Sustainable Urban Mobility Plan Bremen 2025 - Der Senator für ...
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Sustainable
Urban Mobility Plan
Bremen 2025
Table of Contents
Table of Contents
3
Dear Reader,
Transport planning is the subject of intense political debate in
many places. With the sustainable urban mobility plan (SUMP)
2025 a transport plan has been created for Bremen for the next
10 to 15 years.
The different aspects of Bremen’s transport planning were analysed
in an interdisciplinary fashion and current and future trends were
studied. The SUMP should ensure well-functioning and environ-
mentally-friendly mobility in Bremen. Bremen already displays a
high level of environmentally-friendly mobility: a 25% cycling mode
share is a good starting point. We want to build on this.
Innovative approaches to participation were employed in the planning process. The SUMP is
the product of intensive collaboration among a wide range of actors. There was comprehensive
and ongoing citizen participation, which included the use of new online tools. There was also
a project committee that included representatives of associations, the administration and deci-
sion makers which was consulted on an ongoing basis. This cooperation contributed significantly
to the high quality of the plan.
Key goals that we wish to achieve through the SUMP are:
• An increase in social inclusion
• A higher level of traffic safety
• Optimisation of commercial traffic and accessibility of Bremen as a regional centre
• More and better services for environmentally-friendly modes of transport
• Linking of transport systems
• Strengthening of walking, cycling and public transport — including between the city and
the surrounding region
• Fewer negative effects on people, health and the environment
The SUMP has achieved a fine balance between the necessary degree of planning detail and
maintaining sight of the big picture. It is a work in progress. The measures must be concretised
and verified. In this way, the SUMP will be continually updated so as to be able to react to
future developments. Despite the comprehensive and complex issues and the extensive partici-
pation, we managed to prepare and politically pass the SUMP in a 2.5 year project period.
We hope such active participation from the public (both lay and professional) will continue in
the future.
I am pleased that the Bremen sustainable urban mobility plan has met with such international
interest and received the European SUMP Award. Many cities have similar challenges to
overcome. With this English summary, we hope to inspire other cities — both in content and
in process — to take innovative roads to the mobility of the future.
Dr Joachim Lohse
Senator for Environment, Construction and Transport Bremen
Table of Contents
4 Sustainable Urban Mobility Plan Bremen 2025
Contents
5 Planning Dialogue 53 Urban Mobility Scenarios
and Participation Plan 54 Urban Mobility Scenarios
55 2025 Base Scenario — How Will Mobility
6 Motivation, Project Definition and
Develop if No New Measures are Taken?
Participation
59 Test Scenarios
7 Development Process of the SUMP
60 Test Scenario 01:
9 The Project Committee
Optimisation of Motor Vehicle Traffic
9 Integrated Planning
60 Test Scenario 02:
10 Project Execution and Citizen Participation:
Public Transport Offensive
The Planning Dialogue
61 Test Scenario 03:
11 Regional Citizens’ Forums
Efficient Local Mobility
11 Online Participation
61 Test Scenario 04:
14 Outreach Participation
Walking, Cycling and Public Transport
14 Participation of Neighbourhood Councils
62 Test Scenario 05:
and Public Interest Groups
High Mobility Costs
62 Comparison of the Test Scenarios
66 Measure Evaluation and Methodology
15 Goals 68 Definition of the Target Scenario and Results
16 Goals of the Sustainable Urban Mobility Plan
73 Implementation Plan
18 Opportunity and and Measures
Shortcoming Analysis 74 Implementation Plan and Measures
19 Opportunity and Shortcoming Analysis 74 Financial Framework for the Sustainable
19 The Mobility of Bremeners Urban Mobility Plan
22 Urban Structure, Accessibility Analyses 75 Financing Paths
26 Motor Vehicle Traffic 76 Measures
30 Urban Planning and Major Roads
34 Car Sharing
36 Local Public Transport 93 Evaluation Plan
40 Analysis of Bicycle Traffic
94 Principles of the Evaluation Plan
40 The Bremen Bicycle Network
94 Regular Progress Reports
48 Analysis of Pedestrian Traffic
95 Annex
95 SUMP Timetable
98 Copyright and credits
Table of Contents
5
Planning Dialogue
and Participation Plan
Table of Contents
6 Sustainable Urban Mobility Plan Bremen 2025
Chapter 2 Planning Dialogue and Participation Plan
Motivation, Project Definition and Participation
The Sustainable Urban Mobility Plan (SUMP) is inten- Guiding Principles of Urban Development 2020, etc.)
ded to set the strategic framework for the future and their present and future opportunities and short-
development of transport in Bremen. Questions that comings. Measures and packages of measures that
were addressed included, e. g. “How will people get could optimise these existing strategies will be exami-
around in Bremen in the future? Which infrastructure ned to assess their effects on the achievement of the
measures should be tackled in the future? Which prio- goals, and an implementation plan will be developed.
rities should be set?” The SUMP addresses all journey
Given the financial situation in Bremen, measures
purposes (work, leisure, shopping, etc.), all modes of
were to be developed that are particularly efficient
travel and all transport networks for non-motorised
and offer high return for modest investment. Apart
modes and for motorised travel on roads and rails.
from infrastructure measures, the SUMP should also
Social and spatial conditions have changed conside- include the spectrum of cost-effective measures offe-
rably in recent years. New housing facilities, changes red by traffic and mobility management. The questi-
in values, more flexible working hours, the concentra- ons of future maintenance and financing of transport
tion of small business in shopping centres and the infrastructure were also to be examined in the SUMP.
extended opening hours of small businesses, Internet,
Following an EU-wide tendering process, the com-
e-mail, growth in commercial and goods transport,
pany Planersocietät (Dortmund and Bremen) and the
increased use of small delivery vehicles, demographic
Ingenieurgruppe IVV GmbH & Co. KG (Aachen) were
change, electric mobility or car sharing are just a few
assigned the task of drafting the SUMP. This team
of the keywords that describe this multi-faceted change.
was supplemented by the Büro für Verkehrsökologie,
This also leads to changes in travel behaviour and to which was responsible for moderating the citizens’
the need to examine related questions surrounding the forums, and the Institute of Urban and Transportation
future conception of Bremen’s transport activity in Planning at the University of Aachen for their acade-
order to deploy the city’s limited financial resources in mic expertise and for the creation of the evaluation
a targeted and efficient way, maintaining the attrac- plan. Nexthamburg Plus UG (Hamburg) set up the
tiveness and high quality of life for Bremen’s citizens, online participation portal www.bremen-bewegen.de.
workers and visitors; for industry, trade and services; The firm Protze + Theiling carried out the goal deve-
as well as for research, rejuvenation and recreation. lopment process and supervised the first two public
forums.
