transport priority for crossing the tunnel into the city center. Administrative Reforms. Based on the Functional road classification and design guidelines study the city will enact municipal legislation requiring the implementation of a function-based road network classification system. The functional classification of all road segments will be officially mapped, design guidelines will be adopted, and the classification system will be used as partial basis for making road investment and maintenance/rehabilitation decisions. Investments. The principal objective of this strategy element to facilitate cross town and orbital traffic movements with particular emphasis on minimizing traffic through the congested city center - will be addressed during the coming five year period through the following high priority investments: (a) Completion of the KAD to provide an effective city bypass. The Ring Road (KAD) around St. Petersburg will be completed in Portions of this strategic facility have already had a major positive impact on travel around the more densely populated northern, eastern, and southern portions of the city. The completion of the southern and northern legs of the KAD extending west along the Gulf of Finland as well as the crossing of the Gulf are expected to have a similarly positive effect on longer distance in-city travel as well as facilitating traffic to and from the Kronstadt, Lomonosov, Branko, and historic port areas. (b) Completion of the entire Western High Speed Diameter (WHSD). The entire WHSD will be completed including the expensive center section over the city waterfront. This toll road facility will offer a rapid bypass of the city center and enable traffic from the main port to be distributed north and south without using congested city roads. This investment will include completing negotiations with the private sector investor under a PPP arrangement and securing additional Federal Government finance in support of this project. (c) Completion of the upgrading of the existing loop road system around the historic city center. This roadway system along the Obvodnogo Canal and the east and north banks of the Neva River will be upgraded to high grade arterial or expressway standards and will connect with 16 P a g e

38 the north and south legs of the WHSD. This facility should improve circulation around the center as well as serving to improve access to and egress from the center. (d) Completion of the Orlovsky Tunnel to permit improved 24 hour access to and egress from the city center. The design of the tunnel approaches will be modified to provide public transport priority in crossing the tunnel. An investor for this project has been selected under a PPP arrangement. (e) Construction of a new bridge connecting Vasilevsky Island with the city center and rehabilitating other bridges connecting to the city center. These bridges will permit easier entry and exit from the city center area and will reduce the extent of excess travel on the roads either side of the Neva. Provisions of public transport priority will be made at the approaches to the bridges. (f) Other high priority investments. Other proposed high priority investments as recommended under the study for preparing a prioritized road investment program will be selected for implementation during the period. Intervention Ref. # Action Responsible Entit(ies) Administrative/ A1.1. Legal Studies/ Technical A1.2. Reform the municipal legislation requiring function-based road network classification Prepare a prioritized road investment program based on an agreed process and quantifiable economic and technical criteria. A1.3 Road classification and design guidelines study Transit Policy (Strategic Planning Unit) Transit Policy (Strategic Planning Unit) Infrastructure Resources Starting Ending City leadership and SPU staff SPU staff, external consultant SPU staff, external consultant Immediately End of 2011 Mid 2011 Mid 2012; annually update prioritized program Mid A1.4 Complete design of the loop road encircling the city center and connecting with WHSD both north and south of city center A1.5 Complete design of new bridge over the Neva from the city center to Vasilevsky Island and rehabilitation of other bridges along with public transport (PT) priority measures A1.6 Complete design of the Orlovsky tunnel including public transport priority measures Investments A1.7 Complete Western High Speed Diameter A1.8 Complete the loop road encircling the city center and connecting with WHSD both north and south of city Infrastructure Infrastructure ; Traffic Management Authority (TMA) under the Transit Policy for PT priority measures Infrastructure ; TMA for public transport priority measures Infrastructure Infrastructure External consultant External consultant Concessionaire, and/or External consultant ongoing Concessionaire Prep (financing) immediately 2015 Contractor Ongoing P a g e

39 center A1.9 Complete the Orlovsky tunnel including public transport priority measures A1.10. Construct bridge over the Neva River from the city center to Vasilevsky Island and rehabilitate other bridges along with public transport priority measures A1.11 Selected other proposed high priority investments as recommended under action A1.2 within the available city budget Infrastructure Infrastructure ; TMA for public transport priority measures Infrastructure Concessionaire End Contractor During Contractor Ongoing 2015 A2. Improving the Physical Condition of Roads The St. Petersburg road network is over 3,000 km in length and the largest physical asset owned by the city government. The maintenance and rehabilitation of this existing network (without new road construction) consumes nearly a quarter of current city transport expenditures. Consequently, it will be important to maintain and rehabilitate this asset in the most cost efficient means possible. The current arrangements The entire city road network, with the main exception of the city ring road (KAD) which is maintained by the Federal Government, is maintained under the authority of the Transport Infrastructure. The Infrastructure committee contracts out all road rehabilitation and maintenance under competitive bidding practices. Routine road cleaning, snow removal, and minor pot hole repair is now handled by a separate on City Improvement using in-house staff. The Issues Road Condition. Approximately 44% percent of the total city road network is not in an acceptable condition according to the Infrastructure. While the primary arterial network, consisting of approximately % of the total network length and carrying most of the city traffic is in somewhat better condition, the secondary and local road networks are in particularly poor condition apparently due to a lack of adequate funding. Road Condition Surveys. To maximize the efficiency of expenditure on road maintenance and rehabilitation, it is important to have current information on road conditions and on traffic volumes and composition. This data base at present is not adequately up to date and is not compiled in a 18 P a g e

40 computerized database that lends itself to ready analytical form for the purpose of setting expenditure priorities. Road Network Evaluation Tools. Beyond the need for up to date data on road conditions and traffic, there is no computerized analysis of available data on which to directly take into account vehicle operating costs, unit cost of road works, and pavement strength and condition over the entire road network. Consequently, the current manual assessment methods are not able to provide the city with the optimum road network maintenance strategy, i.e., the set of interventions (and related budget) that would minimize the total road maintenance / rehabilitation expenditures in the city. Road Classification. The road classification system recently proposed by the Federation Ministry of Transport is based on the number of existing traffic lanes and current traffic volumes. 3 Given the emphasis of the transport strategy on improving surface public transport, it may be appropriate for the city to use a more functional classification including the presence of various surface public transport routes in making decisions on road maintenance and rehabilitation. Contracting Procedures. Maintenance costs of roads in St Petersburg are high, relying on conventional maintenance contracting procedures, with no use of performance-based contracting (PBC) 4. Relevant international experience Efficient management of road network and informed decision on road maintenance. Use of computerized road asset management tools is widespread in a number of road agencies in the world. Their experience shows that the success of road management relies on three fundamental components: processes, people and technology, and sufficient funding that supports all three 5 (World Bank, 2005). Some well-functioning and effective road management systems, including those in New Zealand and the US state of Vermont, share the following common features. Road management system is formally adopted as a business plan of the road sector and regular reporting system is established. Sufficient and stable funding is allocated for system operation, update of the software and hardware, and data collection. A separate unit is dedicated for operation of road management system, appropriately staffed with clear job descriptions and reporting responsibilities. 3 A more common road classification for urban areas is based on the intended function of the roadway within the city typically distinguishing between principal arterial (typically for high volume, high speed and longer distance travel within urban areas with no land access function), secondary arterials (also serving to accommodate high volume incity traffic), collector streets (serving to collect traffic from local roads within city districts and to deliver it to arterial roads), and local roads (lower speed and lower volume roads serving principally to provide access to abutting land uses). 4 A performance-based contract (PBC) differs significantly from a method-based contract that has been traditionally used to maintain roads. In traditional method-based (unit rate) contracts, the road agency as a client normally specifies techniques, technologies, materials and quantities of materials to be used, together with the time period during which the maintenance works should be executed. The payment to the contractor is based on the amount of inputs (e.g., cubic meters of asphalt concrete, number of working hours). In PBC the client does not specify any method or material requirements (provided the city s standards are met). Instead he specifies performance indicators that the contractor is required to meet when delivering maintenance services. For example, the contractor is not paid for the number of potholes he has patched, but for the output of his work: no pothole remaining open (or 100% patched). Failure to comply with the performance indicators or to promptly rectify revealed deficiencies adversely affects the contractor's payment through a series of clearly defined penalties. 5 The World Bank (2005), Success Factors for Road Management Systems 19 P a g e

41 A strong Information Technology (IT) function is established. Performance-based contracting. PBC method is widely used in the UK, France, Australia, New Zealand, the Netherlands, Sweden, Norway, Finland, and several states in the US and Canada. Most countries that are practicing PBC have achieved substantial reduction of maintenance cost by at the minimum 10 percent up to 40 percent (see Table 2-1). In addition to reduction of road maintenance cost, there are several well-known advantages of PBC over traditional input-based contracting. First, PBC enables better control of results of works, as payment to the contractor is explicitly tied to the road condition. Second, by using PBC the public sector can reduce fixed cost as they don t need to keep the in-house staff doing the maintenance work. Third, predictability of payment improves because the contract does not deal with inputs hence there is practically no risk of variation orders. Finally, the PBC method aligns well with the road management system that will be introduced: management of performance-base contracts requires same set of skills in the road sector staff, i.e., condition monitoring; and it supports investment decision-making that is based on scientific measurement of road conditions. International experience has also revealed that effective use of PBC depends on an appropriate legislative framework, suitable institutional arrangement and skills in the public sector, and industry s capacity and experience (see Annex 6). Table 2-1: Cost savings of PBC relative to conventional contracts in selected countries Country Cost savings Country Cost savings Norway About 20-40% Australia 10-40% Sweden About 30% New Zealand About 20-30% Finland About 30-35% United States 10-15% The Netherlands About 30-40% Ontario, Canada About 10% Estonia 20-40% Alberta, Canada About 20% United Kingdom Minimum 10% Source: World Bank Transport Note No. TN-27, September 2005 The strategy To address the above issues the following reforms will be undertaken to achieve greater efficiencies in managing the maintenance and rehabilitation of the existing road network: Collecting up-to-date Road Condition and Traffic Information for Storage in a Suitable Database. Additional staff efforts and financial resources will be deployed to update and maintain adequate road condition and traffic information for the purpose of making informed decisions on road maintenance and rehabilitation. This information will be stored is a suitable computerized database that can be shared among city committees as this information will be useful for traffic management and public transport purposes as well. Beyond storage of road condition and traffic information, this database may be expanded to include other road asset information within street rights of way such as the utility mapping and condition of utilities etc. The database will be continually updated and enhanced to ensure that it serves policy and decision-making purpose. Utilizing a Road Network Assessment Tool. Beyond collecting up to date road condition and traffic information, more sophisticated road and bridge asset management computerized tools such as HDM- 20 P a g e

42 4 or RONET 6 will be utilized for the purposes of (i) optimizing the road network maintenance strategy and the related budget; (ii) assessing the impact of different funding levels on the future quality of the city s road network; (iii) determining economic consequences of budget constraints for society as a whole; and (iv) preparing a five-year work program for the most likely budget scenario(s). Introducing Performance-Based Contracting. This form of contracting will first be tested on a pilot basis and, conditional on a positive outcome, the city will utilize PBC over a wider portion of the road network. By introducing PBC, under which the contractor is paid on the basis of the result of the work (e.g., road condition) instead of the inputs (e.g., materials and labor used), the city will be able to save road maintenance cost while transferring risks to private contractors. For this to happen, the City government will pursue a change in the Federal law on public procurement, which currently does not allow application of the PBC method. The five year action program Institutions and procedures. The prerequisite for implementation of this strategy is a philosophical change that embraces road asset management system (RMS) as an integral input to transport policy, planning and budgeting. This RMS aims to manage the City s road network through strategic prioritization that is based on sound technical grounds and accurate physical data. For successful implementation of the program, the City will pursue the following institutional changes: a) An RMS unit will be established within the Infrastructure, responsible for road network data collection, operation of a computerized RMS tool, preparation of annual road condition reports that lays out priorities for road maintenance needs, and cost estimates for the priority projects. b) Budgetary process will be revised so that allocation for rehabilitation, capital repair, and periodic maintenance will informed by the results from a computerized road network assessment tool. c) Budget will be permanently allocated for information technology (IT), road asset data collection, database management/update, and operation of RMS. Policies and procedures will be in place for data collection and quality assurance of that data. d) An evaluation framework will be established that sets out key performance indicators, targets to measure asset value and to preserve/enhance that value. These indicators will be regularly (e.g., annually) monitored and evaluated. Annual report will be prepared and made publicly available in order to keep the road investment and maintenance program transparent and accountable. e) Various quality assurance mechanisms should be adequately instituted. They include technical auditing and continual quality monitoring and improvement scheme. 6 Road Network Evaluation Tools. World Bank, RONET, developed by the World Bank is designed to assess the current characteristics of road networks and their future performance depending on different levels of interventions to the networks. RONET Version 2.00 implements three evaluation modules: (i) Current Condition Assessment Module that computes network statistics and monitoring indicators, (ii) Performance Assessment Module that estimates the network performance and budget requirements under different maintenance and rehabilitation standards, and (iii) Road User Revenues Module that evaluates revenues collected from road user charges and compares them with the funding requirements. RONET version 2.0 is structured with many configuration options and was fully released in January P a g e

