A Decision Maker s Guide. A wealth of experience, simplified choices. Capital Regions Integrating Collective Transport For Increased Energy Efficiency

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1 Capital Regions Integrating Collective Transport For Increased Energy Efficiency A Decision Maker s Guide A wealth of experience, simplified choices

2 Table of contents Legal notice p. 2 Legal notice This CAPRICE Project Good Practice Guide is the result of a joint effort provided by all the project partners. The information contained in this guide is subject to a disclaimer and a copyright notice. Disclaimer CAPRICE Projects partners have issued this guide to enhance public access to information about public transport issues in metropolitan areas in general. However, CAPRICE Project partners accept no responsibility or liability whatsoever with regard to the information in this guide. The information in this guide is: provided as an indication; not contractual; not intended to address the specific circumstances of any particular individual or entity; not necessarily comprehensive, complete, accurate or up to date; neither professional or legal advice (should you require specific advice, you should always consult a suitably qualified professional). This disclaimer is not intended to limit the liability of CAPRICE Project partners in contravention of any requirements laid down in applicable national law nor to exclude its liability for matters which may not be excluded under that law. Copyright notice CAPRICE Project Reproduction is authorised, provided the source is acknowledged, save where otherwise stated. Where prior permission must be obtained for the reproduction or use of textual and multimedia information (text, abstracts, graphics and charts, images and visuals, etc.), such permission shall cancel the above-mentioned general permission and shall clearly indicate any restrictions on use. Photo credits and captions All visuals, graphics, photos and pictures illustrating this guide are property of CAPRICE Project partners, private transport operators or private individuals: VBB Verkehrsverbund Berlin-Brandenburg GmbH (Germany) STIF Syndicat des Transports d Île-de-France (France) MESP Municipal Enterprise Susisiekimo Paslaugos (Lithuania) ZTM Warsaw Zarząd Transportu Miejskiego w Warszawie (Poland) PMB Primăria Municipiului București (Romania) RATP Régie Autonome des Transports Parisiens (France) SNCF Société Nationale des Chemins de Fer (France) DB Deutsche Bahn (Germany) RATB Regia Autonomă de Transport Bucureşti (Romania) METROREX Metroul Bucureşti (Romania) OPTILE Organisation Professionnelle des Transports d Île-de-France (France) SVF Stadtverkehrsgesellschaft mbh Frankfurt (Oder) Chap Chap Chap Chap Table of contents p. 1 Preface p. 4/5 2 Introduction The scope of the CAPRICE project s best practices and recommendations p. 6/7 p. 8/9.1 Strengthening integrated public transport management authorities p. 10/11.2 Sustainable financing of public transport p. 12/1. Contracting and tendering of public transport services p. 14/15.4 Steps to energy efficient green mobility p. 16/17.5 Mobility plans and traffic management p. 18/19.6 Integrated passenger information p. 20/21.7 Integrated tickets for metropolitan regions p. 22/2.8 Accessibility for passengers with reduced mobility p. 24/27 4 Presentation of the project partners p VBB Verkehrsverbund Berlin-Brandenburg GmbH (Germany) p STIF Syndicat des Transports d Ile-de-France (France) p MESP Municipal Enterprise Susisiekimo Paslaugos (Lithuania) p ZTM Warsaw Zarząd Transportu Miejskiego w Warszawie (Poland) p PMB Bucharest - Primăria Municipiului Bucureşti (Romania) p. Contacts p. 4 Notes p. 5 2

3 1 Preface CAPRICE: A SUCCESSFUL PROJECT FOR WINNING TRANSPORT SYSTEMS We are pleased to introduce the Good Practice Guide as result of the work done during CAPRICE, a European interregional cooperation project, which was co-financed by INTERREG IVC and was aimed at promoting integrated public transport systems leading to improved energy usage. By reading this guide, you will find the results of two years of meaningful and constructive exchanges between the authorities responsible for public transport systems in five large European metropolitan areas. Thanks to the seven workshops held in 2009 and 2010, we were able to share our experiences and identify best practices which can be transferred in order to improve the efficiency of our public transport systems and take up the urban mobility challenge. These best practices are meant to be practical, effective and easy to implement. Their aim is to promote an integrated and intelligent transport system in order to make mobility in urban and suburban areas more sustainable, safer, accessible to all, less polluting, and more health-friendly. They are fully consistent with the urban mobility action plan presented by the European Commission on September 0, 2009 and backed by the Council of the European Union. CAPRICE has enabled us to mutually enrich and strengthen one another. The project demonstrates all the benefits of promoting exchanges at the European level which provide excellent guidelines for developing a sustainable mobility policy. These exchanges have strengthened our conviction that the existence of strong authorities, which are responsible for public transport systems in European metropolitan areas, is essential. These authorities are better qualified to implement integrated and high-performance transport systems which focus on their users and respond to their needs. At a time when the new Transport White Paper is set to factor in targets and policies for more efficient and sustainable urban mobility, in accordance with the principle of subsidiarity, this guide provides an opportunity to confirm the full importance for European urban public transport system authorities of exchanging and sharing experiences in order to meet those targets. We believe that the proposals and recommendations included in this guide are an excellent illustration of this process. Ion DEDU Executive Director Transports, Roads and Traffic Planning Department of Bucharest Municipality (PMB) Gintas BLIUVAS Director of ME Susisiekimo paslaugos Sophie MOUGARD General Director of STIF Hans-Werner FRANZ CEO of Verkehrsverbund Berlin-Brandenburg GmbH Lead partner of CAPRICE Leszek RUTA Director of ZTM Warsaw Deputy Manager PMB CAPRICE 4 5

