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The Experience of Barcelona Provincial Council in the Assessment of Urban Mobility Plans (PMUs). ECOMM 13-15th May 2009
The Experience of Barcelona Provincial Council in the Assessment of Urban Mobility Plans (PMUs)
Paloma Sánchez-ContadorHead of the Technical Office for Mobility and Local Road Safety, Barcelona Provincial Council
Informe:
2
The Experience of Barcelona Provincial Council in the Assessment of Urban Mobility Plans (PMUs). ECOMM 13-15th May 2009
Contents
1. Barcelona Provincial Council and the current regulatory
framework for mobility in Catalonia
2. Ex-ante and ex-post assessment
3. Obstacles that can hinder the correct development of a PMU
4. Criteria for facilitating the development, monitoring and
assessment of a PMU
5. Barcelona Provincial Council's proposal for implementing
PMUs
6. Conclusions
3
The Experience of Barcelona Provincial Council in the Assessment of Urban Mobility Plans (PMUs). ECOMM 13-15th May 2009
About usAbout us
Territory Surface area (km)
Population (inhabitants)
Density inhab./km²)
Barcelona 7,719 5,309,404 687.8
Catalonia 32,113 7,134,697 222.2
Spain 505,992 44,708,964 88.3
Source: INE, January 2006.
1. Barcelona Provincial Council and the current regulatory framework for mobility in Catalonia
311 towns in the network.
Direct action by providing services and, above all, by cooperating with town councils.
4
The Experience of Barcelona Provincial Council in the Assessment of Urban Mobility Plans (PMUs). ECOMM 13-15th May 2009
Mandate Action Plan. 2008-2011
COURSE OF ACTION: local mobilitySCOPE: sustainable territorial action
Highway laws and regulations. Road safety:- Project- Maintenance
BARCELONA PROVINCIAL COUNCIL
1. Barcelona Provincial Council and the current regulatory framework for mobility in Catalonia
Basic networkLocal network
Neighbourhood network
Scope of special planOld centre
Preferred pedestrian routes
FUTURE CIRCULATION PLAN
5
The Experience of Barcelona Provincial Council in the Assessment of Urban Mobility Plans (PMUs). ECOMM 13-15th May 2009
Action Plan to Improve Air Quality in the Metropolitan Area of BarcelonaApproved in 2007
Mobility LawApproved in 2003
Decree 344 / 2006 regulating studies to assess generated mobility (EAMG)
Master Mobility Plan of the BMAApproved in 2008
Towns > 50,000Regional capitals
40 towns in the BMA
Taxi LawApproved in 2003
Urban Mobility Plan (PMU) (24)
All townsEAMG POUM EAMG associated planningEAMG singular implementations
PMUPublic Building Transport Plan (32)Company Transport Plan
Towns > 20,000in the BMA
PMUPublic Building Transport PlanCompany Transport Plan
Catalonia Taxi licence studies
1. Barcelona Provincial Council and the current regulatory framework for mobility in Catalonia
Regulatory framework in CataloniaRegulatory framework in Catalonia
6
The Experience of Barcelona Provincial Council in the Assessment of Urban Mobility Plans (PMUs). ECOMM 13-15th May 2009
Compulsory (Mobility Law)
Compulsory (Decree on atmospheric pollution)
Compulsory (Master Mobility Plan of the BMA)
More than 56 towns in the province of Barcelona are obliged to implement a PMU.
Currently 3 PMUs have been completed; the rest are in progress or have yet to start.
Challenge: how can we develop these PMUs in order to facilitate subsequent assessment and monitoring?
1. Barcelona Provincial Council and the current regulatory framework for mobility in Catalonia
PMUs in the province of BarcelonaPMUs in the province of Barcelona
7
The Experience of Barcelona Provincial Council in the Assessment of Urban Mobility Plans (PMUs). ECOMM 13-15th May 2009
Barcelona Provincial Council Mandate Action Plan 2008-2011Barcelona Provincial Council Mandate Action Plan 2008-2011
Specific policy on mobility in the Mandate Action Plan:
Content:
• Mobility plans
• Studies to assess generated mobility
• Mobility studies
• Specific studies
• Workplace access plans
• Training (mobility and road safety courses)
• Dissemination (MOBAL website)
1. Barcelona Provincial Council and the current regulatory framework for mobility in Catalonia
8
The Experience of Barcelona Provincial Council in the Assessment of Urban Mobility Plans (PMUs). ECOMM 13-15th May 2009
Types of applicationsTypes of applications 2008 - 20112008 - 2011
Urban Mobility Plan 25
Urban Mobility Study 34
Specific studies 32
Public transport 4
Taxi 2
School routes 5
Supramunicipal scope 4
EAMG - POUM 5
EAMG - Partial plan 4
Traffic study 2
Workplaces 5
Bicycle 1
Total 91 studies
Studies/plans imposed by law (bold) 41
Studies/plans imposed due to municipal needs 50
1. Barcelona Provincial Council and the current regulatory framework for mobility in Catalonia
9
The Experience of Barcelona Provincial Council in the Assessment of Urban Mobility Plans (PMUs). ECOMM 13-15th May 2009
Contents
1. Barcelona Provincial Council and the current regulatory
framework for mobility in Catalonia
2. Ex-ante and ex-post assessment
3. Obstacles that can hinder the correct development of a PMU
4. Criteria for facilitating the development, monitoring and
assessment of a PMU
5. Barcelona Provincial Council's proposal for implementing
PMUs
6. Conclusions
10
The Experience of Barcelona Provincial Council in the Assessment of Urban Mobility Plans (PMUs). ECOMM 13-15th May 2009
All the manuals on the preparation of mobility plans agree that assessment is essential at two points of their development:
A) During the preparation of the plan (ex-ante), regarding the selection of the strategies and actions that are finally to be incorporated into the plan.