43 Some early investment expenditure is also necessary. The City will purchase and install a computerized road network assessment tool, choosing from commercial off-the-shelf (COTS) software based on their functionality, flexibility and ease of operation and upgrading. Equipment for road condition monitoring will be also purchased, including testing equipment, optical instruments, special vehicles, and lab equipment. Road network data collection and database management activity will also require some front-loaded investment by the city. While data is vital to success of road investment and maintenance program, it is also expensive to collect and store. Therefore, the City will make a cost-conscious decision on the data and monitoring frequency. On current expenditure, an RMS that uses a computerized road network assessment allows decisionmakers to have a good estimation of required resources for road maintenance and repair over a long time period. This enables budget planning that spans a multi-year cycle. In the long-term, the comprehensive road investment and maintenance program based on road asset management system will lower the life-cycle cost of road asset while improving the overall quality of the road network. Intervention Administrative/ Legal Institutional/ Organizational Investments Ref. Action # A2.1 Pursue federal level legislative changes in order to implement performance-based contracts for road maintenance and rehabilitation A2.2 Create and build capacity for a road asset management assessment unit under the Infrastructure that is supported by adequate technology, equipment, staffing and management capacity A2.3 Institute a budgetary process that allocates resources on the basis of investment priorities developed by a computerized road asset management system A2.4 Create a comprehensive computerized road network database; Recommend and calibrate a road asset management program for the purpose of assessing and recommending road maintenance and rehabilitation priorities A2.5 Purchase and install a computerized road network assessment tools, selecting from commercial off-the-shelf (COTS) software A2.6 Institute and start implementation of performancebased contract Responsible Entit(ies) Transit Policy (Strategic Planning Unit) Infrastructure City Government, with Strategic Planning Unit Infrastructure Infrastructure Infrastructure Resources Starting Ending Collaboration with Federal gov. City leadership and staff, supported by external consultant City leadership and staff External consultant Provider, external consultant City leadership and staff Immediately Immediately After A2.5 Immediately or Mid 2011 In 2011 After A2.1 End of 2011 Early 2012 Early 2012 Mid 2012 A3. Using Road Space Better Strengthening Traffic Management 22 P a g e

44 Traffic management measures aimed at improving the traffic carrying capacity and safety of the existing road network are likely to be the most cost effective means of improving transport conditions in the city. These measures consist principally of traffic signal and other intelligent transport system (ITS) applications, road signing and marking, and physical improvements to improve traffic flow and/or to remove or reduce traffic bottlenecks. Traffic management measures also may be utilized to allocate more efficient use of road space through restrictions on parking as well as designating portions of road space for exclusive public transport use. Efficient traffic management thus contributes not only to speeding up road traffic but also to supporting other elements of the strategy. The current arrangements Responsibility for traffic management rests with the Traffic Management Authority (TMA) of St Petersburg - an agency which has recently been reassigned under the Transport-Transit Policy. The current activities of the TMA are largely concentrated on the operation and maintenance of the existing traffic signal system, with most installation and maintenance work being subcontracted to the private sector. Four independent automated traffic signal systems exist, together covering 250 signalized intersections located mostly in the central area of the city and approach roadways. These systems are presently being consolidated into a single system within a central control room. This should help to improve traffic operations The traffic police (a Federal government entity) play an important role in road traffic law and behavior enforcement, including accident recording and investigation. The police have historically exercised considerable influence of the design of traffic management schemes, but as a matter of policy their role is becoming more limited to audit of schemes on safety grounds. The TMA is also responsible for installing and maintaining pavement markings and road signs. Overall, this is a significant task as the city has 1,300 signalized intersections, approximately 64,000 road signs, and pavement markings on a significant percentage of the 3,000 kilometer road network. The Issues The city government recognizes a number of deficiencies in the present traffic management arrangements, among which the following will be receiving priority attention as described below. Lack of traffic management institutional capacity and authority. Until the recent administrative reform the TMA was limited mainly to implementing, operating, and maintaining the traffic signal system as well as installing and maintaining traffic signs and road markings. While these are important functions, the TMA needs to assume responsibility for becoming the lead city entity in comprehensively addressing a wide range of traffic management measures that affect traffic operations and safety of the existing street system. At present the TMA does not have adequate capacity to undertake ongoing research on traffic conditions, nor is it systematically involved planning and designing measures to improve traffic conditions. More specifically the role of the TMA needs to be broadened to include, inter-alia, planning and designing (a) improvements to and expansion of the traffic signal system, (b) a wider range of intelligent transportation system measures, 7 (c) removal of traffic bottlenecks through physical traffic management measures, (d) 7 ITS measures could include the following: (a) traffic enforcement assistance (including red light violation, speed violation, and bus lane violation detection cameras and systems), (b) video monitoring of traffic conditions, (c) motorist information systems (including traffic condition information and parking lot vacancy information, (d) public transport priority at intersections, (e) public transport information and control 23 P a g e

45 measures to improve road and pedestrian safety, (e) public transport priority facilities, and (f) paid on street parking. The TMA also needs to assume greater responsibilities in reviewing the traffic impacts of various land use and transport initiatives advanced by others. Figure 2-1: Desired Scope and Function of Traffic Management Authority Inadequate Traffic Data. The existing traffic data base for development of a comprehensive traffic management program is insufficient. Traffic information has been collected but it has been done on a piecemeal basis and in some cases is outdated. Accident data is collected by the police, but subject to little analysis by the Traffic Management Authority. On signalized intersections, there is no agreed plan for expansion of centralized traffic control to a larger percentage of the 1,300 signalized intersections, nor any plan for further expansion and improvement of the traffic signal system or application of other ITS measures. Inadequate attention to removing traffic bottlenecks. There are a very large number of locations along the existing road network where physical traffic management measures are needed to address restrictions on traffic flow as a matter of priority. These include, among other possible measures (a) geometric improvements at intersections, (b) grade separations over railway crossings, (c) selective widening of short stretches of road segments, (d) removal of short missing links in the existing road system, and (e) provision of road channelization and medians. Lack of adequate focus on road safety. While the police are responsible for enforcing safe behavior on the roads, and have historically played an important part in deciding on the acceptability of traffic management schemes, the high level of fatal and serious injury accidents on the roads of the city calls for a new initiative in road safety. Relevant International Experience Most European and other developed country cities have well established traffic management units that have suitable staff and authority to comprehensively plan, design, implement, operate, and maintain as appropriate traffic management measures required adequately address traffic operations and safety on the existing urban road network. These cities have found it important to establish a single unit to (including public transport vehicle location and vehicle arrival information), and (f) other traffic control measures (including ramp metering and road toll equipment and systems). 24 P a g e

46 assume leadership in these responsibilities to ensure a coordinated and consistent approach to efficient traffic management. The range of functions and responsibilities of well established traffic management units varies somewhat but a typical array of functions is shown in the table below. 8 (See also Annex 4 for a description of traffic management units in London, Paris, New York, and Helsinki). Typical Functions and Responsibilities of a Traffic Management Unit Division Traffic Management Policy Traffic Research Traffic Management Plans and Improvements Traffic Control Devices Traffic Regulations Parking Management Approvals and Co-ordination Consultation Budget Functions and Responsibilities Formulate and Implement city wide Traffic Management Policy to comply with objectives defined by the city council which would include, at least such areas as determination of (i) a functional road hierarchy; (ii) the appropriate balance between transport system users (private transport/public transport/nmt/pedestrians; (iv) priority programs for action and, (iv) a 5 year investment plan. Assemble/survey, monitor, analyze and evaluate all traffic and accident data to enable trends to be identified, problems quantified and traffic management plans and improvements to be prepared. Plan, design, implement, monitor, evaluate, fine-tune and continuously up-date traffic schemes and policies to realize the agreed Traffic Management Policy. The program would cover all motorized road based modes (cars, public transport, trucks, etc.) and all non-motorized modes (pedestrians, cycles). Plans and improvements would range from simple junction improvements or marking and signing programs through to far reaching city wide strategies such as extensive bus priority or pricing. Safety considerations are part of any scheme planning and design process but specific safety programs and accident counter measures would be a responsibility. Plan, design, install, operate, and maintain all traffic control devices including (i) traffic signal systems including computer controlled systems; (ii) road markings; (iii) road signs and, (iv) enforcement devices (cameras etc.) Formulate traffic regulations to realize the proposed Traffic Management Plans and Improvements, for enactment by city government and for enforcement by the traffic police. Prepare off and on street parking policies and programs including approval for the location of and access to parking areas proposed by others. Parking enforcement and administration (for example, where paid parking applies) would be carried out by a separate parking authority or equivalent. Evaluate and advise city government on all schemes (e.g., new roads) and developments (developed both by public and private sector agencies and including major new land or building developments) which have a significant traffic impact to ensure that they are consistent with agreed traffic policy. In effect carry out traffic impact studies for all major development proposals. Consultation with the public and stakeholders on traffic policy and on the impacts of specific schemes and measures. Preparation of an annual budget for submission to city government for (i) implementation of Traffic Plans and Improvement Schemes; (ii) traffic operations and maintenance of control devices; and, (iii) the continuous work of the traffic management agency itself. The strategy The city government intends to improve traffic operations and safety on the existing street system by placing greater emphasis on the traffic management function. It will plan for and implement a much expanded traffic management program to include functions not hitherto well provided for in St Petersburg. This expanded program will include the following elements: 8 World Bank. Cities on the Move An Urban transport Strategy Review World Bank, Washington DC P a g e

47 Undertaking on an ongoing basis an extensive set of traffic surveys to update knowledge of existing traffic conditions to serve as the basis for making informed traffic management decisions Implementation of a consolidated plan for further improvement and expansion of the traffic signal system and deployment of additional ITS measures to improve traffic operations and enforcement. Development and implementation of comprehensive, prioritized, and costed traffic management improvement programs including the following additional elements: o Measures to address traffic bottlenecks including implementation of geometric improvements of road segments and intersections, both in corridors and at individual bottleneck locations o Improvements to pedestrian safety at street crossings (see also Strategy Element C2) o o Public transport priority corridor improvements as designated by the strategic planning unit (SPU) (see Strategy Element B2) On-street parking program investments where parking should be eliminated and where paid parking should be initiated (see also Strategy Element A4) Development of a comprehensive road safety program The positive impacts of the implemented traffic management measures are expect to be wide ranging. This should include (a) increased capacity and speeds on selected road links where bottlenecks are removed and where parking controls are implemented, (b) improved pedestrian safety, (c) improved surface public transport operations and speeds on segregated corridors, and (d) improved traffic enforcement based on ITS oriented video surveillance of traffic operations. The impacts of the implemented traffic management measures will be measured at the time of their implementation. The Five-Year Action Program Organizational and Administrative Changes. The Strategic Planning Unit (SPU), having the primary responsibility for establishing the overall general strategy for the transport sector, will give general directives concerning the objectives of traffic management action (such as to give effective priority to public transport. It will also be responsible for the establishment and operation of a multiinstitutional road transport safety working group, again with the power to give general directives to the implementing agencies on safety related issues. The more tactical traffic management aspects aimed at implementing the general strategy will rest with the TMA which will be assigned additional responsibilities and authority as the lead city entity in charge of planning and designing traffic management measures to improve traffic operations and safety on the city street system. More specifically the role of the TMA will be broadened to include planning and designing (a) improvements to and expansion of the traffic signal system, (b) a wider range of intelligent transportation system measures, (c) removal of traffic bottlenecks through physical traffic management measures, (d) measures to improve pedestrian safety, (e) surface public transport priority facilities as designated by the SPU, and (f) paid on street parking. The TMA also will assume greater responsibility in reviewing the traffic impacts of various land use and transport initiatives advanced by others. 26 P a g e