4 2 Taking up the urban mobility challenge Introduction: Sustainable solutions for urban mobility Over 70% of the population in the European Union lives in urban areas. Cities need efficient transport systems in order to promote economic development, reduce pollution, and improve their citizens quality of life. Climate change and the energy crisis are shaking up old habits. We are entering a new period in our history, the sustainable transport period. How should we organise urban mobility while reducing pollution, limiting traffic congestion, and rationing our energy consumption? Metropolitan transport authorities must not only take up the challenge of making significant improvements to existing services, but also that of anticipating increasing mobility requirements in the future where public transport will be an essential factor. These authorities therefore need to put forward solutions to make public transport systems more attractive, to improve their quality, and to develop new services. They will need to promote international exchanges to improve the way in which they share experiences, and the European Commission will need to take firm action in order to contribute towards improving public transport systems in metropolitan areas. In fact, it was within this political framework and in view of the major challenges related to urban mobility that the CAPRICE project (Capital Regions Integrating Collective transport for increased energy Efficiency) was initiated and developed. The CAPRICE project, which is co-financed by INTERREG IVC, was approved by the European Union in September It is an inter-regional cooperation project that has enabled the public transport authorities in five major urban areas (VBB/Berlin Brandenburg, Primăria Municipiului București/Bucharest, MESP/Vilnius, ZTM/Warsaw, and STIF/Paris Ile-de-France) to work together and exchange best practices. Both through its approach and targets, CAPRICE is fully in line with the European Union s aims to make mobility in urban and metropolitan areas more sustainable, safer, more integrated, accessible to all, and more health-friendly. The proposals and recommendations put forward by CAPRICE are fully consistent with the urban mobility action plan presented by the European Commission on September 0, They contribute towards improving existing transport systems in an efficient way, as well as towards improving the way we think about and design tomorrow s systems. CAPRICE: A partnership for putting forward effective solutions The five CAPRICE partners met during seven workshops held in 2009 and 2010 and dedicated to exchanging experiences. Each workshop highlighted a specific topic relating to one of the major issues for urban mobility: organisation and financing, contracting and tendering, implementation of clean vehicle fleets in public transport systems, integrated passenger information, tariff integration and revenue sharing, urban mobility plans and making public transport more accessible for mobility-impaired people. During the workshops, every partner presented the problems to solve, the solutions that they had found, the improvement paths and the financial means required. The partners put forward proposals for establishing best practices and recommendations based on their work. The aim was also to develop common strategies and to suggest instruments that enable integrated and sustainable management of public transport systems in metropolitan areas based on those best practices. These exchanges of experience were accompanied by a transfer of knowledge enabling the practical implementation of the best practices that had been identified. For instance, Berlin and Warsaw worked on launching a common passenger information website on the Internet. Paris and Berlin held specific meetings on the issue of passenger information. Finally, a working meeting was held with all the partners, in order to help draft the agreement between the Municipality of Bucharest and the operator responsible for running the bus network. In total, 0 good practices were identified during the CAPRICE project. The partners chose the best practices, which answer major questions by suggesting effective solutions for developing more integrated public transport systems that enable genuine sustainable mobility. These good practices are assembled in this guide, which aims to both make a contribution to the European Commission s urban mobility action plan and to be a genuine tool for the decision-makers in charge of public transport systems. The CAPRICE partners will remain involved in order to enable the proper dissemination of these practices and to promote their application in major metropolitan areas. 6 7

5 >> CAPRICE good practices and recommendations shall help decision makers to enhance public transport in metropolitan regions. The scope of the caprice project s best practices and recommendations The best practices identified within the seven areas that the CAPRICE partners chose to feature in the guide have already been implemented in large European urban areas. They are meant to be practical and effective. They should enable the application of measures that match the major priorities identified in the urban mobility action plan proposed by the European Commission on September 0, One of the aims of the CAPRICE project is therefore to promote an integrated policy that enables better services to be provided to the public. In order to achieve this aim, CAPRICE recommends setting up strong regional authorities to manage public transport services, just like the STIF for Paris and the Ile-de-France region, or VBB for Berlin and the Brandenburg region. This is an essential and strategic point. The implementation of urban mobility plans is essential for achieving an integrated transport policy promoting those modes of transport that create the least pollution. These modes not only involve all means of public transport, but also all other modes of transport, such as cars, bicycles, walking and the transport of goods. The European Commission and the European Parliament have emphasised their strategic importance. Focussing on the citizen is another major priority for urban mobility. This is a topic on which the CAPRICE project has carried out a significant amount of work. Three best practices specifically concern this issue. The first one relates to the development of an integrated passenger information system which is based on intelligent transport systems (ITS) in order to help its users get around. The second practice relates to public transport service contracts and tenders which provide an opportunity to set targets for the system operators in order to provide users with a higher quality of service at a lower cost. Eight steps that help public transport authorities to improve public transport. The third practice relates to the accessibility of public transport systems to mobility-impaired people. The recommendations in these three fields are based on experiences and observations that were shared between the five project partners. Another high priority of the CAPRICE project is the development of more environment-friendly urban transport systems. One of the project s recommendations relates to the steps to take in order to achieve more energy-efficient green mobility. These steps involve electric modes of transport that use less energy (trains, trams and trolleybuses) and lower-emission buses. However, it is important to underline that other CAPRICE recommendations, especially urban mobility plans, are also essential in order to achieve this aim. The introduction of an integrated pricing structure for the entire urban and suburban area is another recommendation that will contribute towards assisting and optimising urban mobility specifically by relying on new technologies and ITS-like seamless electronic passes. Finally, increasing the funding is a major concern for all national and European decision-makers. The aim is to improve existing networks and to build new infrastructure in order to meet the whole public s new mobility requirements. The CAPRICE project has also put forward a proposal for the sustainable financing of public transport using the example of France where a tax (known as the transport contribution) has enabled the development of public transport systems to be funded. These best practices can be quickly transferred to other urban and suburban authorities responsible for public transport systems. Applying these practices can bring practical and measurable benefits in terms of promoting sustainable urban mobility in line with the major targets that the European Union has established in this area..1 Strengthening integrated public transport management authorities.2 Sustainable financing of public transport. Contracting and tendering of public transport services.4 Steps to energy efficient green mobility.5 Mobility plans and traffic management.6 Integrated passenger information.7 Integrated tickets for metropolitan regions.8 Accessibility for passengers with reduced mobility 8 9