The goal of the SUMP is to develop a mid- to long-
term strategy for the development and regulation of A new SUMP was needed as many changes had taken
mobility behaviour and transport in the City of Bre- place in settlement and infrastructure in Bremen over
men. The interaction of the movement of people and the previous 15 — 20 years (since the last planning
commercial transport with land use will be analysed document), and it was time to adjust to the future
keeping in mind existing goals and strategy docu- demographic, ecological and economic challenges in
ments (climate protection and energy programme, the area of transport planning.
Table of Contents
7
Development Process of the SUMP
Stages of the Bremen SUMP
Planning dialogue
with citizens, associations,
committees, public interest groups,
decision makers
goals of the sustainable urban citizen forums, public interest
group participation summer 2012
mobility plan
online dialogue, citizen forums,
status analysis: regional committees, public winter 2012/2013
opportunities and shortcomings interest groups
online dialogue, citizen forums,
test scenarios Bremen 2025 regional committees, late summer 2013
measure development public interest groups
online dialogue, citizen forums,
impact assessment and measure evalua- regional committees, public first quarter 2014
tion /development of the target scenario interest groups
online dialogue, citizen forums,
draft SUMP with implementation plan regional committees, public second quarter 2014
(resolution) interest groups
The development of the SUMP took place in five
phases, including a broad participation process.
Phase 3: Test Scenarios
In the third step, five future scenarios were develo-
Phase 1: Goals ped. These offered a glimpse into various packages
of measures which might play a role in solving future
The first step was to define the goals to be achieved transport problems. The idea was to think about
through the SUMP. The goals serve as the basic orien- which measures could play a role in solving future
tation of the SUMP, providing direction for the subse- transport problems. The effects of the proposed mea-
quent steps. They resulted from a public discussion in sures and packages of measures were examined and
the summer of 2012. The goals are listed in chapter 3. evaluated on the basis of the goals of the SUMP to
determine whether they would be effective, if they
might bring unwanted side effects and what their
Phase 2: Status Analysis financial consequences would be. The test scenarios
are described in more detail in chapter 5.
The second phase of the SUMP was the analysis of
the current situation, including a detailed analysis of
opportunities and shortcomings. The current trans-
port network was examined in detail in this phase.
Where are the problems? Where is there often con-
gestion? Which areas are not well connected to the
bus or tram? Where are the gaps in the bicycle and
pedestrian networks? Bremen’s strengths were also
looked at, as well as how they could be further built
upon. Along with studies by transport professionals,
numerous citizens provided input through the citi-
zens’ forums and online dialogue. The results of the
opportunity and shortcoming analysis can be found
in chapter 4.
Table of Contents
8 Sustainable Urban Mobility Plan Bremen 2025
Chapter 2 Planning Dialogue and Participation Plan
Phase 4: Measure Evaluation and Phase 5: Implementation Plan
Target Scenario The final step was the creation of the implementaion
plan. The implementation plan presents a plan in
Based on this, an impact assessment and measure
which the realisation of measures from the base and
evaluation were built. The five test scenarios were
the target scenarios are put into a time sequence. In
examined to identify their effects. From this, possible
this way, priorities are defined and planning phases
future mobility provisions were derived. The costs
and time dependencies are taken into account.
associated with various measures were also identified,
Against a backdrop of financial possibilities, three
as well as whether the established goals could be
financing paths were laid out, including the ordering
reached through these measures. The scenario metho-
of the measures, packages of measures and measure
dology is a proven instrument in urban mobility
programmes. Because of the uncertainty of federal
planning to assess the effectiveness of ideas and the
funding to the states for transport development as
consequences and actions they imply. In order to
well as the unclear development of Bremen’s trans-
determine whether a measure should or should not
port budget, the three financing paths are presented
be recommended for inclusion in the target scenario,
along with their corresponding assumptions. At its
a specific evaluation methodology was developed.
session on 23 September 2014, the city parliament
In each case, a determination was made whether a
approved Bremen’s sustainable urban mobility plan
measure generally made sense or whether alternative
including the implementation plan and annexes. It
measures might be more effective or less costly. The
also decided to use the SUMP as a frame of orienta-
measures receiving the best evaluation in each topic
tion for the further development of urban mobility in
area were compiled in the target scenario. Measure
Bremen. The implementation plan is described in
evaluation and the target scenario are described in
more detail in chapter 6.
more detail in chapter 5.
Processes in the citizen participation phases of the SUMP
Project Process 1 Project Committee 2 Participation
Transport State Council (lead) Citizens' forums
Department
Senator for Interior and Sport Regional committees
Bremen tram and
bus company
Senator for Economy, Labour and Ports Internet
(BSAG)
bremen-bewegen.de
External experts Transport speakers of the parliamentary
Planersocietät, IVV, fractions
BVÖ, RWTH Aachen, Public interest groups
Nexthamburg Bremen Chamber of Commerce
Senate departments
Automobile Association
Cycling Association Project management
Friends of the Earth Germany 3
4
Parliamentary Committee
Table of Contents
9
Project committee
meeting in Bremen
North, 7/8.5.2014
The Project Committee
The entire development process of the SUMP was atmosphere, even in moments of conflict. Decisions
carried out in close collaboration between the admi- were made by consensus.
nistration, the local public transport provider (BSAG)
The tasks of the project committee were:
and the consultant, with regular input from the pro-
• Quality assurance of the entire process
ject committee throughout the process. This commit-
• Ensuring that the interests of the different actors
tee brought together the main actors from the trans-
were appropriately represented in the development
port sector at one table in order to achieve as broad a
of the plan
consensus as possible on the development of mobility
• Contribution to the definition of strategic goals
in Bremen. The main task of the project committee
• Assessment of the documented interim results of
was quality control of the entire process, including the
established milestones
balance of the project work in general. The composi-
• Consultation at fundamental decision points
tion of the committee was intended to ensure that the
interests of the various actors and groups were appro- Through their personal involvement and at times sig-
priately represented in the conceptual development, nificant amounts of work, those involved ensured that
leading to a well-balanced SUMP. The project com- the SUMP was completed in a comparatively short two
mittee was consulted at all fundamental decision years, that it was comprehensive and enduring, and
points. It also dealt with the statements submitted that it was achieved by consensus. Over the two years,
during the individual project phases. The project com- a total of 27 project committee meetings, including a
mittee was characterised by an open and tolerant two-day meeting, were held.