48 Studies. The following traffic management studies will be undertaken during the five year period 9 : (a) An extensive set of traffic surveys to update knowledge of existing traffic conditions as well as making arrangements for regular updating of traffic information. Particularly important will be the identification of those sections of the road network which are at or near traffic saturation. (b) A strategic Intelligent Transportation System (ITS) Plan. This plan will include consolidated proposals for further improvement of the traffic signal system and deployment of additional ITS measures including proposed development of appropriate ITS architecture to ensure orderly expansion and application of ITS technology. (c) A plan and design of geometric improvements to improve road capacity (both in corridors and at individual bottleneck locations) (d) Design of public transport priority corridor improvements in coordination with the Strategic Planning Unit (SPU) and the Public Transport Management Agency under the Transport. (e) On and off-street parking plan for historic city center (f) A plan for establishing a commuter bicycle route or routes. (g) A plan and program for improvement pedestrian safety at street crossings. (h) Designation of truck routes (i) A congestion pricing study focusing on the historic city center Investments. Consistent with current conditions the TMA investment program should feature investments traffic control devices, including the traffic signal system, other ITS measures, and road signing and marking. It is proposed that that substantial increase in these investments should be anticipated in accordance with the overall transport strategy for the city. Traffic Management investments within the 5 year period will include the following: (a) traffic signal coordination -- Continued implementation of a contract to consolidate four separate traffic signal systems that individually control 250 signalized intersections mostly in the central area of the city and approach roadways. These separate systems are being brought together under a single system which should improve overall operational efficiency of the road system in the central portion of the city. (b) Implementation of first phase ITS measures including further improvement and expansion of the traffic signal system and deployment of additional ITS measures (c) Implementation of geometric road improvements to improve road capacity both in corridors and at individual bottleneck locations (d) Continued implementation of a pedestrian road safety program at street crossings. This will include both grade separated and at grade pedestrian crossings. (e) Implementation of paid on street parking in the city center (if required legislation is approved) 9 Several of these studies are also relevant to other elements in the strategy and are also referred to in those other sections 27 P a g e

49 (f) Implementation of congestion pricing measures in the historic city center (if required legislation is approved) Financial Implications. Up to the present the financing of traffic management measures has been given relatively low priority in funding compared with the development of the city s road network and metro systems. This lack of funding has resulted in an inadequate and piecemeal approach to addressing traffic management issues. Under the overall transport strategy traffic management will be adequately funded as a top priority along with improvements to the surface public transport system. Since traffic management measures are relatively low cost, even a substantial increase in the funding of the traffic management program is likely to have only a minor effect, on reducing the city s budget allocations for major road and metro investments. When a paid on-street program and a larger off street parking program are well advanced additional revenues from these sources might be allocated for financing traffic management measures. It is not likely that private sector financing of traffic management measures will be an attractive option as these investments typically are not revenue generators. Intervention Action Responsible Entit(ies) Institutional/ Organizational Studies/ Technical A3.1 Broaden and strengthen the responsibility of the Traffic Management Authority (TMA) to become responsible for comprehensively addressing all measures that affect traffic operations and safety on the existing street network. A3.2 Establish a high level Road Safety Working Party (see C2.1) A3.3 Undertake extensive and ongoing traffic surveys to update knowledge of existing traffic conditions and problems A3.4 Develop a strategic Intelligent Transportation System (ITS) Plan including improvement and expansion of the traffic signal system A3.5 Develop a public transport priority plan and design key segregated corridors (see B1.6 and B2.2) A3.6 Prepare prioritized program for addressing traffic bottlenecks including development of geometric designs for improvement of road segments, intersections and interchanges (see A5.4) Investments A3.7 Complete full coordination of traffic signal system at 250 intersections A3.8 Implementation of the first phase of proposed ITS measures Transit Policy (Strategic Planning Unit) assigns new responsibilities to TMA SPU Resources Starting Ending City leadership and staff SPU, TMA and Police Immediate 2012 Mid 2011 TMA Staff Mid 2011 Continual Strategic Planning Unit, TMA SPU to designate corridors, TMA to design Strategic Planning Unit, TMA TMA TMA Staff and consultants Staff and external consultant Staff, external consultant Staff, contractor Staff, contractor Mid 2011 Mid 2012 Mid 2011 End 2012 Mid 2011 Mid 2012; annual update of prioritized program Ongoing After A3.4 End of 2011 End of P a g e

50 A3.9 Implement geometric road improvement program to improve traffic operations (as proposed in A3.6) Infrastructure Staff, contractor A4. Managing Private Car Demand Traffic Restraint Given the rapid rate of car ownership in St Petersburg, even with an improved, better maintained and better managed road system, it still appears likely that the demand for road space will increase faster than effective road capacity with a resulting increase in congestion. Some means must be found of redressing this imbalance. The city strategy to address this is twofold. The first, traffic restraint, is discussed here. The second, making public transport a more attractive alternative to the car, is discussed in Sections B1 and B2 of this report. The current arrangements There are a number of ways in which traffic can be restrained through direct road pricing, through physical restraints on traffic movement and through restrictive parking policies. The city has undertaken a brief exploratory study of congestion charging but has not taken any measures to introduce it. The only systematic physical restraint of traffic is freight route control. And parking has been provided as a necessary service to facilitate traffic rather than as a means of exercising strategic control over traffic. So at present there is no effective policy for traffic restraint only a set of nonrestrictive policies for parking. There are two main categories of parking. Residential parking provides for a car to be available for trips from the home, while nonresidential parking provides for the business end of the trip. Non-residential parking is most commonly accommodated on-street near to the trip destination. Off-street parking may be provided for public use ( public off-street ), or may be provided for customers or employees of a particular business (private non-residential ). Some off street parking may be located at public transport nodes to enable the trip to be completed by public transport ( park and ride ). Responsibility for parking lots and garages is currently vested in a Parking and Garages Authority responsible to the Transport. The Authority currently operates 8 commercial lots in the central city with about 700 spaces. The amount of private non-residential offstreet parking is not known, but is certainly small in comparison with that in most US and many European cities. The Authority also operates 7 park and ride garages, some on the city periphery but some quite near to the city center. All are connected with the Metro, and are very well utilized. 29 P a g e

51 Parking is free if taken in conjunction with a metro journey and is administered through a smart card system. Special provision is made for disadvantaged categories of traveler. Data has been collected from the surrounding districts on demand for Park and Ride facilities and a further 40 park-and-ride lots are planned, some of which will be high capacity multi-storey parking garages. The authority has a total staff of 175, of which 160 operate the various parking lots and garages administered by the committee. Residential parking in the inner city is accommodated in the inner courtyards of the large block buildings, but spills over on to neighboring streets. While there are norms for the minimum amount of parking space to be provided in association with new housing, most of the housing stock was built at a time when car ownership was low and parking was not adequately accommodated. Residential parking for the apartment blocks thus spills onto adjacent streets. The agency has undertaken a review of residential parking in all 18 rayons of the city, and is developing a program to retrofit parking space into housing blocks or in convenient nearby locations. The issues The current arrangements generate unsatisfactory outcomes in a number of ways. Uncontrolled on street parking in the business areas contributes to congestion by limiting available road space, damages the pedestrian environment by infringing on sidewalks, and reduces the effectiveness of public transport priorities by blocking bus lanes. Lack of adequate residential parking creates inconvenience to car owners by making access to the car unreliable, contributes to road congestion and low speeds in residential areas, and damages the local environment Lack of control of the quantity or location of parking negates the possible effects of parking policy as an instrument of regulation of congestion in an urban transport strategy. Parking actually costs the city money in terms of its adverse consequences without generating any revenue to meet those costs. Above all, in the absence of either congestion pricing or parking restraint policy there is no mechanism to limit traffic as a result of which serious traffic congestion is endemic. Those unsatisfactory physical outcomes reflect unsatisfactory legal and institutional arrangements. By federal law the city is unable to introduce general restraint on on-street parking, or make any charge for on-street parking Enforcement of parking regulations is very weak and penalties for infringement are extremely lenient Partly because of the legal impediments the city lacks an effective strategic parking function, and some of the parking provisions, such as park and ride provisions too close to the city center, do not relate to any coherent strategy. The parking and garages agency, despite its enthusiasm and achievements is inadequately staffed and resourced for the implementation of any more ambitious policy. Relevant International Experience Parking 30 P a g e

52 Most large cities in the world face, or have faced, the problem of an excess of demand for urban road space over its supply. Many cities faced with growing motor vehicle ownership and use have attempted to redress the imbalance by increasing the supply of road facilities. Where land is not scarce and where the needs are recognized early enough in the process of urban growth, it may be possible to provide for unrestrained motorization. But even then this strategy has some undesirable outcomes. Large amounts of space in the central city have to be devoted to either high volume roads or car parks, which destroys the compactness and attractiveness of the city as a place for living and conducting business. The town center map of Houston, Texas shows it dominated by parking lots (see the map right). Eventually the city center loses its liveliness: many American central cities are effectively dead spaces after the end of the business day. Surface Parking Garage Parking More generally, the world s great cities have recognized the danger of death by automobilization and have therefore taken steps to control the car in a number of ways. Four main types of policy have been adopted. Parking Policy The most common approach is to use parking policy. The usefulness of a private car depends critically on the ability to park it conveniently at both the point of origin and the point of destination of a trip. Parking availability makes a location accessible by private car, while the absence of parking makes locations inaccessible and discourages car use. Parking policy is thus a very potent tool for managing the use of road space, and is the main instrument for controlling car use and combating congestion in many European cities. Typically, the total amount of parking space available is constrained in the central areas of city, and charges are levied for public parking both on-street and off-street. Usually on-street parking is more expensive than off-street parking in order to reserve onstreet parking for higher turnover. Most notable is that in these systems the total amount of parking provided and the charges is determined not by the total potential demand or any concept of the affordability of parking, but by the needs of controlling congestion. In the study of transport policies in major European cities quoted in the earlier section on benchmarks, all charged for parking in the central city, most at very high prices. Controls on Ownership. The most extreme policy is to control vehicle ownership. In Singapore, which is a city state with a similar population and total land area to St Petersburg, and a somewhat higher per capita income, the city limits the total number of cars in use through a system of certificates of ownership. In order to own a car a citizen must buy such a certificate, which is surrendered when the car is scrapped. The city government decides the maximum number of cars which it believes the road system can effectively handle, and holds a monthly auction at which the maximum number of certificates available is that which will bring the car stock up to the planned limit. The effect of this is that the certificate can cost three or four times as much as the car itself and can only be afforded by the relatively affluent. This system works, in the sense that congestion is very limited, but is only acceptable because the city state is relatively small and has a very dense, efficient and comfortable 31 P a g e

53 public transport system. Bans on ownership of motorcycles have also been used in the largest cities in Vietnam. Controls on Vehicle Usage. An alternative to this absolute control on the stock of vehicles owned is the control of the proportion of the total stock that can be used within the city at any one time. Number plate restrictions, banning a different part of the automobile fleet from roads each day of the week, are practiced in several large cities, such as Athens, Mexico City, Bogota, Columbia, and São Paulo, Brazil. Mainly introduced to combat air pollution, these measures also reduce congestion. A weakness of this method is that richer drivers can purchase a second or third car to circumvent the ban, with the effect that the reduction of the number of vehicles on the street is frustrated while fleets tend to have a larger average age and higher average emissions per vehicle. Congestion Pricing. The most striking recent development of policy for city centers is that of congestion charging, or road pricing as it is often called, under which motorists are charged for entering and/or operating within the city center. Though popular with many transport planners, it has been unpopular with politicians and the public. Schemes developed in some detail for Hong Kong, Cambridge and Edinburgh were all ultimately rejected at the political level. Though advocated since the late 1930 s it was not applied in practice until Singapore introduced an area licensing scheme in A turning point appears to have been reached with the introduction of a congestion charges scheme in London in 2003, since when schemes have been introduced in a number of European cities. In Scandinavia, simple systems of toll rings with manual or electronic enforcement exist around the city centers in Trondheim, Bergen, Oslo and Stockholm. London also has a slightly more complex area pricing scheme. The most sophisticated scheme is in Singapore, where vehicles are charged at different points in the urban network at rates which differ by time and location, and are varied periodically to secure specified target traffic levels and speeds. While there are many different ways in which to impose congestion charges, those introduced so far appear to have achieved significant reductions in congestion, as well as yielding substantial revenue surpluses to support other transport initiatives (see Annex 2.) The most significant lessons for St Petersburg seem to be that (i) there are a range of alternative technologies that need to be explored; (ii) all involve a significant initial capital investment (iii) while they all yield a substantial surplus of revenue over cost, the daily charges are fairly high. It is not sensible to introduce a road congestion charges scheme unless the city recognizes the need for the charges to be substantial. The strategy element There are several different strands to the city strategy for traffic restraint. Strategic planning. The Strategic Planning Unit of the Transit will prepare a strategic plan for traffic restraint. On parking the plan will set out the objectives and instruments for parking policy and act as a guiding framework for the agencies given the responsibility to implement parking policy. This will include, inter alia, setting targets for the total amount of parking spaced to be provided and policies for the replacement of on-street by off-street parking in the inner areas. On congestion charging a study will be undertaken to consider a range of alternatives and make recommendations to the city government on the introduction of a preferred scheme. Legal. The city is lobbying strongly for a change in the federal law relating to parking. It wishes the Federation to recognize parking as an essential element in an urban transport strategy and to empower cities both to restrict parking, charge for parking on street, and to levy sufficient fines for illegal parking and for overstaying allotted time in legal parking spots. 32 P a g e