6 .1 Strengthening public transport authorities is essential to improve the quality of services in metropolitan areas. Strengthening integrated public transport management authorities Public transport in metropolitan areas is understood by the CAPRICE partners to be a public service. An integrated public transport network is fundamental to realise social, economic and environmental aims providing accessibility for everybody and preventing cities from collapsing in traffic jams. Therefore, public transport is of general and overall interest. Transport systems in metropolitan areas are complex systems. Traditional organisational structures did not take this complexity into account. In order to achieve sustainable transport systems for the passenger, integrated services need to be implemented. They include different means of transport in the entire metropolitan area regardless of the operating company. Therefore, in many European metropolises, the authorities in charge of public transport have decided to create new organisations that are responsible for integrating public transport in their metropolitan area. Within the partners of the CAPRICE project, Paris Ile-de-France and Berlin- Brandenburg have fully developed public transport management authorities. The benefits of these co-operations lie in a better public transport service for the passenger and in an increase in efficiency for the taxpayer. Thanks to co-ordinated planning, tendering and contracting of public transport services, more and better services can be provided. Harmonised public transport tickets, passenger information and marketing campaigns make the access to public transport easier for citizens. Revenue sharing systems allow different operators to co-operate and to share revenues from ticket sales. The first integrated public transport management authorities date back to the beginning of the 1970s and the idea quickly became popular. In the member states of the European Union, public transport cooperations have been implemented stepwise since then and are now common in the old member states. The new member states are currently highly interested in implementing comparable structures. In the CAPRICE project, the cities of Vilnius, Warsaw, and Bucharest displayed great interest in learning from the experiences made in Berlin and Paris concerning the implementation of integrated public transport systems. One key output of the CAPRICE project was the support of the City of Bucharest in order to prepare a public transport service contract with the surface transport operator (RATB). This represents the first step in setting up a modern public transport management system. Therefore, experts from the other CAPRICE partners gave advice about their experiences in contracting public transport services and Recommendations offered related basic documents in a workshop designated to this issue. As result, the project partner from Bucharest developed a service contract tailored upon the current requirements and which is to be signed between the Bucharest Municipality and the operator. Metropolitan regions usually cover areas which are larger than the capital city s boundaries. Passenger flows are not limited to administrational boundaries. Therefore, public transport in metropolitan areas is a regional responsibility. Public transport organisation and financing should not be limited to the city s boundaries, but should cover the whole region as well as all modes of public transport. Local and regional entities must assume the political and administrative responsibilities for an integrated public transport service. Clear statements and reliable responsibilities on political, administrative, and operational levels as well as efficient decision-making processes are important elements of an effective organisational framework. All means of public transport (regional rail, underground, tram, buses, ferries) in a region should be managed by one integrated authority. This authority should define the framework in which one or more operators can conduct their services. Key tasks like service and infrastructure concepts, overall operational planning, fares, sales, marketing and customer information have to be integrated. The authority should also control the operators performance with regard to the service required as well as economic criteria and passengers expectations. With implementation of the EU Regulation 170/2007, the European Union gave a clear guideline for the organisation and financing of public transport allowing pinpoint strategies for local and regional challenges. This policy should be maintained by the EU

7 .2 a Transportation fare* a Transport tax a Public contributions a Others subsidies a Income from parking fines a Misceallenous Sustainable financing of public transport Public transport needs sufficient funding. In the Paris Ile-de-France region, public passenger transport costs totalled about 7.6 billion in * The user receives a refund from his imployer at least 50% of the fare. In metropolitan areas, public transport costs cannot be covered by ticket fees alone. In order to fulfil its obligations public transport requires sufficient and reliable compensation. A constant and reliable public financing should cover necessary operational costs as well as investments in infrastructure and rolling stock. One good practice for a funding strategy of public transport is the French public transport tax. In the Paris Ile-de-France region, public passenger transport costs totalled about 7.6 billion (cost of operations + investments) in Funding for transport is provided by 0,2% The French public transport tax 1,2% users (through ticketing), companies (through the transport tax) and various public subsidies. The socalled versement transport (transport tax) was created by a French act in 1971 and represents one of the major resources for financing public transport in Ile-de- France. It is also a very important part of the revenue in STIF budget. The transport tax is calculated on wages. Every company that employs more than nine people in Ile de France has to pay the transport tax. In the year of 2009, the refunds were 52.5 million in total. The transport tax is one of the main sources of income for financing public transport in Ile de France, covering around 9% of total public transport cost (cost of operations + investments) in Funding public transport in Ile-de-France in 2009 (e 7,6 bn) The transport tax in Ile-de-France is dedicated to finance regional public transport. It allows the funding of every kind of expense (both cost of operations and investments) as well as the contributions of STIF members. The board of STIF decides every year on the total amount of the public contributions which will be shared between the members according to STIF statutes (51% for the region of Ile de France, 0.8% for the city of Paris and the remaining 18.62% for other counties of Ile de France). In the CAPRICE project, the transport tax was recognised as a good practice for a sustainable financing method of regional public transport for other European public transport authorities. The CAPRICE partners aim to encourage European and national policymakers to follow this good practice and implement sustainable financing procedures for public transport. Recommendations Mapping of various rates per counties Transport tax and public transport cost in Ile-de-France (current e bn) Public transport in metropolitan regions requires sufficient and reliable compensation as the revenues from ticket sales do not cover the costs of operation. A constant and reliable public financing should cover necessary operational costs as well as investments in infrastructure and rolling stock. If social fares are introduced by political decisions (e.g. reductions for students, senior citizens), there has to be a financial compensation for the operator in case of losses. One example for public transport funding is to introduce a transport tax as implemented in France. There, companies in metropolitan areas have to pay a special tax per employee which is designed as supportive financing of public transport. This could serve as an example for other countries, too. Therefore, the CAPRICE project recommends that the EU support the implementation of public transport taxes in the member states. But even here sufficient and reliable funding is crucial as tax income may depend on the economic situation. 12 1