Integrated Planning
The Bremen SUMP was developed in consultation Image from the
with, and linking back to, ongoing or parallel planning Guiding Principles
processes and plans that also had a transport-relevant on Urban Develop-
scope from the fields of urban development, the envi- ment, "Come with
ronment and transport: us to tomorrow!"
• The Land Use Plan 2025
• The Industrial Development Programme 2020
• The Industry Master Plan Bremen
• The Inner City Plan Bremen 2025
• Guiding Principles on Urban Development 2020
“Come with us to tomorrow!”
• The Housing Construction Plan
• The Noise Reduction Action Plan
• The Clean Air Plan
• The Climate Protection and Energy Programme
2020
• The Local Public Transport Plan
Table of Contents
10 Sustainable Urban Mobility Plan Bremen 2025
Chapter 2 Planning Dialogue and Participation Plan
Project Execution and Citizen Participation:
The Planning Dialogue
Bremen is a citizens’ city and a Hanseatic city with a When involving citizens, it was important from the
sense of tradition. Citizens have always taken respon- outset to inform participants about the scope and the
sibility for their city. The city parliament of the Free limits of the process in order to avoid false expecta-
Hanseatic City of Bremen therefore wanted to find tions. While the Bremen SUMP 2025 left room for
ways to include citizen engagement in the develop- negotiation in the planning of future urban transport,
ment of the SUMP. this did not mean that past transport decisions were
up for discussion. Many processes had already been
It was a key condition that citizen participation play
passed by the city parliament or the relevant parlia-
an important role. It was equally clear that a participa-
mentary committee or were already in binding plan-
tion process meant much more than publicly presen-
ning. Questioning the measures included in the base
ting an almost-finished draft but rather that the public
scenario was not part of the SUMP and therefore not
should have the opportunity to bring their desires and
part of the participation process.
visions into every phase of the planning process.
During the course of the planning process, different
To this end, a planning dialogue was conceived that
participation formats were employed. There were four
would follow the process through all of its phases from
evening events in each of Bremen’s five boroughs;
developing the goals to drafting the implementation
these were the forums where citizens could speak
plan. The target groups for the planning dialogue were
directly with the consultants leading the process and
citizens, politicians from the 22 neighbourhood coun-
with the local administration. There was also an inter-
cils as well as public interest groups. There were speci-
active participation portal at www.bremen-bewegen.
fic forms of participation for each of these groups.
de. In the planning dialogue, Bremen developed an
innovative toolkit to offer citizens a range of ways to
Introduction by bring their personal experience and suggestions into
Senator Dr. Lohse the process.
at the Bremen
North citizens'
forum
Discussion at
thematic stands
at the citizens'
forum in Bremen
Mitte
Discussion on goals
in working groups
Table of Contents11
Regional Citizens’ Forums Nord
Bremen has 22 neighbourhoods and spans 40 km.
Although the SUMP is a city-wide planning document, West
a compromise had to be found between venues as close
as possible to various neighbourhoods and a manage-
able number of evening events for the organisers. Nordost
A solution also had to be found for the 22 neighbour- Mitte
hood councils. If the usual process of individual
consultation had been followed, almost 90 events Links
would have been necessary. Both citizen participation der Weser
and neighbourhood council participation were there-
fore organised at the level of the five boroughs as a
compromise among the various demands.
The so-called regional citizens’ forums took place in The methodology employed in each project phase Five regional
each project phase. In the goal identification stage at generally combined participation elements with intro- citizens' forums
the beginning, there were two central citizens’ forums ductory presentations. The latter were important to in Bremen
in the city centre. The regional forums were generally bring all the participants to a common basis and to
evening events of roughly three hours. The events introduce them to the topic because without a shared
took place in community centres or similar, which were knowledge base, discussion is difficult. Afterward,
always barrier free and accessible by public transport. visitors had the opportunity to participate directly in
The forums were run by an external moderator. the drafting process of the SUMP in small groups and
in an informal atmosphere or to express questions,
desires and opinions either orally or by leaving them
Invitation to the first citizens' forum behind in written form. The citizens’ forums alternated
between discussions and presentations in plenary and
times of small group work, such as at thematic “mar-
ket stands”.
The regional citizens’ forums were characterised by
constructive discussion, lively participation and good
resonance. There were however also critical discus-
sions, which lent the SUMP a certain local grounding.
Online Participation
It was clear even during the early conceptual phase of broad an audience as possible. There was a lively dis-
the citizen participation plan that the Internet could cussion around the use of social media such as Twit-
play an important role in citizen participation. The ter, Tumblr or Facebook but these were rejected in
web portal www.bremen-bewegen.de was created in favour of a “traditional” Internet portal because of
collaboration with the firm Nexthamburg as the cen- potential problems (data protection, user expectations
tral participation platform. This was used during four vs. affordability of support and supervision). The por-
of the development phases, although the focus and tal built on a system that was already on the market
the participation methodology changed to meet the but which was modified for the Bremen process. The
particular needs of each phase. The basic approach of participation portal was premiered in the context of
the City of Bremen was to make participation as easy the competition “Landmarks in the Land of Ideas
as possible so that the portal would be used by as 2013/2014”.