54 Parking policy and enforcement. The city will also work to obtain better enforcement of parking regulations and higher penalties for their infringement. On-street and off-street parking will be planned by the Traffic Management Authority under the strategic guidance of the SPU, and administered by the Parking Garages Authority. If the city can obtain the powers to charge for on-street parking it will also seek to establish a separate system of traffic wardens to enforce payment and to take the burden of parking enforcement off the regular police force. Investment and Charging. The expanded role of parking will carry with it a need for an increased level of capital expenditures. Four types of parking are to be provided: (1) on-street parking, (2) commercial off-street parking facilities, (3) park and ride, and (4) residential parking. The Park and Ride program will be expanded and provide access to the new light rail transport and other express commuting services as well as to the metro. Where lots are used to their full capacity charges may be introduced to ration their use. It is also intended to implement a more extensive residential parking lot program to reduce on-street parking & to improve pedestrian and environmental conditions in housing blocks. The city will consider the possibilities of involving the private sector in the investment and management of an extended program of off-street parking under license from the city and subject to city regulation of amount and price of parking. Figure 2-2: Proposed Plan and Design of a City-Wide Parking Program Congestion Charging. As in other great cities such as London, Milan and Stockholm the government of St Petersburg considers congestion parking to be an efficient complement to parking policies, particularly for traffic restraint in the central city. A scheme will be designed and introduced on the basis of the strategy study discussed above. The Five-Year Action Program 33 P a g e

55 Legal. Before any significant change can be made in parking and demand restraint administration it will be necessary to establish the necessary legal powers. These include the abolition of the right to free universal on-street parking, and the transfer to the municipalities of the responsibility for policy, administration and implementation. This should include the power to determine where on-street parking should be banned and powers of enforcement, including clamping and vehicle tow-away, for infringements of local parking regulations. Fines for infringement should also be determined at the local level. Similar legal powers must also be established for the implementation of congestion charging. Institutions and Organization. Parking is both a high level strategic issue and a very practical, on the ground operational issue. A distinction will be made in organizational terms between policy setting, system design, and implementation, with each allocated to the agency most suitable to perform it. Overall strategy will be part of the responsibility of the recently formed Strategic Planning Unit. This unit will prepare the policy framework in a parking plan. Tactical management responsibility will be assigned to the Traffic Management Authority which will design the on-street parking arrangements. Operational implementation of on-street parking, off-street parking, including parking garages, park and ride facilities, and residential parking provisions shall also be the responsibility of the Garages and Parking Authority, as at present. Enforcement of on street parking will be the responsibility of a force of traffic wardens attached to the Garages and Parking Authority. 10 The expansion of the responsibilities of both the TMA and the GPA will require expanded skills and expanded staffing for both. The city will press for parking charges and fines to be treated as revenues of the parking service to meet the expenses of the parking service, as well as for funding other transport improvements when parking revenues reach higher anticipated levels. Studies. The following studies should be implemented or completed as soon as possible: (a) Central area parking study. A city sponsored study has been undertaken on the application of restraints on parking and pricing of parking in the central area of the city. This study will be updated and extended as appropriate to deal with the following issues: (i) identification of roads on which parking is to be banned, together with identification of possible locations for the provision of replacement off-street parking in the area (ii) estimation of the revenues and costs associated with parking system changes (iii) estimation of the effects of the new parking scheme on modal choice and on traffic flows and speeds. (b) Congestion pricing. Although the introduction of congestion charging may held back until significant progress has been made with the improvement of high speed public transport for commuters, a study of congestion pricing possibilities will be started immediately. This study will address the following issues: (i) identification of the preferred alternative technology for St Petersburg; (ii) design of the practical implementation of the preferred system (iii) analysis of the modal choice and financial revenue implications of different levels of charge within the preferred method. Note that the parking and congestion pricing studies will use a city wide traffic model see discussion below. (c) Residential parking. GPLA has already collected data on residential parking conditions and possibilities in all 17 rayons of the city. This study will be completed and extended to address the following issues: (i) design and costing of a program of off-street parking for residential areas at different levels (ii) estimation of the traffic and environmental impacts of the alternative residential parking systems designed. 10 This function could also be assigned to the Traffic Management Authority. 34 P a g e

56 (d) Park and ride. A draft program of park and ride facilities already exists. This needs to be extended and completed in association with the planning of improvement of higher quality public transport for commuters. The study will address the following issues: (i) the capacity of new park and ride facilities necessary to support the public transport improvements (ii) the capital costs including their phasing of the desired program (iii) the implications on usage of park and ride facilities and on system revenues of different levels of charges (including zero charges) Investments The development of the parking and demand restraint policy will require a number of investments, including (i) on-street parking charging equipment (ii) capital costs of new off-street parking capacity in the city center (for which private finance and management might be sought) (iii) costs of the residential parking development (iv) costs of new park and ride facilities (v) capital costs of the preferred congestion charges technology. Each of these costs will be estimated in the relevant studies, for different levels of implementation. Financing implications As noted in the previous two sections, most of the various strands of the parking and demand restraint strategy have both capital cost and recurrent revenue implications. In the long run the strategy argued that there should be substantial surplus revenues which are to be devoted primarily to improvement of the public transport system. In the short run, however, the capital costs will exceed the net operating revenues of the system. The adverse effect of this on the city budget may be reduced by the use of private finance (for example by concessioning the development of park and ride facilities). It is very important to the sustainability of the strategy that these financing implications are estimated from the outset, so that the implications for the city budget of alternative means and levels of implementation of the strategy can be considered. Intervention Ref. # Action Responsible Entit(ies) Resources Starting Ending Institutional/ Organizational Administrative / Legal Studies/ Technical A4.1 In line with A3.1, strengthen skills and analytical capabilities of the TMA for parking policy setting and parking system design A4.2 Strengthen implementation and enforcement function of the Garages and Parking Lots Authority (GPLA) A4.3 Secure Federal legislation to permit introduction of paid onstreet parking and congestion pricing A4.4 Update and extend the existing central area parking study A4.5 Extend and complete the GPLA study on residential parking conditions and demand A4.6 Extend and complete the draft Park&Ride Program Strategic Planning Unit, TMA Strategic Planning Unit, GPLA Strategic Planning Unit Strategic Planning Unit, TMA Strategic Planning Unit, GPLA GPLA * A4.4 A4.6 can be done under one single study. A4.7 Study alternative congestion pricing possibilities and recommend a solution for implementation. Strategic Planning Unit City leadership and staff City leadership and staff Collaboration with Federal government. External consultant External consultant External consultant External consultant Immediately Immediately Earliest possible Immediately Immediately Immediately Mid 2011 Complet e within 2011 Complet e within 2012 End of 2011 End of 2011 End of 2011 End of 2011 End of P a g e

57 Investments A4.8 On-street parking charging and enforcement equipment TMA Contractor or concessionaire After A4.3 Early 2012 A4.9 Implement city-wide parking program including construction of new parking facilities in the city center, residential areas, and Park&Ride A4.10 Implement congestion pricing in the historic city center including installation of congestion charging technology GPLA TMA Contractor or concessionaire Contractor or concessionaire After A4.4 - A4.6 After A4.7, if recommended to adopt congestion charging By 2015 End 2015 A5. Improving the External Transport Links Providing convenient passenger transport connectivity between St. Petersburg and the outside world is crucial to maintaining and enhancing the competitiveness of the city as a commercial, tourist, cultural, and industrial center. While substantial investments have been made to enhance this connectivity, it will be important to remain vigilant in ensuring that high quality and convenient transport service is further enhanced over time for the city to remain competitive in a global economy. While a substantial portion of the primary responsibility for providing this connectivity will remain with the Federal Government, the city has an important role to play in ensuring that investments in city transport infrastructure and services are complementary to and supportive of the Federal investments. The current arrangements Airport. In order to modernize the airport and address capacity constraints, the City awarded a 30- year concession to operate the existing airport facilities, construct a new terminal, and invest in new airside and landside infrastructure to achieve an airport capacity of 17 million passengers per annum. This project is phase I of a master plan for the development of Pulkovo airport with future phases to be developed and funded at a later stage in accordance with the concession agreement. It is expected that construction of phase 1 works will be completed by the end of Sea Passenger Terminal. A new sea passenger transport terminal Russia s first modern sea passenger terminal -- has recently been constructed on Vasilevskiy Island. The terminal is built on 447 hectares of land reclaimed from the sea, close to the city center. It is capable of handling cruise vessels and ferries up to 311m long with a draft of up to 8m. It has seven berths, and is due to be completed in This is currently the largest waterfront project in Europe, and will be able to handle up to 1.5 million passengers per year. Inter-City Rail Service. High speed rail service between Moscow and St. Petersburg reducing travel time between these cities to 3 hours 45 minutes with a maximum speed of 250 kph was initiated during High-speed rail services between Helsinki and St. Petersburg began late in 2010 with travel time reduced by two hours to 3 and a half hours. Travel time is cut due to technically more modern trains, faster border formalities and upgraded line. The top speed will be 220 km/h. The trains are electric multiple units which means that locomotive changes at the border are no longer required. Road Access. A St. Petersburg to Moscow toll road of 650 km in length is in the process of being designed and will be implemented in stages. A concessionaire has been selected for the first 43 km to be constructed in the Moscow suburbs. Design of the portion of the toll road leading into St. 36 P a g e

58 Petersburg is also underway. Construction of the km section is expected near St. Petersburg is expected to commence during. The entire Moscow to St. Petersburg toll road is expected to be completed by. The Issues While considerable investments have been and are being made to improve the passenger transport connectivity of St. Petersburg with the outside world, there nevertheless are some issues that will be addressed a part of the overall city transport strategy as described below. Access to the city center from Pulkovo Airport. Providing a fast and convenient passenger connection between the upgraded Pulkovo airport and the city center is an important adjunct to the ongoing efforts to expand and improve airport capacity and services. Several alternative options for providing this access have been considered but no firm plan has been adopted and funding provided. Land connections to Finland. Existing road and rail land links to Finland need improvement. Linking into the Moscow to St. Petersburg toll road, improved road connections to Finland and the Baltic states are desirable for both passenger and freight transport. Terminal facilities and modal integration. The rail terminals serving the north and south are on opposite banks of the Neva, with no direct connection. The central bus station is remote from the center, and many long distance buses operate illegally into other central locations. Possible water connections are not well developed (though this is inevitably limited by the climate). Relevant International Experience In most countries the main inter-urban road network of significance for national traffic is the responsibility of the central government. Where the national routes pass through an urban area they may be maintained by the local authority, but this is still usually on the national account. Fast airport links with the city are also commonly financed by central government, even if subsequently operated by a commercial company, private (as in the case of the London rail link) or public (as in the case of Stockholm and the London Underground). In London, where there are both underground and fast rail links, the underground link is charged the normal underground rates, while the fast rail links are viewed as a premium, service for which an appropriately high fare is charged. It is increasingly common for non-capital city airports to have direct connection to the national rail networks as at Frankfurt and Zurich with air companies using rail rather than air connections for regional distribution of traffic. The issues with long distance rail terminals often arise from a history of originally having different private railways serving different segments of a capital city. For example Paris and London like St Petersburg have multiple, unconnected regionally oriented terminals. In both cases the majority of traffic had its destination in the city itself so that the real need was for good connections to any part of the city achieved through connection by their very dense underground. The main lessons for St Petersburg appear to be to recognize the importance of regional and local distribution from their rail and air terminals, leaving the national rail operator or the Federal government to be concerned with the small proportion of traffic transiting the city. Fast airport links at premium fares, can be commercial propositions. 37 P a g e