8 ODEG mbh (Arriva+Hamburger Hochbahn); 28%. Contracting and tendering of public transport services Berlin-Brandenburg: More railway services for less money With the liberalisation of the railway market, regional public transport authorities in Germany were allowed to choose the operator. VBB Verkehrsverbund Berlin- Brandenburg GmbH decided to tender all regional railway services until The tendering is being carried out in an open Europeanwide tendering process. VBB awards service contracts for regional railway operations in open tendering processes leading to several benefits: First of all, the price for operation could be reduced through the tendering by up to 0 %. In parallel, the quality of the services could be increased through modern vehicles, better equipment and service-oriented train attendants. Thanks to the contracts, the regional authorities have the possibility to fine the operator in case of delays or other failures. This is a strong incentive for the operator to deliver good service. Market share of regional rail operators in Berlin-Brandenburg PEG (Arriva); % NEB (Captrain, SNCF); 4% DB Regio AG (Deutsche Bahn); 65% In recent years the participants of the CAPRICE project have gained experiences in tendering and contracting passenger transport services. With the help of tendering and contracting, the partners have increased service quality and passenger satisfaction whilst reducing the amount of public subsidies for transport services. Warsaw: An innovative combination of directly awarded contract and tendering Tendering as a form of outsourcing local bus transport services has been developed in Warsaw since the early 1990s. The first idea was to ensure the covering of the growing rolling stock needs in the fast developing Warsaw metropolitan area by involving private initiatives in the public transport services. Private companies were chosen in open, competitive tenders. In the meantime, new, high-quality low floor buses are mandatory for the winner of a tender. And in parallel to the increase of quality and new fleets, the services are pushed to lower costs as a result of the competition. Today, 25 % of Warsaw s bus fleet are the result of a tendering process whilst 75 % of the bus fleet are operated by the municipal operator - which was directly awarded by the city. The combination of directly awarded contract and tendering has several advantages: 1. By only tendering parts of the network step by step the public operator has the opportunity to adapt to the price and service levels of the private operators. 2. Through the tendering procedures the city receives a benchmark for the price of operation in the bus network. It can put pressure on its own operator to reduce the costs of the services.. By using the instrument of tender and competition in public transport, the city can gain experiences step by step. The city and ZTM can progressively adapt their internal procedures for the controlling of the private operators. 4. The competitive tendering can provide a development of the service quality in parallel to the decrease of the costs compared to a monopolistic municipal or private company - if well prepared and managed. Rolling stock is bought by a private company that carries the operational and the leasing risk. The outsourcing of this risk and possible cost elements is an additional benefit. STIF: Contracting as a contribution to a better quality of service for passengers For STIF, the conclusion of contracts between the organising authority and the operators gives rise to negotiation aiming at controlling the costs as well as enhancing the quality of services delivered to passengers. The remuneration framework must be designed with a view : to develop cost efficiency; to set service quality objectives including a bonus-penalty contract (bonus when the objective is achieved and penalty when it is not) makes it possible to offer a better service to passengers and to better take their expectations into account. A cost efficiency based system is a key element of the strategy aimed at modernizing the public transport system in a general context of public finance management. A service contract with a bonuspenalty-system allows the organising authority to hold a strong contract with the operators which are encouraged to improve public transport service quality. Passengers then benefit from improved offers and services (better regularity, better welcome, better information, better accessibility to the networks etc.). The service quality objectives may be enhanced over the years and adapted according to the passenger s expectations. This incentive bonus-penalty-system may be implemented whatever the contracts to be concluded between Recommendations transport authorities and operators within the framework of the European Public Service Obligation (PSO) Regulation 170/2007. This is currently an essential practice as the European Union expects to strengthened passenger rights. Indeed, a contract equipped with a bonus-penalty-system and setting ambitious objectives for operators is the best way to guarantee passengers a quality of service in urban transport within major European metropolitan areas. A cost efficiency remuneration framework complies with and is promoted by PSO Regulation. By implementing the European Regulation 170/2007, the European Union sets the legal framework for tendering and contracting procedures in public transport. Competitive tendering and contracting has been proven to be an efficient instrument for increasing the quality of public transport services and passenger satisfaction while reducing the amount of public subsidies needed. It needs a strong public institution that prepares the tenders, defines the level of service the passenger aims at, carries out the tendering procedure, and controls the contracts. This is especially the case in metropolitan regions with a long tradition of strong public operators. Public transport authorities and associations need to be strengthened and equipped with sufficient personnel and funds and with well defined tasks and responsibilities. Cities also have the possibility to directly award contracts to their own public operator, for example, for contracts of a short period of time. Even if contracts are directly awarded, the CAPRICE project recommends implementing complex quality control systems in the contracts in order to put pressure on the operators to deliver a high quality service for the passengers. If service quality is low, the operator should be forced to pay penalties as an incentive for better quality. This needs a clear definition of authorities and operators tasks. The authorities should define the service quality expected by the passengers; the operator should be responsible for the operational tasks on which the operator has influence. In order to be effective, service contracts should run over longer periods as the operator needs the opportunity to amortise his investments. This means that the public transport authorities need reliable political decisions and funding to conclude service contracts with the operators

9 .4 Steps to energy efficient green mobility All capital regions in Europe suffer from the negative impact of private mobility in terms of congestion, air pollution, and noise emissions. Public transport is the key element for sustainable mobility in capital regions. Therefore, strategies to cut the negative impact of mobility have to provide a key role for public transport and the amount of cars in urban areas needs to be reduced. As public transport bundles the transport demand in one vehicle, it has a strong environmental advantage compared to the private car. Nevertheless, the car industry is working on greening private mobility. The public transport industry has to be aware of this development and should make sure to maintain the environmental advantage by supporting the development of green vehicles for buses, trams, metros, and railways. First steps were taken also in the Central and Eastern European Countries where bus fleets were renewed with regard to the EURO-Norms. High efficiency thanks to electric traction The public transport sector has years of experience with electrically powered vehicles in railway, metro, tram, and trolley bus systems. Many Western European countries have, however, replaced their tram and trolley bus systems by diesel buses. Trams and trolley buses were no longer perceived as state of the art and their image suffered. Due to the high efficiency of the engines, these systems have the potential to be the most environmentally friendly ones, if the electric power is produced by green energies. Especially on lines with high loading factors, electric systems should be introduced. Good examples for this approach can be seen in Switzerland and France where modern tram and trolley bus systems have been implemented in recent years. Changing mobility habits Greening mobility cannot be achieved by technological approaches alone; mobility habits have to be tackled as well. In order to sensitize the citizens for the negative impact of car transport, the city of Vilnius celebrated the European mobility week with the campaign In Town Without My Car. The idea was to show that each person shares responsibility for the global environment ; everyone can contribute to maintain a healthier local city and a healthier global planet. During the campaign, public attention was drawn to the negative impact of transport on the environment and human health. Local residents were encouraged to contribute personally to the preservation of clean environments by choosing less polluting modes such as public transport, bicycles, and travel by foot. Electric vehicles can be implemented on nearly all lines with a high passenger count. In Eastern Europe, many cities still have trolley and tram systems needing re-investments. Those systems should be modernised. But electric vehicles can only be called an environmentally friendly solution if the electric power is produced from renewable energies such as solar, wind, or hydro-energy. Hydrogen vehicles The availability of traditional fuels such as diesel will be limited in the future. Due to the limitations, the world market prices for diesel and gas will increase. Therefore, it is important for the public transport industry to find alternatives. The cities of Hamburg and Berlin are currently testing hydrogen as a new source of energy for public transport. Whereas the approach in Hamburg, which uses hydrogen fuel cells, is promising and has the potential to be a best practice, the experiences in Berlin with hydrogen in traditional engines have not been successful to date. Recommendations By using hydrogen it is possible to store electric energy. Thus, energy can be produced when it is easy available, which is especially interesting in the case of wind energy. Hydrogen is emission free for the vehicle (except for water). The fuel cell burns the hydrogen more efficiently than traditional engines. The combination of both could be a solution for powering buses in the future. Currently, hydrogen buses cost around three times as much as traditional buses and are, thus, not competitive. At the current stage, a conversion can not be recommended. Nevertheless, the CAPRICE project recommends following the project closely as the technology has a great potential for greening public transport in future. In the long run, fuel prices will increase as diesel and gas are limited resources. Cities and regions should be open for testing and implementing new powering systems for public transport in order to be prepared for introducing alternative energies. Investments in new vehicles should take fuel consumption into account. Higher investment prices can be quickly offset by lower consumption - with added benefits for the environment. Capital regions should start to develop long-term strategies on how to organise transport without fossil fuels. Increasing oil prices as in 2008 will lead to more passengers in public transport as more and more people will not be able to afford the fuel prices for daily usage. Public transport must be prepared to play a stronger role in capital regions than today. Regions must obtain the right to restrict the usage of cars in urban areas and to introduce road pricing systems. The European Union should clearly state that restrictive measures for greening mobility do not have a negative impact on the European single market and are supported by the European Union. During the campaign the different space required by public transport The European Union should extend the funding of research and implementation of alternative energies and private cars was visualised on for public transport. Projects which are focussed on green energy (like research on hydrogen buses the main street of Vilnius. By means in Hamburg) need constant funding, since new energies are not yet competitive with traditional fuels. of different games the usage of public This should be taken into account for the preparation of the next funding period. transport was promoted. Especially for Central and Eastern European The European Union should develop a policy for greening taxes and fees in the transport sector. countries, where public transport still Today, in most countries, green modes of transport are subject to the highest tax rates and fees for using faces severe image problems, such the infrastructure while the competitors (automobiles or air traffic) pay less. On the contrary, a sustainable campaigns are a good possibility for pricing system would charge depending on the negative impact on the environment. showing how public transport can contribute to better and greener 16 mobility. 17