Table of Contents12 Sustainable Urban Mobility Plan Bremen 2025
Chapter 2 Planning Dialogue and Participation Plan
Project phase: Opportunity and Despite the unusually high response rate, it must be
noted that the participation was by no means repre-
Shortcoming Analysis sentative. It was clear that the number of responses
from the individual neighbourhoods corresponded
The Internet portal was first put to use in the second
with the social structure of the city. For this reason —
project phase. The process was accompanied by
and also because the Internet cannot replace face-to-
active media and publicity work that drew attention
face dialogue — the online tool was only one compo-
to the possibilities for participation. Posters, free post-
nent among several. Further, the organisers always
cards and hanging cards in buses and trams were
had the entire city in mind independent of the volume
created. Multipliers were also used to reach a wider
of participation and the voting so as to ensure that
audience, for example through messages on other
everyone’s transport interests were taken into account
websites (e. g. the transport association or the city’s
in the SUMP regardless of social status and the active
own website) or through e-mail distribution lists of
representation of legitimate interests. The participants
associations and organisations.
at the citizens’ forums were also not representative of
The processing phase included an extensive analysis the population, but the combination of the citizens’
of the existing transport network and infrastructure forums and the online participation led to a balanced
with the goal of identifying the opportunities and representation of citizen interests.
shortcomings of future solutions. The participation
The results of the participation phase were prepared
started from two simple questions: “Where are things
in an atlas format in order to record the phase in the
running badly?” and “Where are things running
synopsis. The documentation was geared toward the
smoothly?” These were linked to the request, “Tell us
general public and contained all entries, even when
your opinion”. Users of www.bremen-bewegen.de
the high number of contributions prevented them
could respond directly in a text field on the homepage
from being presented in full detail.
without needing to register. Entries could also be
placed on a map and assigned to a transport mode
category. Through a map view, through lists that could
be filtered by topic, and through a search function,
previous entries could be read and commented on.
In addition, there was a voting function to enable
users to agree or disagree with previously-expressed
opinions. The participation portal was very well recei-
ved. Results show that significantly more people than
expected joined the participation process. All entries
were evaluated.
Home page of www.bremen-bewegen.de Poster on participation
during the second project phase
Table of Contents13
Project Phase: To do this a simple registration was neces-
sary. Because of the higher level of abs-
Test Scenarios Bremen 2025 traction and the higher complexity, there
The third project phase was about presenting and dis- was a much lower resonance in this
cussing the basic options for transport in the city of round. But the high quality of the entries
the future. Here, the different measure suggestions — submitted showed that this phase — as
mainly collected in the participation stage — were fed expected — received interest from a more
into five different thematic scenarios. In the citizen professional audience. On the other
participation process of this phase, the difficulty arose hand, the clear and understandable pre-
that the test scenarios were highly abstract and, sentation of the overview pages of the
because each represented an extreme situation, it individual scenarios enabled the use of
would not have made sense to ask for a preference. the Internet platform at the citizens’
www.bremen-bewegen.de was therefore used mainly forums. This participation phase allowed a
as an information medium to make the different view into the laboratory in which the dif-
scenarios and their content understandable and easier ferent measure suggestions are tested.
to visualise. It also allowed citizens to suggest further This required a high level of complexity,
measures that should be included in one of the scena- but contributed to the transparency of the
rios. overall process. Poster on the scenario
building blocks
Project Phase: Target Scenario The evaluation of the input allowed statements about
the preference of particular measures, which was par-
The easy access to the process was intended to moti- ticularly helpful for the implementation plan.
vate broad groups of users to actively participate.
In addition, in cooperation with the Senator for Edu-
There were two main goals to the online participation
cation and Science, a guide was created for teachers
in this phase: first, people were to be well informed
on how to use the participation tools in school. Clas-
about the target scenario and the selection process
ses and groups of pupils from four schools participa-
was to be made transparent. Second, citizens were to
ted in the process.
be consulted on the measure selection for the target Screenshot of a
scenario. citizen's scenario
www.bremen-bewegen.de put citizens in the role of
city planners. Citizens could put together their own
scenarios from a set of over 100 measures. In doing
so, they were required to stick to a budget and keep
the goals of the target scenario in mind. They could
then find out the effects of their measures. The mea-
sures were a selection from roughly 160 recommen-
ded by the consultants and the city.
Overview presentation of a test scenario
with clickable elements
Screenshot of a citizen's scenario
Table of Contents14 Sustainable Urban Mobility Plan Bremen 2025
Chapter 2 Planning Dialogue and Participation Plan
Project Phase: Implementation Plan the three financing paths and their effects and make
suggestions on the order of implementation of the
The focus of the online citizen participation in the last measures. For this, a trade-off principle was used. For
phase lay in transmitting information about the Imple- each measure that was given a higher priority, ano-
mentation Plan and the financing paths. Good use ther had to be pushed down the list. This trade-off
was made of www.bremen-bewegen.de as a partici- process was intended to make clear that for financial
pation portal. Following the guiding question “Which reasons and because of planning capacity, only a limited
measure comes when?” citizens could find out about number of measures could be implemented quickly.
Outreach Participation Participation of Neigh-
The format “Bremen Bewegen (Moving Bremen) on bourhood Councils
Tour” presented the SUMP at several locations in
Bremen. The goal was to make people aware of the and Public Interest
possibility to try out the scenario building blocks and
to offer access to citizens without Internet. “Moving Groups
Bremen on Tour” was conceived as a stand that could
be set up for a day in various shopping centres. Along with citizens, elected neighbourhood councils
Staffed by three people at a time, the current phase and various public interest groups were involved in all
would be explained, the measures presented and the phases of the process. As the SUMP is a plan for the
opportunity offered to use the tool box on site. entire city, the neighbourhood councils were involved
Offering “Moving Bremen on Tour” in five shopping in the same spatial composition as the citizens’ forums.
centres served to increase the reach of the scenario For this there were roughly 20 events, or four per
building blocks. borough. After each of these events, the individual
councils had the opportunity to submit a written
statement.
In all five phases, the public interest groups could
Scenario building
submit a statement on the process. This is also a first.
blocks in the Water-
Public interest groups include:
front shopping centre
• Other branches of the local authority
(e. g. other senate departments)
• Neighbouring regional bodies
(counties, communities, the state of Lower Saxony)
• Chambers, associations, and organisations
• Bremen’s 22 neighbourhood councils
Citizen participation
in the Roland Center
shopping centre
"Moving Bremen on Tour"
in the Berliner Freiheit neigh-
bourhood
Table of Contents15
Goals
Table of Contents16 Sustainable Urban Mobility Plan Bremen 2025
Chapter 3 Goals
Goals of the Sustainable Urban Mobility Plan
Through the SUMP, strategic agenda setting for non- In order to ensure that these strategic decisions are
motorised and motorised transport on road and rail, made purposefully and take into consideration all
for movement of people and goods and for all journey relevant interests, one of the first steps of the process
purposes will be undertaken using the time horizon of was to develop goals for the SUMP. These goals are to
2025. be achieved in an effective and enduring way through
the measures of the SUMP. The goals serve initially as
a set of criteria in the opportunity and shortcoming
Development
analysis. They are subsequently used as guidelines for
process of the Opportunity and shortcoming the development of the measures and then as a basis
Go
P
SUMP
UM
analysis
for evaluation in the implementation of the SUMP.
als
te S
of t
The goals of the SUMP are thus the central guidelines
of h
he
Measure Base scenario which set the framework for the entire SUMP process.