59 The strategy The following measures will be undertaken to implement this strategy element: Pulkovo Airport. The city government will continue the policy of airport upgrading, mainly through the private sector concession for the development of Pulkova terminal 2. This will be supported by the creation of high quality and high speed passenger transport access to the city center. The possibility of increasing the use of the airport rail station by better internal connections will also be explored. Sea Passenger Terminals. The city government will complete the development of the passenger terminal complex on Vassilievsky Island, and facilitate further improvement of the cruise terminal in association with the private sector. The quality of access to the city center from the ferry terminal will be improved by the inclusion of a road based bus priority route in a program of public transport demonstration projects. Inter-City Rail Transport. The city government will work to assist the rail company in developing the high speed link to Finland. Traffic bottlenecks associated with at grade crossings, which adversely affect both rail and road operations, will be removed by investment grade separated road crossings Inter-city and international road links. These will be improved by upgrading of some outer radial roads in the city, and by the removal of at-grade crossings with some heavily used rail lines. The city will continue to support the development of the St Petersburg Moscow high speed toll road. Modal co-ordination. The city government will combine long distance bus and rail terminals by the development of an inter-modal terminal at the Finland railway station. Water transport distribution, in the form of an expanded water taxi system, will also be provided on a seasonal basis. This development will be pursued through a partnership between the city (which will provide land and finance the water transport components), the railway company RGD, and private partners responsible for parking and general site development. The five year action program Much of what is needed to improve the efficiency of the external links is already in progress, partly financed through private sector participation and partly through federal government funding. The critical requirement for the city is therefore to continue to develop its collaboration with those other agencies and to ensure that the necessary complementary city investments are made in a timely manner. Intervention Action Responsible Entit(ies) Studies/ Technical Investments A5.1 Examine possibilities to improve and expand commuter rail services (see also B2.2) A5.2 Identify locations and designs of intermodal stations A5.3 Continue the ongoing Pulkovo Airport and Vassilievsky Passenger Terminal projects A5.4 Remove at-grade crossings at intersections with heavily used rail lines, including the highspeed link to Finland (see A3.6) Strategic Planning Unit, Transport Comm. Transit Policy Infrastructure Resources Starting Ending Staff, external consultant Staff, external consultant Contractor Early 2012 Early 2012 Ongoing Early 2013 End of 2012 End of P a g e

60 A5.5 Construct intermodal stations that combine long-distance bus and rail terminals A5.6 Complete the St Petersburg- Moscow Toll Road and other outer area radials Infrastructure, City Architect Infrastructure Contractor Federal funding After A5.2 Ongoing 39 P a g e

61 B. Social Equity Accessibility for All B1. Improving Operational Efficiency of Public Transport An efficient public transport system is necessary both to provide adequately for citizens who do not have access to a private car and also to attract car-owning citizens away from their cars for trips at peak times and in areas of traffic congestion. This is especially important for journeys to work from the suburbs to the center of the city. The current arrangements Public transport in St Petersburg is provided by a wide range of modes and agencies. The Metro, the electric transport company and the bus company are separate agencies under the supervision of the Transport, while regulation of how private and public road transport operates is the responsibility of another agency under the Transport the Organizator Pervozok. The metro company presently operates 4 metro lines, with 64 stations and currently carries 47% of passenger trips. The Blue line, operates a peak period frequency of 34 trains per hour using 6 car sets, and carries 40% of the total patronage. Other lines operate 8 car sets at slightly lower frequency. Surface rail services are operated by a company jointly owned by the city and the commuter rail company of the national railways, carrying less than 2% of total passengers (though a higher share of passenger miles). An electric transport company Gorelectric, has a tramway division operating a service planned for 789 trams from 6 garages on a network of 450 kilometers, of which 250 kilometers is segregated from general traffic, carrying over 7% of total public transport passengers. This network is declining in size, 140 kilometers is in need of repair and routes on Sadovaya and Livovsky roads have been abandoned as recently as The trolleybus division operates a service plan for 684 trolleybuses on 250 kilometers of route from 7 garages carrying a little under 7% of public transport passengers. The company covers 60% of its operating expense from revenue. Two sorts of bus service are provided. Social services are planned to be provided by nearly1900 vehicles, 1100 of which are operated by the municipal bus company and 773 by five private operators under five year contracts. Generally speaking the public sector buses operate the main trunk routes with the private sector buses operating feeder services in local areas and less well patronized trunk routes. Private minibus services began to be provided without legal authority in the late eighties and nineties to supplement the declining public sector service; by 2000 there were 50 operators in business. In 2005, private sector bus services began to be procured under competitive tenders to supplement the public sector buses on the existing social routes and were allowed to provide other services on a commercial basis. Commercial services are operated by approximately 3,500 private sector vehicles of various sizes, on routes approved by the Transport. Fares are controlled by the Transport. There are flat cash fares for the social bus, tram and trolleybus services (19 roubles in 2010, rising to 21 roubles in 2011) and the metro (currently 22 roubles rising to 26 roubles in 2011). Fares for the commercial bus services vary with trip distance between 20 and 30 roubles. 40% of passengers are carried at reduced fares. Students pay approximately 40% of the basic fare and the elderly 30%, but these concessions are not available on the commercial buses. Surface railways also have a graduated fare structure. In practice, only about one quarter of passengers pay cash fares. The remaining three quarters use monthly electronic tickets. 40 P a g e

62 These are valid for a specified number of metro journeys (70 per month) and for an unlimited number of journeys on social buses, trams and trolleybuses. Cards are available (at different monthly prices) for combined metro and surface transport or for surface transport only. Procurement of services differs between public and private suppliers. For social services routes are allocated directly to the publicly owned bus company by the Transport. Mostly this simply reflects the historic route structures, covering the main trunk routes, with less well patronized and feeder services in local areas put to tender for the private sector. Social services operated by private operators are allocated on the basis of a competitive tender and packaged in zone based lots together with permissions for the provision of specified amounts and types of commercial service. The contracted services are procured on a net cost basis with operators retaining their revenues from both social and commercial services, with a balancing payment according to contract. Remuneration arrangements for the operators vary between private and public companies. Operators, of all modes, both private and public, retain their on-bus cash fare collections. Operators are paid on a per passenger basis for those passengers using electronic tickets based on the records created when the ticket is used on the vehicle. This payment is lower as is the cash fare for students and the elderly. In addition to these payments the publicly owned operators have their vehicles replaced on the city budget, and have their operating deficits financed by the city in lieu of any specific compensation for concessionary fare passengers. Private suppliers of social services are treated similarly in respect of electronic ticket passengers, but get no capital support and receive lump sum payments based on the amount that they bid in the contract tender. The issues Evidence suggests that existing public transport modes are of varying degrees of efficiency and that the way in which they are organized and regulated does not necessarily make the best use of the resources available. There are a number of sources of weakness. Management of the public sector companies is very constrained commercially, with service task allocations variable at the order of the transport committee. Even the normal functions of a commercial company, such as vehicle dispatching, are undertaken by the regulatory authority. Vehicle replacement is a particular problem. The tram system is over 100 years old and has been suffering from a backlog in vehicle replacement. Only 100 new trams have been procured since 2005, the rest being over 20 years old, with an average age of over 15 years. 130 new trolleybuses were bought in 2008/9 but the rest are older, with an average age of 12 years. Even the metro, which has been in operation since 1955, has an aging car fleet. Similar problems affect the autobus sector. Inability to finance expansion of the public sector fleet was one of the reasons for the introduction of 700 private sector vehicles on social services. The public bus company has little commercial freedom in management, and is also dependent on the city for finance of its vehicle fleet. While 400 new buses have been ordered in 2010, the last significant investment in buses was as long ago as Many of the sensible commercial disciplines which support the efficient management of public transport undertakings are impossible in this uncertain context. 41 P a g e

63 Fleet quality is also perceived as a problem. Many of the commercial bus operations are undertaken by small van conversions which are not well suited to public transport service. The Transport would like to see these vehicles replaced by larger, conventional buses. This is a difficult issue. Despite their poor perceived quality, the vans are well used because they give higher frequency for any given total capacity and are more flexible and speedy in operation in congested traffic conditions. Moreover, their cost is relatively low. Fare structure. Fares for surface rail are graduated by distance. Those for metro and social bus services are currently flat i.e. a single fare applies to all journeys in the system. However, the fares for commercial bus services are approximately 50 percent higher than those for social services. This is an anomaly as the journey lengths may be shorter and the quality of vehicle poorer than for the social services. This anomaly appears to arise from an attempt to increase service availability without increasing the budget burden of the service at a time when capacity was insufficient in the basic service sector. While there may be a case for premium prices where a superior service is offered (as for express services or all seating services) there is little logic or apparent fairness in the current arrangement. This does not mean that a flat fare system should be maintained for all modes. Procurement of private sector services. As explained above, the origin of private sector involvement in supply was more by historical accident than by design. Private sector operators now play such an important role that their efficient employment is as important as that of the public sector. In a recent retendering of routes supplied under expired contracts only 30% of the capacity required was actually achieved and this through a larger number (14) operators. The larger private operators appear to be very wary to re-contract on the basis offered, which they perceive as very risky. Financial sustainability of public transport. Financing of public transport is very volatile. Budgeted operating subsidy for 2010 was 5.63 billion rubles. That for 2011 is 8.75 billion an increase of 55% - partly due to tightening of vehicle standards for private sector buses on social routes. Vehicle replacement expenditures, for trams, trolleybuses and public sector buses similarly vary drastically from year to year, depending not so much on the operating needs of the companies as on the perceived fiscal situation. Other public transport infrastructure investment track, catenaries, terminals are similarly volatile. This lack of stability undermines good management. Relevant International Experience High costs of public transport associated with inefficient operation has been countered in many countries by the introduction of competitive pressures. In a very few countries, including the United Kingdom, this has involved completely free entry into the market, subject only to qualitative licensing controls. But this has generally been believed to lead to a loss of service in areas and at times of less strong demand. Hence, even in the smaller cities in the UK the municipal authorities have the power to supplement the service provided by the free market by the procurement of additional services by competitive tender for subsidized provision. More generally, countries have chosen to introduce 42 P a g e

64 comprehensive competitive tendering for a set of services and fares determined by the municipality Such comprehensive competitive tendering has been introduced in London, as well as in cities like Stockholm, Helsinki, and Copenhagen. The form of franchising system varies from country to country. Some smaller cities have used net cost tendering, under which the operator retains the fare revenues and the municipality pays only the supplement needed to secure the service at the lowest qualified bid price. Most large cities, however, have adopted gross cost tendering, in which all of the revenue accrues to the municipality (which effectively takes the revenue risk) and service suppliers bid on the basis of the remuneration they require to meet the full cost of operation. This arrangement requires the city to have a very secure revenue collection system, but gives it a much greater degree of freedom to vary fares or routes without having to renegotiate affected contracts. The package size and structure also varies considerably. At one extreme many French cities have assigned the whole of their operation to a single private company. At the other extreme individual lots may be as small as an individual route. Typically, as in London, the lots consist of a few routes, often assembled on an area basis. Sometimes, as in Santiago, Chile, trunk routes are let on a route basis while feeder services are let on an area basis. Competitively tendered franchising has even been applied to secure disciplined service on packages of minibus operations in Uzbekistan and the Kyrgyz Republic. Contracts are usually phased so that they do not all terminate simultaneously. This reduces the cost of administration by ensuring a steady flow of procurement work and also tends to increase the effectiveness of competition and reduce the possibility of effective collusion between bidders. Results of these tendering arrangements have generally been good. The cost per vehicle kilometer in London fell by 40% in the first round of tendering (though they have increased somewhat subsequently). But many cities have achieved operating cost savings of about 20%. Only in South Africa did the introduction of competitive tendering actually increase the level of subsidy requirement, but this was due to a conscious policy of using the introduction of the competitive system as an opportunity to require much higher quality of services than had previously existed. A number of lessons of this experience are particularly relevant to St Petersburg. First, it is critical that contracts specify fully all the rights and obligations of both parties, including the level of any payment which is to be made by the municipal authority. Without that the perceived risk to bidders will be very high and hence they will attach high risk premia to their bids. The higher the quality of serviced or vehicle required, the higher will be the bid price. The procuring authority must develop the skill to understand what will be the likely effect of different conditions so that it operates within its budget. Second, the system will not work unless all of the bidders are subject to similar legal obligations publicly owned companies with deficit support from their owning authorities will almost certainly bid below cost and incur losses which simply drive up the total cost of the system. When competitive tendering was introduced in Britain all publicly owned companies were reconstituted as commercial companies with no recourse to their owners for capital contributions or deficit support. In those circumstances most authorities sold off their bus companies and pursued their policy objectives through their role as purchasers of service rather than as suppliers. Emergency requirements are provided for in the terms of the private company contracts. The possibility of a supplying company failing financially can be met by permitting the authority to procure service for a limited period by direct negotiation. 43 P a g e