10 .5 Mobility plans and traffic management The Urban Mobility Plan in Ile-de-France The Urban Mobility Plan in Ile-de- France ( Plan de déplacements urbains d Ile-de-France PDUIF in French) is an Urban Mobility Plan for the Ile-de-France region as a whole (compact and urban zone as well as rural areas). Public transport, all modes of transport and mobility (private cars, cycling, walking) as well as transport of goods are concerned by the PDUIF. The first PDUIF was set up in The aim of the plan was to create all the conditions necessary for a better and more appropriate co-ordination of public action regarding transport and mobility. For the first time, the plan set up objectives to reduce the use of cars. Within this framework - and in order to achieve these goals - the PDUIF has been promoting the development and the use of public transport whose role is essential. All project partners in the CAPRICE project regularly set up urban or regional mobility plans as short and long-term planning documents. Warsaw and Berlin set up urban mobility plans for short-term development of the transport system of 5 years and for around 15 to 20 years for the long-term development of services and infrastructure. This solution is completely in line with the Gothenburg Strategy set up by the European Council in June Since 2004, French law has entitled STIF to evaluate and revise the PDUIF on behalf of the regional council. The revision of the PDUIF has been ongoing since The aim of the new PDUIF is to reconcile a sustainable balance between mobility needs and environment and health protection. This plan aims at decreasing the share of polluting transport and at supporting less polluting and more energy efficient modes of transport globally and in a coordinated manner (with all mobility stakeholders including the users of public transport and the citizens). On the one hand, the PDUIF has to be consistent with the objectives of air quality improvement planned in Ile-de-France (Regional Air Quality Plan). On the other hand, the PDUIF was also consistent with the objectives of the regional outline development plan ( Schéma directeur de la Région Ile-de-France ). The project for the new PDUIF was set up with a very broad consultation of stakeholders and public at large via Internet as well as via traditional consultation processes. The consultation process lasted nearly one year and its aim was to ensure a good acceptance of the document. Thanks to its method (as an approach involving all mobility stakeholders) and its objectives (including promoting the less polluting, more energy efficient modes of transport) the PDUIF is a good practice. The PDUIF also combats congestion and supports mobility for all in large built-up areas. By defining quantitative target figures for the reduction of the use of cars and the development of public transport and cycling, the success of measures shall be monitored. The strategy for the development of the Warsaw transport system The transport strategy in Warsaw follows a comparable approach. Set up in 2009, it is a short - and mid-term planning document until 2015 and beyond. Important targets lie in the modernisation of the transport network and the development of a network hierarchy with frequent core lines and feeder lines leading quickly from residential areas to interchange points. The strategy defines the following 8 core objectives: Establishment of a common metropolitan transport authority Modernization and development of the tram network Further development of the metro system Improvement of the railway transport Integration of different transport modes Development of the city and suburban bus transport Modernization of the tram and bus rolling stock Rationalization of the route network. Traffic management and sustainable mobility In all European capitals, measures are being taken to reduce congestion and to speed up public transport. In many cities, the average speed of buses is too low in order to compete with the car. In Berlin, for instance, the average speed has even decreased in recent years. Therefore, measures are being taken to manage traffic more efficiently. The cities of Bucharest and Vilnius recently introduced modern traffic control systems. All cities involved in the CAPRICE project have introduced dedicated lanes for public transport in the last few years. In Bucharest, for instance, the tram line no. 21 was prioritised, reducing the travel times significantly. In Berlin, the traffic management centre informs operators and customers about the traffic situation in Berlin and - together with the traffic control centre - takes action to keep the traffic flowing. Recommendations Every authority in charge of public transport in large European metropolitan areas should develop planning documents for the entire urban area for both the short-term (5 years) and long-term (15-20 years). These documents shall be approved by the local / regional councils. Such a proposal is being discussed within the framework of the preparation of the forthcoming European White Paper about transport and should be considered as a strong recommendation in favour of a sustainable urban mobility within the European Union s urban areas. In order to reduce pollution and with regard to the negative impact of individual mobility, capital regions have to make their transport systems sustainable. An important step towards this is making public transport more attractive while restricting the use of cars. Public transport should have priority at intersections and should run on dedicated lanes. The average speed of public transport has to be competitive with that of the car. Traffic management should prioritise speeding up public transport before taking into account the needs of cars. Public transport systems in capital regions have to be 24-hour services which are available for the customers at any time of the day and at every place in the city. As financial sources are limited, funding should be taken from congestion charges and road pricing systems of private mobility as public transport systems are a key factor for a functioning metropolis. The integration of public transport services and the use of bicycles is an important measure to make mobility more sustainable. Therefore public bicycles for short distance trips have been installed in Paris and Berlin. In Vilnius they are foreseen for To guarantee a minimum mobility in suburban and rural areas of Brandenburg, VBB together with local authorities and operators, has implemented demand-responsive public transport services. Where loading figures are too low in order to fill a bus, a system between traditional bus and taxi was installed. Passengers have to call the service in advance and travel from one bus stop to another within a service area. In contrast to the traditional taxi, the dispatcher of the services can combine the requests of different passengers to achieve a higher loading factor for the taxi