SU
als
develop- and 5 test The goals were developed at two public forums in col-
MP
ment scenarios Go laboration with citizens, representatives of organisa-
tions, political bodies and administration. In this way,
a broad discourse was held over the roles and tasks of
Target
mobility and transport in the future.
scenario
The catalogue of goals was revised based on the input
Implemen- from the citizens’ forums as well as on the statements
tation Plan submitted by the public interest groups and the
senate departments. Minor editorial amendments
were made and the project committee reached a con-
sensus on the document, which they recommended
to parliamentary committee for approval.
There are six overarching goals, each with several sub-goals.
Goal 1: Goal 2: Goal 3:
To enable social inclusion of all Increase transport safety and security Offer and optimise alternative
people and to strengthen the transport options in the entire city
equality of all transport users • Work toward Vision Zero
(no traffic fatalities) • Strengthen the mobility chain
• Develop a strategy for the • Improve physical safety for users and the mobility mix
planning of footpaths of all transport modes and facili- • Improve tangential links for wal-
• Improve the quality of sojourning ties king, cycling and public transport
for pedestrians • Improve the safety of pedestri- • Integrate the neighbourhood
• Foster bicycle transport ans, including vis-à-vis cyclists centres to the periphery for wal-
• Increase the attractiveness of • Improve the safety of cyclists vis- king, cycling and public transport
local public transport à-vis motorised transport • Improve services for walking,
• Improve accessibility of public cycling and public transport
space and of local public transport based on the location of the
by providing for the needs of neighbourhoods
pedestrians, in particular older • Improve public relations, marketing
people, people with disabilities and information systems. Uniform,
and people with small children comprehensive and understanda-
• Win back public space and link ble tariff systems, including alter-
and make more attractive streets native transport systems (also in
and paths for all users so as to the surrounding region)
increase the quality of sojourning • Develop innovative concepts
• Enhance and attractively design and take into account (and when
public space appropriate support) existing
• Strengthen local mobility innovative concepts
• Foster alternative propulsion
technologies
• Improve water transport on the
river
Table of Contents17
Goal 4: Goal 5: Goal 6:
Improve the connection of the sys Strengthen Bremen as an economic Reduce the effects of transport on
tems and services for walking, cyc centre by optimising commercial people, health and the environment
ling and public transport between transport in a lasting and perceptible way
Bremen and the surrounding region
• Reliable and effective commercial • Reduce carbon dioxide, nitrogen
• Improve the infrastructure appro- transport for businesses oxide and particulate emissions
priate to the location of each • Ensure optimal accessibility for in line with climate and environ-
neighbourhood in the settlement goods transport and for business mental protection goals
pattern of Bremen travel both by walking, cycling • Reduce transport noise
• Foster the accessibility of the city and public transport and by car • Reduce the space consumption
centre of Bremen in its capacity as a basic requirement for Bre- of transport. Improve the ecolo-
as a regional centre by all modes men in its role as a regional cen- gical function of unused space on
of transport tre in northwest Germany transport routes (urban biotope
• Improve the infrastructure for • Ensure the flow of traffic to and networking and air quality).
bicycle transport and further from the ports • Reduce the separating effect of
develop the cycle network (rou- • Enable the handling of goods transport routes (road and rail)
tes), including away from busy transport by high-capacity rail • Reduce the need for travel
roads with high access — away from through the use of densification
• Shift car journeys to public trans- housing areas and, if necessary, in city planning, by strengthening
port journeys and improve the with effective noise protection neighbourhood and local centres
connections between Bremen’s • Minimise/make effective delivery and by fostering mixed-use
neighbourhoods and neighbou- traffic in the city, being aware of development.
ring cities and communities to rail individual purchasing patterns • Reduce the various stresses on
links (including park and ride and • Improve the accessibility of indus- residents in populated areas
bike and ride in Bremen and in try and business areas for wal- • Better use of the capacity of exis-
the surrounding region) king, cycling and public transport ting transport modes and infra-
• Optimise the connections bet- • Better management and bund- structure
ween Bremerhaven and Bremen ling of long-distance traffic
both by road and rail • Reliable and binding network
• Comprehensive and better con- hierarchy in the road network
nections between walking, cyc- • Test and, if appropriate, foster
ling and public transport alternative transport systems
• Strengthen cooperation with the
other local authorities of the
region
Table of Contents18
Opportunity and
Shortcoming Analysis
Table of Contents19
Opportunity and Shortcoming Analysis
The opportunity and shortcoming analysis presents • Considering the established goals, what shortcomings
Bremen’s current transport situation as compared to are there in the transport system?
its established goals, which are to be achieved by • How can these shortcomings be evaluated?
2025 by means of the measures developed.
During the opportunity and shortcoming analysis, a
The focus was on the following questions: comprehensive study was carried out by the consultant
• Considering the established goals, which areas present group and over four thousand comments and sugges-
opportunities and should be further developed? tions submitted by the public via the participation
portal www.bremen-bewegen.de were evaluated.
Online citizen input
590
non-localised
Number of contributions by category
1,786 1,533 670 247
car and lorry walking & cycling bus & tram other
The Mobility of Bremeners
Two household surveys carried out in 2008, the Sys- In comparison with other selected major cities in the
tem Repräsentativer Verkehrserhebung (SrV) and the SrV, it became clear that Bremen stands out mainly for
Mobility in Germany Survey, provide a detailed pic- its high bicycle mode share. A quarter of journeys are
ture of Bremeners’ transport behaviour. Both surveys taken by bicycle, equaling 420,000 bicycle trips per
are representative and were carried out over the day. The pedestrian and public transport shares are
course of an entire year. comparatively small. With the exception of Frankfurt,
the share of private car use in all of the cities in the
study was 40 — 41%.