65 Some categories of passengers notably students and retirees are charged lower fares in most cities. Where there is a city owned operator the costs of these concessions are usually carried on the city budget as deficit fiancé of the operators. Where the fare reductions are nationally mandated as for pensioners in the United Kingdom and students in Poland the cost of the concessions is carried on the national budget. Fares may also be differentiated by mode with rail fares higher than bus fares or quality of service with express rail services, or all-seater buses as in Seoul, Korea, offered at a premium price. Fares may also vary by source of supply, with privately supplied bus services charging higher fares than public sector buses and not offering reduced fares to students or pensioners. This still occurs in a number of the central Asian republics of the former Soviet Union, but is the accidental consequence of the supplementation of failing public sector services by the private sector rather than a designed public policy. This does not happen in any of the western European cities where the private sector provides service under franchise contracts with the municipality under essentially the same terms and conditions as the public sector operators. The strategy At least half of the surface transport service in the city is provided by the private sector. While the quality of some of the vehicles presently used on commercial services (at higher fares) may be lower than that of the best (but not all) of the public sector vehicles, the cost to the city budget per vehicle mile is substantially lower than that of the public operators (autobus, tram, and trolleybus) where comparable service quality is required on social service routes.. The city government therefore considers it unwise to press forward the replacement of the smaller vehicles without a careful examination of both the cost and service implications of that policy. An immediate study of this topic will be undertaken. In any case, the supply which can be provided by the public sector has been considered insufficient. The strategy is therefore not to drive out the private sector but to change the organization both of public and private sector suppliers to increase the efficiency of the former and to ensure consistently higher quality of service from the latter. There are four strands to this strategy. Revise tendering arrangements and move to gross cost contracting. Most large cities which procure services from private operators do so, on the basis of gross cost tenders. Under this arrangement all fare revenues are kept by the organizing authority, and transport operators bid for contracts on the basis of the lowest cost of supply (see Annex 7). The city will move as soon as possible from net cost contracting to gross cost contracting, which leaves the revenue risk with the city (as in the case of the public sector suppliers), and provides a more secure basis to the private companies to borrow for new bus purchase. 44 P a g e

66 Figure 2-3: Current Arrangement of Autobus Services and Issues Commercialize the relationship between the city and the publicly owned companies. The publicly owned bus, tram and trolleybus companies all carry reduced fare passengers without direct compensation but have their vehicles provided by the city and receive finance of their operating deficits from the city. Reliance on the city for vehicle replacement has resulted in aging fleets, increased maintenance costs and a relatively low proportion of registered vehicles available for service. This arrangement offers little incentive to efficient economic management. Therefore all of the public companies will operate on formal contracts with the regulatory authority which will specify the cost per bus kilometer which they will receive, while having the new responsibility of making their own plans and provision for fleet replacement in order to meet the conditions of the contract. Remove the distinction between social and commercial services. The present system of distinguishing between social and commercial services has the effect of restricting the use of the available services by students and pensioners. Where there is no social service they must pay the full fare, and even where both social and commercial services operate on a route they are faced with a lower effective frequency. The arrangement thus somewhat randomly limits the accessibility of one set of citizens while making less effective use of the total set of services provided. For full fare paying passengers the present arrangements have the curious effect of resulting in slightly higher fares being paid often for shorter trips or poorer quality of service. Therefore the distinction between social and commercial services will be abandoned, allowing access of reduced fare passengers to all basic services. In future premium fares will be charged only for premium service (such as commuter express services). After careful review the city government will integrate all services within a comprehensive fare structure with gradations based on distances (in zonal bands) and service quality (journey speeds). Move to comprehensive competitive tendering. The implication of removing the distinction between social and commercial services is that all services will be operated under contracts between operators and the city. Routes will be planned by the city and put out to operators for tender. In the transitional period some contracts including those with the publicly owned operators may be on a negotiated basis. In the longer term, however, the public companies will be treated like any private company, competing for competitively tendered contracts for service franchises. Services will be tendered on a gross cost basis based on the system successfully adopted in London and elsewhere (see Annex for details of how this can be done. Figure 2-4: Proposed Arrangement of Autobus Services 45 P a g e

67 Plan for public transport financial sustainability. One of the great advantages of putting all services on a competitively tendered, gross cost basis is that the city gets to know, in advance, what will be the budgetary implications of any planned level of service, quality of vehicle and fares level. On this basis the city can each year prepare a public transport budget showing what funds will be required to finance the planned level of service and where those funds will come from. Planning for sustainability does not mean the elimination of all subsidies. There are various elements in the strategy which will generate new funds for the city with which to finance its public transport system. Consideration of fare levels and structures will be part of the annual review process. The city is so large, geographically, that the city government considers it acceptable for longer distance travelers to be asked to pay higher fares. The metro is already planning a zonal fare system for In order to reduce the cost of extending the availability of concessionary fares to all services, consideration will be given to limiting the availability of concessionary fares to pensioners during the morning peak hours. The five year action program Most of the developments in the public transport sector are organizational rather than involving heavy capital investment. It is therefore possible as well as being desirable to move forward swiftly with the reform program. Institutions and organization. The publicly owned operating agencies will be restructured as commercial companies, having their own budget constraints. While initially receiving their existing vehicle fleet as a gift from the city they will thereafter be responsible for maintenance and replacement of that fleet from their service contract revenues (and any other revenues such as those from advertizing which they might have). They will sell services to the PTE, in competition with each other and with private sector contractors. They will not receive retrospective finance of their operating deficits. Strategic decisions about fleet replacement will be made by the companies from their own resources, borrowing or lease contracts, based on their commercial prospects. Major track infrastructure, particularly for the Metro, will continue to be financed by the city. But the accounts of the operating companies will show the value of that capital and will make adequate provision for its servicing and maintenance. Studies. A short term supply efficiency study will need to address the following issues: (a) Design of the set of services to be put to competitive tender, this will involve the design of trunk and feeder services. (b) Preparation of invitations to tender and contract documents for gross cost contract tenders. (c) Selection of a secure revenue collection system. (d) Restructuring of the operating companies as commercial companies in a competitive tendering environment. (e) Analysis of the likely costs of alternative service and fare arrangements for the financial balance of the system. (f) Study of the implications of changing reduced fare tickets for pensioners to include all services (including those presently commercial) but to exclude travel at peak. 46 P a g e

68 Investments. During the next five years the change in supply arrangements means that the cost of vehicles will not be a charge on the capital budget of the city. The main investments will therefore be the following. (a) The shift to gross cost contracting will require the introduction of secure fare collection equipment and GPS equipment on all vehicles. While this could be funded by the operators, the costs would ultimately be passed on to the authority through contract prices. It may therefore be desirable for the city to be responsible for the capital costs of the equipment, simply requiring the operators to bear the costs of installing the equipment in their vehicles. Finance. The changes that are involved in the public transport strategy will have very wide ranging financial effects. The preliminary studies outlined above will assist the city to ensure that there is no sudden unsupportable increase in the budget burden of the system. In the longer term, however, it is important to establish a system which guarantees that the city can control the financial demands for public transport. One of the great advantages of putting all services on a competitively tendered, gross cost basis is that the city gets to know, in advance, what will be the budgetary implications of any planned level of service, quality of vehicle and fares level. On this basis the city can each year prepare a public transport budget showing what funds will be required to finance the planned level of service and where those funds will come from. The five year action plan is as follows: Intervention Action Responsible Entit(ies) Institutional/ B1.1 Corporatize the publicly owned Transport Organizational bus and electric transport Administrative/ Legal operating companies B1.2 Strengthen the capacity of Public Transport Organizer, to promote its status to Public Transport Executive B1.3 Remove the "two-tier" distinction between social and commercial services, and integrate all services in a single system B1.4 Convert all contracts except those with the Metro company to competitive tender that is gross-cost based B1.5 Commercialize the existing publicly owned transport companies Transport, in collaboration with Strategic Planning Unit Transport Transport Transport Resources Starting Ending City leadership and staff City leadership City leadership and staff City leadership and staff City leadership and staff After completion of task B1.6 End of Gradually as financial situation permits After B1.6 and B1.7 Early 2012 Aiming to complete by 2014 In 2012 Studies/ B1.6 Long-term structure study: Transport External Immediately Mid P a g e

69 Technical design of comprehensive routes, high-speed segregated track services, and roles of trams and trolley buses (see B2.2) B1.7 Short-term supply efficiency study: design of competitive tender services, preparation of gross-cost contract tenders, restructure of operating companies, cost analysis for the new tender system B1.8 Study possibility of automatic controlling system to reduce headways on the Metro Blue Line Investments B1.9 Secure fare collection equipment and GPS equipment for performance monitoring, in collaboration with Strategic Planning Unit Transport Metro Authority Public Transport Authority consultant External consultant Metro staff, contractor Operators, Contractor Immediately Early 2012 Mid 2012 End of 2011 End of 2012 B2. Giving Priority to Public Transport System Development The strategy for improving transport in St Petersburg is focused on shifting person movements in congested areas and at congested times from the private car into public transport. While congestion and parking charges will assist this, the strategy will only be successful if the public transport alternatives are attractive, This means that in the future public transport will need to be focused not only on providing affordable transport for those without access to a car, as it has been in the past, but also on providing a level of speed, comfort and quality of travel which will be competitive with the car. High speed public transport links to the center are thus necessary to complete the system. The development of an effective system of segregated public transport corridors is thus essential to the success of the strategy as a whole. The current arrangements The principle that was adopted in the 2005 plan for public transport integration is that the metro shall be the backbone of the strategic public transport network. At the moment the network of metro routes, despite being heavily congested, has the advantage of giving station to station journey speeds which are faster than can be achieved by car at most times of the day. But the current metro network is fairly sparse, despite the fact that the purple line is being extended in length by two stations to Moskowskaya, and two further new station outlets are presently being completed on existing lines. 11 Moreover, metro station spacing is on average about 2 kilometers, compared with about 1 kilometer for inner area stations in cities like Paris and London. There is an approved plan for metro extension, but the withdrawal of strong federal financial support for metro construction makes the completion of the plan look much more questionable in the short term at least. Suburban rail services do exist on a number of axes, but their level of service and of patronage is low. In principle these services cover their total costs and, since 2010, only receive subsidy in the form of compensation for the carriage of concession fare passengers. This distinguishes them from most other public transport in the city, and is probably an impediment to their further development. Their use by 11 This was possible as the platform facilities were already constructed but not used as a station. But little can be done economically where such provision was not originally made. 48 P a g e