11 Integrated passenger information The Internet based VBB-travel planner and its transfer to ZTM Warsaw New technologies can help to guide customers through complex public transport networks. Public transport networks in capital regions are complex systems. Passengers need guidance through these systems in order to get from one point to another. This is especially crucial for new customers who are not familiar with the network. Integrated passenger information is therefore an essential element of public transport in capital and metropolitan regions. Integrated passenger information means that passenger information is common for the whole network regardless of the operator and the mode of transport. Passengers want to get easily from one point to another and usually are not interested in which company is currently carrying them. Passenger information itself is a complex system. Different customers prefer different information sources. Therefore, passenger information should be provided at agencies and service points, via telephone, via the Internet (for computer as well as mobile devices) and at stops and stations. The integration of real time information allows passengers to be more flexible on their trips and to better react to delays and /or disturbances in the network. Integrated passenger information needs steering from the authority. The authorities must at least define an operator independent framework and minimum requirements of integrated passenger information for the operator. The authorities therefore have to be equipped with sufficient financial and human resources to define these requirements and to take a proactive role in passenger information. The requirements for passenger information should become part of the contracts between the authority and the operator. They should contain the timetable data, real time information, information on customer services and ticketing. The VBB travel planner, VBB- Fahrinfo, is an Internet-based public transport routing system which can be used via computer and mobile phone. It calculates the routes between two points in the Berlin- Brandenburg region. These points can be stops or stations as well as addresses or points of interests. The travel planner covers the entire Berlin-Brandenburg area with its currently 41 transport operators and is available for free on the Internet and on mobile devices. It offers to the customer a choice of special modes of transport or to select only barrier-free modes of public transport. The travel planner is being updated continuously and being provided with real time data. Therefore, the travel information service is able to inform about delays and re-calculates the routes in case of loss of connections. The price information given is based on VBB s fare system. Due to the networks DELFI and EU-Spirit, VBB s travel planner not only covers the Berlin-Brandenburg area, but is also connected with all of Germany and selected European regions. An extension to a European-wide system is planned. Recommendations One key output of the CAPRICE project is the establishment and implementation of a travel planner system for the Warsaw metropolitan region based on the exchange of experiences about the VBB travel planner with ZTM Warsaw. After implementation, it will be tested for one year and run by ZTM Warsaw. After the testing phase ZTM Warsaw will then decide if the travel planner will become a permanent customer service in Warsaw. Integrated passenger information systems require the full participation of all transport operators and all modes of transport. While authorities understand passenger information more and more as one of their key tasks on regional level, information is mostly driven by national railway companies on national level. Therefore, co-operation is often difficult and subject to different interests. European policies should therefore set the framework for an open, efficient and customer-oriented cooperation between the different players and free information market to the customer s satisfaction. Integrated passenger information is a cost-intensive task due to the large amount of money which is needed for implementing data management and exchange systems. To assure that existing data sources and /or information systems from different suppliers can interact or can be connected, European policy should further support the standardisation of data models, exchange formats and interfaces to allow customer-oriented cost efficient services to ensure an open market. International cross-border information is one key element of European integration. The European Union is asked to further support the interconnection of existing and future public transport information systems (which was started based on the EU-Spirit project a R&D project within the European Union 5th Framework Programme on Research and Technical Development). The key idea of EU-Spirit is to connect existing regional, national and international Internet based travel planners to a European network allowing passengers to prepare their connections by public transport from one point in the European Union to another. Since the project closed in 2001, the services have been maintained and developed through the participating service providers

12 .7 One ticket for all transport in one region is the key idea behind integrated transport systems. Integrated tickets for metropolitan regions Metropolitan areas more and more frequently offer integrated ticketing systems allowing passengers to travel from one point of the area to another with one ticket, no matter which means of public transport the customers use. Among the partners of the CAPRICE project, STIF and VBB provide fully developed regional ticketing systems which integrate all modes of public transport. Additionally, ZTM is in an advanced phase of implementing such a system step-by-step and in Bucharest these systems are currently under implementation. In Paris Ile-de-France and Berlin- Brandenburg regions, passengers from rural suburbs can buy one ticket covering the local bus to the railway station, the train ride to the metropolitan centre and the metro from the railway station to the final destination of the trip. This makes trips easier and cheaper since not every segment of the journey is priced separately. The passengers only have to understand one rate system and buy one ticket for their entire journey. Usually more than one operator is active in metropolitan areas and integrated ticketing systems need a revenue sharing system in order to ensure that all the operators involved in the transport chain get their share of the ticket revenues. Contactless electronic ticketing in Warsaw More and more European cities and metropolitan areas are implementing contactless electronic ticketing systems in public transport. Among the CAPRICE project, all project partners - except for VBB Verkehrsverbund Berlin- Brandenburg - have implemented electronic ticketing at least for some tickets and VBB is also working on such a solution, which shall be part of an integrated Germany-wide solution. Contactless electronic tickets have several advantages for the customers as well as for the operators. The customer does not have to buy a new ticket regularly. Tickets or subscriptions can be loaded directly onto the card. In case of loss of the ticket, the customer has the possibility to block the further use of the ticket and is able to get a new card without financial losses. In the long term, several regions are also thinking about a bestprice pricing strategy. Then, the customer will not have to think about the ticketing system at all, but simply checks in and checks out for each ride and the system calculates the best price for the customer. The customer can either load a bonus on his ticket which can be used up from trip to trip or is charged on a monthly basis after having taken his trips. There are also big advantages for operation: The costs for ticket sales can be reduced as the card itself can be used for several years. The use of the cards can be blocked in case of malpractice. Due to the background system, tickets cannot be copied as easily as traditional paper tickets. Due to the contactless technology, tickets can be controlled faster, which is a benefit for the operator of the system as well as for the customer. Last but not least, authorities and operators receive data about the travelling habits of the passengers and, therefore, can adjust services to the needs of the passengers more easily. Recommendations In 2001 Warsaw introduced the Warsaw City Card, a contactless smart card for public transport covering the entire city area. Today, the smart card is used for all types of tickets except for single tickets which are electronic as well and equipped with a magnetic stripe. The experiences with the Warsaw City Card are very positive. Passengers enjoy the easy handling of the card, and the authority benefits from easier control and sales procedures. Public transport authorities have to be enabled to set up complex rate systems for their areas which do not end at the administrative boundaries of the city but which include the surrounding commuting areas. Public transport authorities have to be further enabled to set up background systems for the sharing of the revenues among all operators involved. This has to be specified in the service contracts between the operators and the authorities. In some countries, regional railway services are not integrated into metropolitan ticketing systems due to the fact that the railways are operated by the national railway company or by private companies on which the metropolitan authority does have no influence. Therefore, the national regulator should assure that the railway company integrates fares with local public transport. In the long run, this is profitable for both sides as new passengers can be motivated to use local public transport and railway services due to integrated fares. Contactless electronic ticketing systems have strong advantages for passengers and operators. Therefore, the introduction of electronic ticketing in metropolitan areas should be supported on the regional, national, and European levels. Setting standards on the national or even the European level allows passengers to use the same system in different cities. This reduces constraints in the use of public transport systems in other cities. 22 2