Table of Contents20 Sustainable Urban Mobility Plan Bremen 2025
Chapter 4 Opportunity and Shortcoming Analysis
car car
Modal split of citizens by city PT Mode choice by gender PT
(source: SrV 2008) bike bike
foot foot
100 % 100 %
34 % 40 % 40 % 40 % 41 % 34 %
75 % 75 % 47 %
23 % 16%
50 % 22 % 14 % 19 % 50 %
21% 12 %
13 % 11 % 25 % 14 % 26 %
25 % 16 % 25 % 24 %
30 % 27 % 27 % 22 % 24 %
21 % 17 %
0% 0%
Frankfurt
Dusseldorf
Bremen
Leipzig
Dresden
male female
car
Modal split for all travel in Bremen Mode choice by age PT
(including in- and outbound commuters) bike
foot
< 6 yrs. 32% 18 % 6% 44 %
10 % 15 % 6 – 9 yrs. 45% 12 % 12% 32 %
10 –14 yrs. 26 % 51 % 11 % 12 %
20 % 15 – 17 yrs. 17 % 51 % 28 % 4%
38 %
18 – 24 yrs. 10 % 26 % 37 % 27 %
17% 25 – 44 yrs. 21 % 22 % 12 % 46 %
45 – 64 yrs. 14 % 24 % 11 % 52 %
car driver
car passenger
public transport > 65 yrs. 29 % 21 % 14 % 36 %
bike
foot
0% 20 % 40 % 60 % 80 % 100 %
car
Mode choice by region PT
bike
foot
all 21 % 25 % 14 % 40 %
middle 35 % 28 % 19 % 18 %
south 19 % 31 % 15 % 35 %
east 19 % 22 % 13 % 46 %
west 28 % 27 % 17 % 29 %
north 18 % 21 % 12 % 49 %
0% 20 % 40 % 60 % 80 % 100 %
Table of Contents21
Vehicle access all middle south east west north
Households with a car 71 % 49 % 72 % 73 % 58 % 84 %
Car-free households 29 % 51 % 28 % 27 % 42 % 16 %
Cars per household 0.82 0.53 0.83 0.89 0.66 1.03
car car
Mode choice by journey purpose PT Modal split of Bremeners PT
bike by total journey distance bike
foot foot
30 %
to work 5% 22 % 21% 52 %
25 %
42 %
work-related 5% 24 % 5% 66 % 11 %
20 %
25 %
education 24 % 34 % 21 % 21 % 15 % 13 %
57 %
26 %
10 %
personal errands 21 % 21 % 16 % 42 % 35 %
62 % 38 % 63 %
5% 23 %
69 %
shopping 31 %
29 % 20 % 6% 45 % 9% 19 % 32 %
(daily needs) 0% 28 %
to 1 km 1-2 km 2-5 km 5-10 km 10-20 km 20-100 km
shopping
28 % 16 % 7% 49 %
(longer-term)
leisure 27 % 27 % 11 % 35 %
0% 20 % 40 % 60 % 80 % 100 %
Mobility types in Bremen by age category Comparison of frequency of mode use
40 % bicycle
Bremen 39% 21 % 11% 8% 14 % 7%
30 %
cities over
22% 19 % 13% 9% 23 % 15 %
500,000
20 % car/motorcycle
Bremen 35% 33 % 15% 7% 9%
10 %
cities over
36 % 30 % 15% 7% 12 %
500,000
0% public transport
18 –24 25 –34 35 – 44 45 – 64 65 –79 > 80
Bremen 22 % 21 % 29% 14 % 16 %
mono-modal car
cities over
29 % 25 % 22% 11 % 13 %
500,000
mono-modal bicycle
mono-modal public transport (almost) daily 1-3 days/month (almost) never
1-3 days/week less than once a month no bicycle
multi-modal car/bike
multi-modal car/public transport
multi-modal bike/public transport
multi-modal car/bike/public transport
limited mobility
Table of Contents22 Sustainable Urban Mobility Plan Bremen 2025
Chapter 4 Opportunity and Shortcoming Analysis
Conclusions about Bremeners’ Mobility
It became clear that bicycle transport plays a major role a 2% increase, bringing it to 27%. The current boom
in Bremen. However in the cross-city comparison on in the pedelec market will also make bicycle use more
the use of public transport, Bremen shows room for interesting for journeys of more than 5 or even 10 km.
improvement. One reason for the relatively low use of
In order to support the change to more environmen-
public transport — apart from the settlement pattern
tally friendly transport behaviour, particular attention
of the city — is the comparatively slow travel speeds
should be paid to actively supporting multi- and inter-
in public transport.
modal transport behaviour to increase the share of pub-
In order to further strengthen the sustainable modes lic transport use and to reduce car use — including in
over car travel, the attractiveness of walking and cycling the over-thirty age category. Similar to other major
needs to be improved and optimised for short distances cities, the young generation in Bremen demonstrates
and that of public transport for mid- and long distances more multi-modal transport behaviours and lower car
through the measures developed in the SUMP. dependence than the older generations. All of the
chauffeuring of young children (so-called “parent
Bremen is a city of short distances, meaning it has great
taxis”) leads away from independent mobility for chil-
potential to strengthen walking and cycling. If only
dren; depending on the distance to be travelled, this
one in ten car journeys of under 5 km could be shifted
could be an opportunity to shift to walking, cycling
to a bicycle journey, the cycling mode share would see
and public transport.
Urban Structure, Accessibility Analyses
Urban Structure
The relatively high density of housing and workplaces, The Bremen metropolitan area of roughly 325 km2 lies
the tendency to trans-regional transport (particularly on both sides of the Weser River and stretches almost
goods transport) and Bremen’s role as a regional 38 km from southeast to northwest. The urban struc-
centre in the northwest of the state of Lower Saxony ture is distinguished by its form as a linear city. As is
have decidedly shaped transport activity in Bremen. characteristic of linear cities, the settlement areas of
Bremen are oriented along the major roads, along the
As the tenth largest city in Germany, Bremen is the
rail line and along the Weser River so that the accessi-
cornerstone of the registered European metropolitan
bility (including by public transport) is relatively easy
region Bremen/Oldenburg in the Northwest, where it
to provide. Also typical of linear cities, the green
serves as a regional centre. Bremen also has interna-
spaces and open areas in Bremen are closely associ-
tional importance as a seaport.
ated to the individual settlement areas.
Bremen is also the central transport node within the
Along with the city centre (the historic, economic and
transport association Bremen/Lower Saxony. The lines
cultural centre of Bremen), the city has a polycentric
of both regional and trans-regional rail traffic are
structure, as is typical of a linear city. As compared to
aligned with this node. Bremen is connected to long-
cities with a compact urban structure, Bremen has rel-
distance rail travel via its main station. Bremen also
atively long travel times for connections between its
serves as a central node in the network of national
settlement areas (see the accessibility analyses
motorways.
below).