70 commuters from the Leningrad oblast as well as residents of the city has complicated the question of financial support for the services. St Petersburg has a smaller provision and use of surface and suburban rail services than any European city of comparable size. The metro and suburban rail network is supported by a much denser network of surface transport modes. These are divided both technically between trams, trolleybuses, and autobuses of different size and operationally between social services and commercial services. While the surface transport services complement the metro, allowing trips to be completed by public transport, they are largely subject to road congestion because of the absence of priority movement over most of the network. Trams and trolleybuses perform essentially the same function as autobuses on the social routes, with substantial overlap in many areas. Hence they are typically slower than the private car. Only the smaller vehicles, which are being progressively replaced, can come near to competing with cars for speed, and they are generally considered to be less comfortable and reputedly more dangerous in operation. Road based public transport priorities do exist in the form of bus lanes. But the extent of these lanes is very limited, and enforcement of them tends to be weak, both with respect to cars stopping for loading and cars entering the bus lanes in advance of turning movements at intersections. The Nevsky Prospect public transport priority is unusual both in its length and effectiveness. There are also some limited physically segregated tram sections. One of these on Bukharestskaya Ulitsa has been identified as the route for a high speed LRT development. For the most part, however, these segregated tram routes are located on relatively short sections of road which do not constitute a comprehensive high speed public transport route. Moreover, there are some important inner city roads, for example Sadovaya Ulitza and Ligovsky prospect, from which tram service has been removed in recent years to make way for easier car movement. This trend should be reversed. The issues Route structure. As noted above, St Petersburg is already committed in principle to a structured public transport system with the metro forming the backbone of the system, offering high speed trunk services. But the metro is not yet extensive enough to perform that function for the whole of the city. Although a long term plan exists, only a three year program, including the extension of the purple line, is committed up to 2012, with the intention to extend further to a depot by This extension is considered essential to release demand pressure on the blue line. Moreover, the other modes are not well structured to serve as feeders to a trunk network. A comprehensive plan will be developed within which individual modes or services have defined functions. Metro Capacity. Metro capacity is already near to fully employed certainly at the peak. At peak operation the Blue Line runs 34 six car trains per hour in each direction, with headways of less than 2 minutes. Only the red line was designed with platform lengths allowing 8 car trains, though the further lines proposed for the future will be designed for eight car trains. At some stations there is a bottleneck in pedestrian or rider access to the stations at the peak, though this incidentally prevents unsafe overloading of platforms and is hence not an unmitigated disaster. Both blue and red lines are now at the maximum safe frequency of operation with current signaling systems. Responsibility for complementary investment in park and ride facilities is not well coordinated, with the on Architecture controlling the land availability, the parking Garages and Lot Authority of the Transport responsible for the physical investment, with Metro management playing a largely passive role. 49 P a g e

71 Technology choice. Both trams and trolleybuses require fixed route infrastructure which impose system costs and also reduce operational flexibility. As these are separate infrastructures the duplication of modes with autobuses imposes extra costs as well as reducing system flexibility. Trolley bus routes overlap with bus routes, with little apparent justification for the maintenance of the trolley bus system other than a slightly less intrusive environmental impact. The cost per vehicle kilometer appears to be higher than for buses. It is intended to undertake a detailed review of the rationale for maintaining the current range of modes as the first step in implementation of the strategy. Commuter rail. The low proportion of passengers carried by commuter rail reflects both the high concentration of population in the urban, rather than suburban, areas of St Petersburg and the difficult institutional arrangements with a commercially oriented national rail company which sees little profit in suburban rail operations. The creation of a joint company between the city and the railway company has not so far over come this impediment. There is already a substantial population in the arm of the city lying to the south west of the Gulf of Finland, and suburbanization of population is very likely to increase as incomes increase. The relationship with the Leningrad oblast complicates this picture further. Bus lanes. The small extent and weak enforcement of bus lanes need to be addressed together. This requires some more purposeful traffic management (including provision for a restricted set back of the bus lane before intersections and/or separation of the green phase for bus lanes from that of general traffic at signaled intersections) as well as a campaign for enforcement. Physical Segregation. The lack of a system of physically segregated surface public transport corridors and public transport priority treatments at key bottlenecks has become a serious issue as the levels of motorization and congestion have dramatically increased in St. Petersburg. These segregated corridors and public transport priority measures at bottleneck points are needed to provide reasonable alternatives to the automobile in terms of speed and comfort. An investigation of possibilities of physically segregated corridors undertaken by the Research and Design Institute of Regional Development and Transportation in 2007 suggested an even more substantial list of possibilities then those which have been subsequently discussed and published. The absence, to date, of a more extensive program of comprehensive corridor segregation has been in response to increased private motor vehicle traffic in combination with a lack of resolve on the part of the city to to implement these improvements.. Introducing such a policy is bound to raise some opposition from motorists who find themselves squeezed by the allocation of road space exclusively for public transport. While this likely resistance is recognized, the city government intends to work on implementing this change of emphasis initially through demonstration projects and public education programs. New modes. An Initial proposal for a Light Rail Transport (LRT) line in the Bukharestsky corridor combined two different objectives, namely to develop a fast connection to the new airport and to demonstrate the potential of an LRT corridor for attracting commuters from their cars. The danger is that pursuing them simultaneously will increase the cost (over half of the estimated cost is for the new route from the end of Bukharestsky to the airport) and slow down the 50 P a g e

72 development. Similarly, an exclusive emphasis on LRT may limit the development of high quality services where physical limitations require hybrid mixtures of segregated and non-segregated space use. Bus Rapid Transit might be more flexible in these circumstances. Relevant International Experience Most of the larger cities that have managed to reconcile high incomes with manageable congestion and environmental outcomes have done so through their ability to limit the use of the car for the journey to work. This has usually been achieved through a combination of high costs of all-day parking or congestion charging on entry to the city center by car with a dense, frequent and reliable public transport alternative. Particularly in the larger cities, like London or Paris, the public transport part of the solution has been achieved through a high level of service integration allowing multimodal journeys to be undertaken without significant penalties either in total journey time or total journey cost. The first requires physical integration and the second requires commercial integration between the modes (see Annex 10 for more international experience). Efficient physical integration has often included the restructuring of services on a hub and spoke philosophy. Within this structure trunk services are not necessarily all conventional metros. Suburban rail system perform major trunk movement functions in larger cities (like London or Paris), while atgrade light rail systems supported by strong priority treatment in traffic management or segregated bus rapid transit system (BRT) systems play an important role in smaller cities (like Strasbourg) or those that cannot afford substantial metro investment (like Bogota, Colombia). In some cases, like Brisbane, Australia, trunk priority is combined mixed with local distribution functions through an open access segregated busway system. Commercial integration is equally important. Through ticketing systems, implemented through electronic card systems like the Oyster card in London eliminate penalties on interchange of modes or operators. In many cities such as Curitiba, Brazil a strong sense of integration has been achieved by the establishment of a brand image for the system as a whole. And where conurbations span more than one autonomous local political authority agreements on a metropolitan scale have helped to create an integrated system (see Annex 8). The main lessons of this international experience that can be adapted for application in St Petersburg include the need for a structured system, with both physical and fare integration, the possibility of integrating several physical modes under a joint marketing brand, the overwhelming advantage of public transport in using space on congested axes entering the central area, and the possibility of developing surface rail services better by action at the metropolitan level. The strategy A comprehensive public transport investment program will be developed within which the roles of the metro and each of the surface public transport modes clearly defined. This will include development of a detailed route structure for each of the surface public transport modes. Wherever possible longer distance commuting journeys will be provided with an express service on segregated or largely segregated routes, for which a premium price may be charged. Metro. The metro system will continue to form the backbone of a structured network and will be further extended further where demand justifies. But it is clear that resource constraints will limit the pace of that extension. As a result, the planned developments will be carefully appraised, including 51 P a g e

73 further examination of the possibility of increasing the capacity of the blue and red lines by investments in signaling systems to facilitate reduced headways. Suburban Rail. For suburban services the city government will strive to extend the range and frequency of services provided on existing lines and aim to integrate the suburban railways in a city wide ticketing and fare setting arrangement. This will include reconsideration, along with the railway company and the Leningrad oblast, of a basis for support of suburban rail services comparable with that for other public transport services within the city. An aggressive program of road public transport priority routes will be initiated. (a) Developing solutions to address the bottleneck problems along comprehensive routes rather than on the traditional opportunistic approach of creating unlinked segments where they are easy to achieve. For example, considering the potential of a bus queue jumping option at the proposed Orlovsky tunnel will be part of the traffic management design brief for the project. The combination of complete segregation in central reservations with roadside busways in central areas will also be explored. (b) A much more extensive program of comprehensive bus lanes will be introduced, with rigorous enforcement of the elimination of on-road parking on the selected routes (c) Completely segregated corridor systems will be indentified and planned. These could be light rail routes procured as PPPs under specific concession contracts, or bus routes planned and managed either privately or publicly. A Study will be undertaken immediately to consider alternatives for the first LRT line. Institutional coordination. Effective implementation of high performance segregated surface routes is not just a matter for the operating agency, whether that be bus or LRT. The Traffic Management Authority must be involved in the design of signal priorities on at-grade intersections. The Parking and Garages Authority must be involved in the planning and provision of supporting park and ride facilities. The city government also intends to ensure early police involvement at the stage of study design to facilitate effective enforcement of priorities. To secure this co-ordination each segregation exercise will be supported by a small multi-institutional working group. Surface rail service development will be incorporated into the integrated system plan, and facilitated by the development of stronger collaboration with both the railway company and the Leningrad oblast at the metropolitan level. A set of demonstration projects will be planned and implemented at an early stage in order to gain support for a general strategy of comprehensive segregated routes. These projects will include the development of associated park and ride facilities. The presently proposed light rail transit PPP on Bukharestskaya Ulitsa is a good case to begin with, and the first stage could be implemented in advance of the completion of a route to the airport. An alternative route from the airport using the already segregated section of Moskowsky Prospect and an extension on Ligovsky Prospect to the Moscow railway station may be an attractive alternative. Other examples of potential demonstration projects are shown in the diagram below. Note that these include developments which could be primarily the linking of segregated bus lanes (as in the route along Nevsky prospect going out on to Vassilievsky Island) or could be segregated high speed busways (the route from Slavy Prospect through to Leninsky Prospect). 52 P a g e

74 Figure 2-5: Public Transport Priority Demonstration Projects The five-year action program Institutions The strategy puts a heavy emphasis on the integration of the public transport modes to create a coherent easily understood network. To achieve this, the city will restructure the transport organizing authority Organizator Perevosak to create a Passenger Transport Authority under the Transport with its responsibilities extended to the co -ordination and provision of information on all public transport services in the city. The city will also explore alternative ways of 53 P a g e

75 developing an integrated network of high speed trunk services in the city with a common brand name for the total network of services, including the participation of the private sector in a joint company. Studies. While the general structure of the strategy is clear, the following studies will still be necessary to (a) Design a comprehensive route network for all modes, including allocation of functions between modes and identification of trunk and feeder roles (b) Identify and prepare preliminary designs of appropriate sets of demonstration projects for high speed segregated track services (c) Analyze the roles of trams and trolleybuses within the multi-modal system, with strategies for transition from current to future modal balance of role (d) Conduct separate technical studies to design the segregated corridor demonstration projects, to cover not only the technology of the infrastructure vehicle operating system as well as the necessary supporting park and ride facilities and traffic management measures Investment. In this element in the first five years of the strategy will be heavily concentrated on the development of high speed surface public transport links. (a) The Metro Blue line will be completed, but no new lines started unless Federal or private finance can be obtained. (b) The LRT demonstration projects. Though this is intended to be a PPP project, with substantial private funding, the extent of this will depend on the detailed design of the project. The five year action program thus has the following components. Intervention Institutional/ Organizational Studies/ Technical Investments Ref. # Action B2.1 Strengthening strategic planning function for comprehensive route planning, intermodal connection, service quality control B2.2 Study to identify and design the high priority segregated public transport corridor demonstration projects (bus, light rail transit, and suburban rail) (see A3.5, B1.6) B2.3 Study of institutional alternatives for development of integrated high speed trunk network. B2.4 Complete the Metro Purple line B2.5 Light Rail Transit (LRT) and possible BRT and suburban rail demonstration projects B2.6 Expand bus lane system serving the central area including Nevsky Prospect Extension Responsible Entit(ies) Transit Policy (Strategic Planning Unit) Transport Strategic Planning Unit Metro Authority Metro Authority TMA, Public Transport Authority Resources Starting Ending City leadership and staff City leadership and staff Immediately Mid 2011 End of 2011 Staff Mid 2011 Mid 2012 Contractor In 2013 End of 2015 Staff, operators Staff, operators Immediately after B2.2 Immediately after B2.2 Aiming to start implementation in 2014 Aiming to start implementation in P a g e