13 .8 Public transport shall be made accessible for all user groups. Accessibility for passengers with reduced mobility Public transport systems in metropolitan areas often date back to the beginning of the last century when large metro systems were set up in order to cope with the increasing demand for mobility. At that time nobody took into account the special needs of passengers with reduced mobility. Making these networks accessible for everyone is a major target for public transport authorities. As these networks were not laid out for these special needs, the transformation is complicated and very expensive. Nevertheless, great steps have been made in the last few years to make public transport systems more accessible. Some examples from the Paris Ile-de-France region and Berlin-Brandenburg are highlighted in this guide to give an idea about possible measures to make public transport more accessible for everyone. In the Central and Eastern European countries great efforts are currently being made in this field, too. Especially thanks to the renewal of the public transport fleets which is occurring at a rapid pace. Indeed, the vehicles that are being purchased are barrier free and meet the needs of passengers with reduced mobility. Paris Ile-de-France: Step by step to full accessibility For regions such as Paris Ile-de- France with a hundred-year-old transport infrastructure, the planning, implementation and follow-up of the works concerned is very complex, all the more so as accessibility involves coordinating the activities of more than one hundred transport operators and institutions. Dialogue with all stakeholders is essential. Apart from the recently commissioned tram network (100% accessible), the accessibility of the whole system is relatively poor: only 10% of bus services, 20% of train stations and % of metro stations are currently accessible to all. With this as the baseline, the STIF decided to discuss possible solutions and priorities with all the stakeholders: associations representing persons with reduced mobility (the elderly as well as the disabled), the local authorities served by the transport services, and the operators themselves. This approach enables the identification of all the needs, establishes a consensus on the content of investment programmes and on priorities, putting in place quality control measures based on the experience of users. Prioritising the most effective investments is another important point. Where the road and rail networks are concerned, priority was given to lines/routes, stations and bus-stops which are the most frequently used, assuring good regional coverage (at least one accessible station every 20 km, in the case of rail transport) and service to places of special interest to persons with reduced mobility (homes for the disabled, supported employment centres, hospitals ). Where the metro is concerned, because of the many technical difficulties, priority has been to make 60 bus routes more accessible, thus offering a substitute surface-transport network. Investment and services must be combined in order to achieve the objective of accessibility as quickly as possible. The objective set by disabled persons associations is to provide facilities that will enable their members to access transport services without assistance. This can only be achieved by renewing infrastructure and replacing existing rolling stock, the life-span of which is around 40 years. To make transport networks accessible more quickly, the STIF decided to provide a service for departing and arriving passengers, at stations where platforms are accessible from the roadway, by deploying a manual ramp between the platform and train to enable wheelchair-users to get on and off. The provision of dedicated information channels is another requirement. A special information service (special in form and content) needs to be provided for persons with reduced mobility. In the Paris Ile-de- France region, it was decided to make a distinction between persons with disabilities and others with reduced mobility and to offer them specific services free of charge. These services are delivered via Internet, telephone and , as well as in printed format. The decision was dictated by the ergonomics of the information offered, the desire to provide services free of charge as well as the concern for training staff in providing information to persons with disabilities. Training of personnel is necessary to assist persons with disabilities. All staff in contact with passengers needs to be made aware of the special needs of people with disabilities so that they can assist them intelligently. Specific training needs to be given to station reception staff, bus drivers and those providing special information services