Table of Contents23
Bremerhaven Bremerhaven
2400 1500
Osterholz- Osterholz-
Scharmbeck Scharmbeck
Schwanewede 4700 1000
Hamburg
3900 Ritterhude 3400
3300
Lilienthal Oldenburg
3100 1400
Bremen Bremen
Delmenhorst Delmenhorst
8400 1500
Achim Achim
Stuhr 4600 Stuhr 1900
6100 Weyhe 2700
5800
Inbound commuters to Bremen in 2010 Outbound commuters from Bremen in 2010
(communities with more than 3,000 inbound (communities receiving more than 1,000 outbound
commuters) commuters)
Travel times by
public transport
to the city centre
not included, Legende
low density
nicht betrachtet,
0 – 15 min niedrige Siedlun
Standort
15 – 30 min 0 - 15 min
15 - 30 min
30 – 45 min
30 - 45 min
45 – 60 min 45 - 60 min
> 60 min
> 60 min
Haustür - Hau
door to door (Tagesmittelwer
Reisezeit > 45 Min
(daily mean value); Innenstadt/Sögestr.
travel time > 45 minutes
Travel times by car
to the city centre Anhang 12.45: Reisezeit im öffentlichen Verkehr
in die Innenstadt
Legende
nicht betrachtet,
niedrige Siedlungsdichte
Standort
0 - 15 min
not included, 15 - 30 min
low density 30 - 45 min
> 45 min
target
Haustür - Haustür
0 – 15 min (Tagesmittelwerte);
Reisezeit > 45 Minuten
15 – 30 min
30 – 45 min
Innenstadt/Sögestr.
> 45 min
door to door
(daily mean value);
travel time > 45 minutes
Anhang 12.2: Reisezeit im motorisierten Individualverkehr
in die Innenstadt
Table of Contents24 Sustainable Urban Mobility Plan Bremen 2025
Chapter 4 Opportunity and Shortcoming Analysis
Elsfleth
Schwanewede Osterholz-Scharmbeck Worpswede
Blumenthal
Ri�erhude
Berne Grasberg
Vegesack
Burglesum Legende
Stadt Bremen
Lemwerder Hauptbahnhof Brem
Radverkehrsnetz
Lilienthal Hauptroute
Legende Blockland Ergänzungsroute
Freizeitroute
Erreichbarkeitszonen
Stadt Bremen Borgfeld
15 Minuten
Gröperlingen 30 Minuten
Hauptbahnhof Bremen Fischerhude
45 Minuten
Seehausen 60 Minuten
Hude
Radverkehrsnetz Horn-Lehe
Potenzial 45 Minute
Bookholzberg Findorff Oberneuland Potenzial 60 Minute
Hauptroute Walle
Schwachhausen
Ergänzungsroute
Strom �i�e Vahr
Freizeitroute Woltmershausen
Östliche Vorstadt
Erreichbarkeitszonen
Neustadt Oyten
15 Minuten Osterholz
30 Minuten Delmenhorst Huch�ng
de Hemelingen
45 Minuten Obervieland
60 MinutenGanderkesee
Stuhr
Potenzial 45 Minuten
Achim
Potenzial 60 Minuten Dreye
Brinkum
Weyhe Thedinghausen
Accessibility of the main train
station by bicycle
car
Comparison of travel times by car, public transport and bicycle PT
bike
100 travel time [min]
80
60
m
40
20
distance [km]
0
0 3 6 9 12 15 18 21 24 27 30
Table of Contents25
Wihelmshaven
Bremerhaven
Nordenham Bremervörde Accessibility of the city centre
by vehicle from the surround-
Legende
ing region
Brake nicht betrachtet,
niedrige Siedlungsdichte
Standort
Westerstede not included, low density
Rastede Osterholz - < 30 min
target
Bad Scharmbeck 30 - 45 min
< 30 min
Zwischenahn Oldenburg 45 - 60 min
Bremen 30 – 45 min
Rotenburg > 60 min
45 – 60 min
Delmenhorst
Innenstadt/Sögestr. > 60 min
Ganderkesee Achim door to door (daily mean value); Haustür - Haustür
travel time > 60 minutes (Tagesmittelwerte);
Reisezeit > 60 Minuten
Syke Verden
Wildeshausen
Sulingen
Diepholz
Anhang 12.111: Reisezeit im motorisierten Individualverkehr
aus der Region Bremen - Bremerhaven -
Oldenburg in die Innenstadt
Wihelmshaven
Accessibility of the city centre Bremerhaven
by public transport (including
regional passenger rail) Nordenham Bremervörde
from the surrounding region
Brake
not included, low density
target Westerstede
< 45 min Rastede Osterholz -
45 – 60 min Scharmbeck
Bad
60 – 90 min Oldenburg Rotenburg
Zwischenahn Bremen
90 – 120 min
> 120 min
Delmenhorst Innenstadt/Sögestr.
door to door (daily mean value); Ganderkesee
travel time > 60 minutes Achim
Syke Verden
Wildeshausen
Sulingen
Diepholz
Anhang 12.116: Reisezeit im öffentlichen Verkehr
Table of Contents26 Sustainable Urban Mobility Plan Bremen 2025
Chapter 4 Opportunity and Shortcoming Analysis
Motor Vehicle Traffic
Road Network Infrastructure
Bremen has a graduated, hierarchically-subdivided These generally have a very different character and
road network made up of national motorways, much lower capacity but do not have a corresponding
national roads, and major urban roads. These roads reduction in traffic load. This highlights the non-
serve different functions within the urban area. They homogeneous nature of the road network and reflects
serve to connect the settlement areas to each other, the inconsistency in development philosophy since
as access routes and also for sojourning. the 1960s and the early 1970s. Because of the intru-
sion into existing development it would entail, a road
But the scale of Bremen’s major road network is not
expansion in the central city is now unthinkable both
uniform. While roughly half of the roads in the major
from a transport planning and an urban planning per-
road network (including the national long-distance
spective.
roads) have two or more lanes, the scale is not contin-
uous. The national motorway connector connects not The limitation created by the five bridges over the
to a four-lane radial or to a high-capacity city ring Weser in the metropolitan area means that traffic that
road but leads directly to city streets. is simply crossing the Weser River (not bound for the
city centre) mixes with traffic coming and going from
the city centre. The central Weser bridges create clear
“pinch points” in the network.