76 B2.7 Public transport priority measures at bottleneck points especially the Orlovsky tunnel and bridges B2.8 Extension of demonstration projects toward integrated segregated surface public transport network TMA, Infrastructure Metro Authority, Public Transport Authority Staff After A1.9 End 2015 Contractor or concessionaire After 2.5, 2.6 B3. Providing for Pedestrians and Cyclists Virtually every person-trip in the city, whether it involves use of a motor vehicle or not, involves some pedestrian activity which needs to be safely accommodated. Accommodating safe and convenient non-motorized travel is also important for health and environmental reasons. Not only are walking and bicycling healthy activities to be encouraged for their own sake, they are also recognized as having virtually no adverse environmental impact unlike motorized travel. The current arrangements Through past and current efforts St. Petersburg has a reasonably good pedestrian environment. Sidewalks are provided as part of all residential and commercial developments as well as along all arterial and secondary streets where there is pedestrian activity. Priority within the program has focused on the historical city core and high intensity pedestrian districts for example through Government resolution 30 November 2004, no on the concept of development of pedestrian areas in the historic core of St. Petersburg. But detailed plans are also in place for improving pedestrian conditions in other high pedestrian use areas including outlying commercial districts. Recreational bike paths are provided in parks. Provisions for segregated bike paths are also considered as part of road construction and reconstruction projects, although there is no fixed standard set for this. The Issues While the pedestrian is accommodated reasonably well in comparison with many other major cities, this is no reason for complacency, particularly with regard to pedestrian safety. Pedestrians account for approximately 70% of all deaths and a high percentage of all injuries associated with motor vehicle related accidents in the city. There are a number of locations where adequate provision of safe pedestrian crossings is not provided, especially where high speed and/or high volume traffic precludes safe pedestrian crossings. Parked cars encumber sidewalks in areas of high parking demand. While provision for recreational cycling is made in many parks in the city, the climatic conditions and lack of safe bicycle commuter routes effectively precludes this form of transportation from being a viable alternative in most parts of the city. Relevant International Experience The role of cycling within urban transport systems is highly dependent on national culture. The share of total trips varies from 0.1% in Madrid to 25-30% 0f trips in most Dutch cities and over 30% in Copenhagen. In countries such as the Netherlands and Japan the bicycle is frequently a complement to 55 P a g e

77 rail transport for longer journeys, with cycle parking provided at railways stations. In this way the bicycle contributes to a reduction of private car use even if it is not the main mode of travel. A high share of trips is usually associated with the existence of a good network of cycle route or separated cycle lanes. For example, in Copenhagen and the Hague the length of cycle network is over 40% of the length of the total road network, in comparison with an average of less than 10% in the middle size cities and 2% to 4% in large cities like London, Rome and Madrid. Higher income cities tend to invest more in cycle routes, though not always with any great effect on modal split. Extremes of weather are clearly a discouragement to cycle use. The comfort and safety of the pedestrian has been given increasing attention in Europe in recent years. Motor vehicles parked on sidewalks are a major source of discomfort and danger, especially if they push the pedestrian out into a moving traffic flow. While in many countries this is illegal unless there is a sign to the contrary, enforcement varies enormously from country to country. Pedestrian precincts, in which no cars are allowed at all, exist in many cities. Sometimes, as in Manchester and Strasbourg, LRT vehicles are allowed access, which tends to encourage the use of public transport. Less commonly, cars are allowed to travel at low speed in traffic calmed areas. More generally the use of speed humps or chicanes in roads in residential areas keeps traffic speeds down. The lesson for St Petersburg appears to be that, in the context of securing legal powers to control and charge for onstreet parking powers to control and enforce restrictions on sidewalk parking are essential The strategy Encouraging safe and pleasant non-motorized travel is an important element of the overall transport strategy. A number of measures are to be implemented to encourage the use these modes of travel as described below. Safe Pedestrian Crossings. The program of implementing safe pedestrian crossings will be continued with the prime focus on improving conditions in high accident or dangerous areas. The investments will range from providing grade separated crossings in areas where at grade crossings are not considered to be safe, and less costly crossings where traffic signal protection and/or pedestrian islands may be required. Safe pedestrian crossings also will be required as part of a program to implement segregated public transport corridors (see Strategy Element C4). Pedestrian Priority Zones. The city will continue the adopted program of pedestrian improvements in the historic city core 12 and other high density city districts where pedestrian activity should be a significant or the dominant form of travel. These treatments include pedestrian only malls, improved pedestrian crossing treatments, and streets with wider sidewalks. Removing parking from sidewalks. As part of a city wide parking improvement program, including improved parking enforcement (see Strategy Element A4), the removal of parking from sidewalks will be part of the non-motorized transport improvement strategy. Where enforcement activities are not sufficient to effectively remove parking from sidewalks, physical restraints of parking on sidewalks with high potential pedestrian activity will be provided. 12 (Government resolution 30 November 2004, no on the concept of development of pedestrian areas in the historic core of St. Petersburg) 56 P a g e

78 Implementing Bicycle Commuter Routes. While bicycling is encumbered in the city by inclement weather and bicycling has not been a significant form of transportation, other European cities, including Scandinavian cities with similar weather conditions, have provided bicycle facilities with good results. The city will therefore implement, at a minimum, a pilot commuter bicycle program featuring either physically segregated or marked bicycle lanes. Based on the results of this program further expansion of commuter bicycle routes will be considered. The current program of incorporating bicycle facilities as part of new road construction and capital reconstruction with a view to providing continuous bike routes will be retained as part of this element of the strategy. The five year action program This element will not need large resources. What is most important for the city is that the needs of pedestrians and cyclists are continuously borne in mind in the design of new infrastructure and traffic management schemes. Intervention Action Responsible Entit(ies) Resources Starting Ending Studies/ Technical B3.1 Explicitly require investigation of pedestrian and cyclist interests in the design of new roads or the upgrading of existing streets B3.2 Develop prioritized pedestrian safety program and improvement designs and measures B3.3 Undertake commuter bicycle route study Investments (C2.5) Implement pedestrian road safety improvement program B3.4 Improve pedestrian crossings and walking environment TMA Staff Immediately Continuous TMA TMA Infrastructure Infrastructure, City Architect Staff, external consultant Staff, external consultant Mid 2011 Mid 2012; annual update of program Mid 2012 Mid 2013 Contractor Staff, contractor After B P a g e

79 C. Quality of Life Safe and Healthy Movement C1. Reducing Air and Noise Pollution The results of the first independent environmental ratings of Russian cities, conducted by NERA and the International Social Environmental Union in 2008, revealed St. Petersburg to be in 85th place among 89 cities studied in the country. The city for Nature Use, Environmental Protection and Ecological Safety (CNUEPES) estimated in 2007 that 80% 0f air pollution in the city came from vehicles. Mitigating the air pollution effects of transport is thus clearly important to quality of life in the city. The present situation The quality of air in the city is presently monitored at 21 automatic monitoring stations and by two mobile stations. Ten different air pollutants are measured, of which NOx, SO 2, CO and PM 10 are recognized as associated with vehicle emissions. The air quality at other locations is estimated by the use of dispersion models, which have shown a high correlation between spot measurements done by the mobile stations with the modeled levels of air quality. Using these models CNUEPES maps the distribution of the various air pollutants in space and to identify locations where the level of pollution exceeds prescribed national standards. These maps are used to estimate the number of households with air quality standards in excess of the norms. Total emissions in 2004 were estimated at 270,400 tonnes, of which 213,400 tones, or 80 percent, were estimated to come from road transport. Emissions of specific pollutants from road transport were: carbon monoxide 169,000 tonnes, nitrogen dioxide 26,600 tonnes, and volatile organic compounds 17,200 tonnes. The concentration of nitrogen dioxide, nitrogen oxide and sulfur dioxide in the ambient air of St. Petersburg grew continually between 2001 and 2004 while those of carbon monoxide did not change significantly. However it appears that the longer term trend is not so unfavorable as the effect of the increase in vehicle population and use is being offset by an increase in the proportion of vehicles with modern emission suppression technology. Moreover, the city s pollution is moderated by its maritime climate with moderately cold winters and cool summers, frequent winds and a lack of stagnant areas, abundant precipitation, adjacent forestlands and urban vegetation factors that would facilitate the dilution and removal of air pollutants. The issues In its report of 2008, the city committee responsible for environmental policy concluded that the existing transport policies of the city were an appropriate response to the impact of the sector on local air pollution. Despite this generally favorable view the very critical NERA assessment of pollution in the city is a cause for serious concern. First, there is a question of the adequacy of the current monitoring arrangements. Despite the monitoring program described above, exposure on street in the busiest and most congested areas can still be severe. Second, the mapping of overall excesses of standards shows a concentration in the old port area, suggesting that the heavy concentration of freight traffic associated with the port area may be a significant contributor. The relatively high levels of sulfur in diesel in the city may contribute to this. 58 P a g e

80 Third, the program of enforcement of emission levels of specific vehicles appears to be relatively lenient both in terms of inspection efficiency and in terms of legal penalties. Fourth, though the quality of motor fuel used in St Petersburg is better than that elsewhere in Russia, it still falls short of best European practice. Sulfur content of diesel is particularly high. Fifth, type approval emission standards for new vehicles still lag those in Western Europe, while the proportion of older vehicles on the road suggests that for actual vehicle fleet is even larger. Relevant International Experience Most very large cities with congested traffic conditions perceive their transport sectors as being significant contributors to air pollution. While the problem is diminishing in the higher income cities, few of which exceed WHO norms for most pollutants, it continues in many lower income cities where vehicles are old and poorly maintained and fuel quality is low. Three factors are necessary to reduce air pollution from motor vehicles clean fuels, good vehicle standards, and good inspection of on-theroad performance of vehicles. On fuel quality, lead in gasoline is still the most damaging factor for health, followed by suspended particulate matter, associated predominantly with diesel fuelled freight vehicles and buses using high sulfur diesel. The level of sulfur in diesel is important both because a high level increases SPM emissions and because high sulfur levels are not compatible with some state of the art emission suppression devices. In practice lead has been eliminated from gasoline in most countries. But high levels of sulfur in diesel continue. Whereas 10 parts per million is the Euro 5 standard, applicable from mid 2009, Russian diesel is still produced at 2000 ppm and even for St Petersburg the lower local limit is still 500 ppm. Euro 4 fuel with 50 ppm sulfur or less is available at some fueling stations serving long distance trucks traveling to the EU. On type approval vehicle emission rates the EU requires all new heavy and light duty diesel vehicles to meet Euro 5 standard, while Russia currently only requires Euro 3 standards, which are roughly twice as polluting. While these standards are progressing rapidly for new vehicles there remain a majority of vehicles only meeting the lower standards. Much emphasis has also been placed on efficient vehicle inspection procedures. In this respect corruption is a worldwide problem. Experience in Mexico City, widely regarded as best practice, shows that to be effective a vehicle inspection and maintenance program needs several ingredients: Separation of vehicle testing from vehicle repair A legal and regulatory framework that allows independent monitoring of the testing stations and sanctions for failure to carry out the testing protocols correctly. Testing protocols designed to minimize the chances of testers giving false passes. An easily monitored certificate for passing the test, sufficient monitors (such as traffic police) to ensure a high probability of catching vehicles without such a certificate, and a fine for lacking a certificate that is high enough to act as an incentive to pass the test. Testing technology capable of preventing temporary tuning that enables a vehicle to pass the test but that cannot be sustained for regular driving. Equally rigorous implementation of protocols and inspection of procedures at all testing centers.. The optimal number of centers relative to the volume of traffic to be tested. 59 P a g e

81 What the international experience suggests is that state of the art levels are still far from being achieved in St Petersburg. The strategy The city is already deploying a wide range of measures to ameliorate the impacts of transport on the environment. In many cases these have been adopted primarily for transport efficiency reasons, but also fortunately have beneficial environmental consequences. International technical standards. Technologies for suppressing vehicle pollutant emissions have improved greatly over the last decade so that aggregate vehicle emissions have remained roughly constant despite very rapid increases in traffic volume. The city government will progressively introduce and enforce internationally recognized environmental standards. Private motor vehicles, which dominate the city traffic already have type requirements of at least Euro 4 standard. It will also explore the impediments to the introduction of international state of the art standards for fuel. Emission inspection and enforcement All vehicles over three years old are tested every six months. Larger buses are recommended to be at least to Euro 2 standard and recent route service tenders specified Euro 3. The city will progressively tighten its regulation of public transport vehicle quality as its new service procurement arrangements develop. Land use measures are an important component of the overall strategy. The expansion of the port will take place largely in new locations at Kronstadt and Branko which are away from the more sensitive areas of the city. Warehouses are being progressively relocated out of the inner city. Development of logistic centers are being planned to locate out of the center, usually close to the ring road. Industrial activity is also increasingly located in outer areas which are less sensitive to the environmental impacts. Infrastructure investment strategies supplement the land use measures. The ring road developments and the first stage of the western expressway keep most heavy freight traffic away from sensitive locations. That policy will be continued. More generally the investments in removing bottlenecks in the road system (Strategy Element A1) will both reduce travel distances and, more importantly, increase average traffic speeds, both of which will reduce the aggregate amount of vehicle emissions. 60 P a g e

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