14 .8 Accessibility for passengers with reduced mobility (continued) Special passenger information and other measures in Berlin-Brandenburg VBB barrier free travel planner: The VBB is currently extending its travel planner (see chapter.6) with a tool for passengers with reduced mobility. This allows special requests for mobility impaired passengers. Passengers in wheelchairs, for example, only will receive connections with bus lines and via stations that are barrier free accessible. The tool also reflects the additional ways passengers in wheelchairs have to take to the elevators and the longer time needed for transfers between different lines at interchange points. It is also foreseen to implement devices for visually impaired passengers so that they can be guided via an MP player through the network. Berlin elevator programme: The metro and S-Bahn networks in Berlin date back to the beginning of the last century. The transformation of the network is very costly as stations have to be rebuilt in order to fit them with elevators. Therefore, in 1992 the city of Berlin set up a programme to fit old metro and S-Bahn stations with elevators and guidance for the visually impaired. Today, 81 of 17 metro stations are equipped with ramps or elevators, 100 with guidance for the visually impaired and 80 % of the S-Bahn stations are equipped for passengers with reduced mobility. Boarding assistance: In Berlin a very simple but effective system was set up to assist mobility impaired passengers boarding the trains. All metro and S-Bahn stations are equipped with ramps to help persons in wheelchairs to board the train. The ramps are installed at each station; at the front of the station near the driver s cabin. Passengers in wheelchairs are asked to position themselves at the beginning of the platform and the driver can jump out of the train and provide assistance. This system has proven to be much more efficient than technical devices that often suffered from malfunctioning. Recommendations Up to 40 % of passengers are confronted regularly or from time to time with mobility impairments. Therefore, all metropolitan regions should take drastic measures to transform their public transport systems to make them more accessible for mobility impaired passengers. Especially in old metro systems this transformation process is extremely expensive; therefore, measures should follow priorities to reach as many passengers as possible. Metropolitan areas should set up a strategy with quantitative aims for making public transport systems more accessible and should dedicate funds for infrastructure measures in the field of accessibility. The most effective investments in road and rail networks have to be prioritised based upon the passengers, the good regional coverage, the places of special interest for the impaired persons being served. Passengers with reduced mobility need reliability along the entire transport chain. One missing link like a non-functioning elevator or a crossroad which can only be passed by stairs can make trips totally impossible. Therefore, user-groups with different impairments should be involved in the planning processes and surveys should be carried out from time to time to discover their special needs. The dialogue with all stakeholders is essential to identify needs, establish a consensus on the content of investment programmes and on priorities and to implement quality control measures based on the experience of users. In the long run, public transport systems should be accessible for all user groups without assistance. Nevertheless, staff should be available to assist passengers in case of disturbances or disruptions. Specific training for personnel working in stations, bus and information services are necessary to understand and be aware of the specific needs of impaired passengers and assist them satisfactorily. The regulations for passengers with reduced mobility should be harmonised in one region regardless of the operator. The layout of signs, the colours of guidelines, the announcements of stops and stations should follow a common approach in the entire area. The provision of dedicated information channels (both form and content) is another requirement that cannot be ignored for a successful accessibility scheme. Passenger information systems should reflect the different usage habits of different passenger groups. The times needed for changing between different vehicles can be much longer for passengers with reduced mobility than for commuters who know their way. Through European Legislation like the Directive 2001/85 (buses) or Regulation 171/2007 (railways), the European Union has established harmonised standards for the accessibility of public transport for passengers with reduced mobility. These standards serve as an important basis for the development of public transport systems in Europe and therefore the European Union should assure that these regulations are respected and developed further

15 4 CAPRICE project partners 4.1 Germany (Berlin) VBB: Verkehrsverbund Berlin-Brandenburg GmbH (organising authority) CAPRICE consists of 5 partners, among which there is one Lead Partner VBB Verkehrsverbund Berlin-Brandenburg GmbH (Germany) is assisted by the expert firm Infrastruktur & Umwelt and 4 project partners : STIF Syndicat des Transports d Ile-de-France (France), ZTM Warsaw - Zarząd Transportu Miejskiego w Warszawie (Poland), MESP - Municipal Enterprise Susisiekimo Paslaugos (Lithuania) and PMB - Primăria Municipiului București (Romania). Each one of them has a project manager and a financial manager. Thanks to a series of thematically focussed workshops, all partners exchange their experience on the different transport and mobility issues and come to identify best practices and develop recommenda tions which have been collected in the present guide. Paris Berlin Warsaw Vilnius Varsovie Bucharest Officially founded on December 0, 1996, the VBB Verkehrsverbund Berlin-Brandenburg is the public transport authority covering the German capital Berlin and the surrounding federal state of Brandenburg with its municipal districts and cities which are responsible for public transport. VBB stands for a customer-friendly integrated public transport service that handles the requirements of a metropolitan area like Berlin and meets the interests of the rural communities in the countryside of Brandenburg. Therefore, VBB is the coordinator, moderator, and supplier of ideas for the politically responsible persons, public bodies and transport operators. The business fields of VBB include fare management, integrated traveller information, common marketing and contracting and controlling of regional rail services. VBB is the lead partner of the project

16 4 France (Paris / Ile-de-France) STIF: Syndicat des Transports d Ile-de-France (organising authority) Lithuania (Vilnius) MESP: Municipal Enterprise Susisiekimo Paslaugos (Vilnius town council) STIF is the public transport authority for the Ile-de-France Region. Its missions are the definition and organisation of public transport services (definition of services road, light rail, heavy rail and quality, fare policy, contractual relation with operators, financial balance of the system) extension of the network and projection, planning and monitoring activity. STIF has extensive experience with integrated public transport services and integrated fare policy which aims at providing the right level of services and quality in a variety of modes to meet the mobility needs of the 11.5 million inhabitants of the region including people with reduced mobility and people living in more rural areas. STIF is aware of and involved in developing sustainable strategies to achieve a better mobility, thus supporting the economic growth of the region. Municipal Enterprise Susisiekimo paslaugos (MESP) was founded in 1998 based on a resolution of Vilnius City Council. MESP is a local public transport authority responsible for the organisation of the public transport, maintenance of routes network, hiring of operators, issuing and selling of public transport tickets, ticket control of the passengers, maintenance of information system for passengers, gathering and analysing of data on passenger carriage within the city, management of parking system, traffic control and drafting of legal documents and legislation. 0 1

17 4 4.4 Poland (Warsaw) ZTM Warsaw: Zarząd Transportu Miejskiego w Warszawie (urban transport executive council) The Warsaw Public Transport Authority (ZTM) is a budgetary unit of the capital City of Warsaw. Established in 1992, it has set up new standards in Poland by separating organisation and controlling of public transport services from the operational tasks. Today, ZTM has contracts with 9 operators and bilateral agreements with 29 communities around Warsaw for organizing suburban public transport. To that extent ZTM is a de facto metropolitan transport authority, with a gradually integrated ticketing system. 4.5 Romania (Bucharest) PMB: Primăria Municipiului București (Bucharest Municipality) First attested in 1459, Bucharest City has gone through a variety of changes, becoming the state capital of Romania in 1862 and steadily consolidating its position as the centre of the Romanian mass media, culture and arts. Its architecture is a mix of historical, interbellum, Communist era, and modern. According to the 2002 census, Bucharest proper has a population of 1,921,751. There are approximately 2. million inhabitants in the greater metropolitan area. Economically, the city is by far the most prosperous in Romania and is one of the main industrial centres and transportation hubs of of south-eastern Europe. The city is administratively known as the Municipality of Bucharest and has the same administrative level as a county, being further subdivided into six sectors, each of them being managed by a mayor. 2