Bremen‘s major
road network
(2010)
including truck
routing network
Legende
BAB
motorway Bund
national road Lande
regional road Kreis
county road Haup
major road
Elem
Lkw-F
element of the truck
routing network
(2006)
Anhang 6.2: Funktionale Gliederung - Hauptstraßennetz
Kartengrundlage
mit Lkw-Führungsnetz Stand: Dezember
Table of Contents27
Opportunity and Shortcoming Analysis: Motor Vehicle Traffic
Capacity in the Major Road Network Disruptions in the major road network are concen-
trated in specific areas but there are no systemic prob-
The evaluation of the capacity of Bremen’s major road
lems with regard to the capacity of the major road
network is based on the data on disruptions in the
network. A strategy to reduce the disruption in traffic
network provided by the Traffic Management Centre
flow in the affected areas is needed to improve the
and on the analysis of the network’s capacity as it
overall traffic flow, to optimise accessibility and to
appears in Bremen’s transport model.
reduce congestion-related emissions.
Disruptions on
doppelter
Bahnübergang Bremen‘s major
AS HB-Nord road network based
Zur Vegesacker
Fähre on evaluation
Legende: from
the trafficBAB
manage-
ment centreBundesstraße
Landesstraße
Kreisstraße
Hauptstraße
motorway
Zubringer
Überseestadt national road
Fly Over
Überseestadt
Lilienthaler Stauanfällige Bereiche mi
regional road
Waller Heerstraße
Heerstr. Utbremer Leher
Art des Staus
Tunnel Heerstraße county road
Nordwest-Knoten regelmäßig festgestell
B6 Zufahrt E.-Schopf-Allee/Überseestadt
G.-Deetjen
Tunnel Stern Schwachhauser Heerstr. major road
ereignisbezogen
Herdentorsteinweg Bismarckstr.
Stromer
Landstr. störanfällig
Verknüpfung
Huchtinger B 6 / A 281 F.-Ebert-Str. Osterdeich Hastedter congestion-prone areas
Heerstr. Osterdeich Basis:
and typeAuswertung
of congestion
der Störmeldungen der
Oldenburger Str. Habenhauser
Verkehrsmanagement Zentrale (VMZ)
Brückenstr.
Neuenlander Str.
Habenhauser Hemelinger regularly experienced
Brückenstr. Heerstr.
Kattenturmer
Thalenhorststr. event-driven
Heerstr.
A1 susceptible to
AS Uphusen
problems
Commercial
Anhang Traffic
6.7a: Störungen and the Road
im Hauptstraßennetz nach Network The traffic safety problems on Bremen’s major road
Kartengrundlage GeoInformation Br
Auswertungen der VMZ network are not generalised, but occur at individual Stand: Dezember 2012
As a port city and a commercial and industrial centre,
nodes and in particularly busy road sections. These
commercial traffic is of particular importance for
problems are thus rather a result of local conditions
Bremen. The management of commercial traffic on
(high traffic volumes, lack of space, confusing traffic
the road network and the accessibility of commercial
routing, etc.)
centres are key factors.
From 2007 to 2012, roughly 15,300 to 16,800 traffic
With 26% of traffic on the road being commercial
accidents were registered annually. The share of acci-
traffic and 10% of all traffic being heavy-duty vehi-
dents with personal injury was approximately the
cles, the volume of commercial traffic in Bremen is
same in each of those years (15 — 18%).
disproportionately high.
According to the accident statistics, in 25% of all traf-
Traffic Safety on the Major Road Network fic accidents in 2012 the main cause was excessive
speed or not keeping a safe distance. Children were
Bremen’s accident commission regularly analyses traffic
involved in less than 2% of all traffic accidents. 16%
safety issues in the individual areas of the city, develops
of all traffic accidents involved senior citizens.
location-specific measures to solve the problems and
monitors whether the measures have reduced the
safety problems.
Table of Contents28 Sustainable Urban Mobility Plan Bremen 2025
Chapter 4 Opportunity and Shortcoming Analysis
Number of traffic accidents in the City of Bremen
2007 2008 2009 2010 2011 2012
total traffic accidents 15,321 15,399 15,707 16,085 16,229 16,809
without personal injury 12,625 9,891 10,074 10,887 10,486 10,896
with personal injury 2,696 2,551 2,583 2,363 2,624 2,688
casualties 3,094 2,957 3,050 2,835 3,119 3,225
fatalities 11 10 11 9 14 15
serious injuries 301 339 326 275 318 351
minor injuries 2,782 2,551 2,713 2,551 2,787 2,859
Areas with traffic
safety problems
in Bremen’s major
road network
(2010/2012)
Legende
BAB
Bund
Lande
Kreiss
Haup
Gröpelinger Heerstr.
Lilienthaler Heerstr./Autobahnzubringer Horn-Lehe
Verkehrs
nach Aus
Utbremer Str. Verkehrs
Leher Heerstr.
2012
Hans-Böckler-Str.
gehäu
Breitenweg/Bürgermeister-Smidt-Str.
Am Stern Kurfürstenallee, Höhe Brandenburger Straße Sachs
Breitenweg/Herdentorsteinweg/Rembertiring Schwachhauser Heerstr.
Am Brill/Martinistr./Bürgermeister-Smidt-Str. In der Vahr/Kurt-Schumacher-Allee/Karl-Kautzky-Str.
B6 gehäu
Vor dem Steintor Perso
Alte Neustadt Bereich Hemelingen (Stresemannstr.)
Richard-Dunkel-Straße/Industriestr.
Norderländer Straße/Frieslandstraße Buntentorsteinweg Osterholzer Heerstr. Verkehrs
Georg-Wulf-Straße/Auffahrt A281 Habenhauser Brückenstr.
nach Aus
B6 EUSka Un
Kirchhuchtinger Landstr.
gehä
punk
gehä
Straß
Berei
(infolge ho
Traffic accidents according to the accident Traffic accidents according to the EUSka
motorway
commission 2012 accident map for 2010
national road
cumulative accidents with material damage cumulative accidents at junctions
Anhang 6.8: Unfallhäufungspunkte
Kartengrundlage
regional road
county road cumulative accidents with personal injury cumulative accidents on streets or in zones
(by traffic volume)
major road
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