B) During the implementation of the plan (ex-post), as subsequent monitoring by means of a system of indicators that enable the assessment of the success of the proposed objectives.
2. Ex-ante and ex-post
assessment
When to assess?When to assess?
11
The Experience of Barcelona Provincial Council in the Assessment of Urban Mobility Plans (PMUs). ECOMM 13-15th May 2009
The mobility plan assessment processes currently in place are:
PMU – Foresight The PMU establishes assessment mechanisms by considering different future scenarios and choosing the best.
Urban planningStudies to assess generated mobility (EAMG) enable the determination of the increase in mobility produced by new urban developments and the proposal of corrective measures.
EnvironmentStrategic environmental assessment determines the impact on the environment and possible measures to be taken.
Ex- ante
PMU – renewal 6 years
The Mobility Law dictates that the PMU is to be updated every 6 years. Assessment by means of comparing the indicators established in the design of the plan with the actual results obtained.
Ex- post
-----The methodology for assessing the PMU is not determined during its period of validity (6 years).
Barcelona Provincial Council has started to work on the development and monitoring of the PMUs during their 6-year period of applicability.
2. Ex-ante and ex-post
assessment
Current mobility assessment:Current mobility assessment:
12
The Experience of Barcelona Provincial Council in the Assessment of Urban Mobility Plans (PMUs). ECOMM 13-15th May 2009
Our experience:Our experience:
However, the experience of Barcelona Provincial Council over the last 6 years of mobility plan assessment is centred on the assessment of the processes required to undertake them and especially on the identification of the formal aspects that condition their subsequent implementation. This assessment has been carried out based on:
Surveys of the municipal technicians and politicians that annually attend the mobility conferences.
The assessment of the mobility studies implemented from 2004 to 2008.
The conclusions of the working groups with mobility technicians from the different towns within the province.
The knowledge acquired over the last 6 years from undertaking 35 mobility studies.
2. Ex-ante and ex-post
assessment
13
The Experience of Barcelona Provincial Council in the Assessment of Urban Mobility Plans (PMUs). ECOMM 13-15th May 2009
Contents
1. Barcelona Provincial Council and the current regulatory
framework for mobility in Catalonia
2. Ex-ante and ex-post assessment
3. Obstacles that can hinder the correct development of a PMU
4. Criteria for facilitating the development, monitoring and
assessment of a PMU
5. Barcelona Provincial Council's proposal for implementing
PMUs
6. Conclusions
14
The Experience of Barcelona Provincial Council in the Assessment of Urban Mobility Plans (PMUs). ECOMM 13-15th May 2009
Su
bseq
uen
t
PriorSubsequent
Pri
or
Sub
sequ
ent
Prior Subsequent
Prio
r
To
wn
pla
nn
ing
Autonomous
Communities
PD
M
PGOU
Man
ager
s
Planner
Delim
itation
Indeterminacy
OTimeOWork
OAgreement OTerritory
The 4 obstacles (O) that can hinder the development of PMUs
3. Obstacles that can hinder the correct development of a
PMU
15
The Experience of Barcelona Provincial Council in the Assessment of Urban Mobility Plans (PMUs). ECOMM 13-15th May 2009
Obstacle 1. The lack of an agreement that determines the legality, the preparation procedure and the funding mechanisms of the PMUs.
Subsequent
Pri
or
To
wn
pla
nn
ing
Autonomous
Communities
TAgreement
PMUs have no legal consideration, which means that nothing determined within them is binding.
Mechanisms to coordinate urban development and mobility plans are not established.
There is no stable framework for funding a mobility plan’s proposals.
3. Obstacles that can hinder the correct development of a
PMU
16
The Experience of Barcelona Provincial Council in the Assessment of Urban Mobility Plans (PMUs). ECOMM 13-15th May 2009
Obstacle 2. The lack of determinacy on the territorial front that urban mobility plans must include.
PD
M
PGOU
Su
bseq
uen
t
Prior
Delim
itation
Indeterminacy
TTerritory
From the territorial point of view, the study scope of the Urban Mobility Plan is the functional town, given that it covers a territory with interdependent mobility.
From the point of view of the town, the study scope of the mobility plan is the municipal area, given that its management is more dynamic.
3. Obstacles that can hinder the correct development of a
PMU
17
The Experience of Barcelona Provincial Council in the Assessment of Urban Mobility Plans (PMUs). ECOMM 13-15th May 2009
Obstacle 3. The lack of a deadline for approving PMUs (sine die obligation).
Subsequent
Prio
r PD
M
PGOU
TTime
The Mobility Law does not determine deadlines for the councils to start or approve their PMUs.
Limited development of the PMUs (3 of 56) in the province of Barcelona.
The execution time of a PMU is long (2 years), which makes it difficult to obtain results in one political legislature.
It is advisable to undertake a PMU after the implementation of the Master Mobility Plan (PDM) of the region and before the implementation or review of urban development and planning.
3. Obstacles that can hinder the correct development of a
PMU
18
The Experience of Barcelona Provincial Council in the Assessment of Urban Mobility Plans (PMUs). ECOMM 13-15th May 2009
Obstacle 4. The lack of experience and knowledge when faced with a new work method for planning and managing local mobility.
Sub
sequ
ent
Prior
PGOUM
anag
ers
Planner
TWork
Sustainable mobility is a relatively new concept (10 years) and a great deal of training is required for technical and political teams.
The political leadership of the PMU is a key aspect of its development (mainly due to the lack of regulatory powers).
Coordination of the different departments and administrations is required for the correct development of the plan.
3. Obstacles that can hinder the correct development of a
PMU
19
The Experience of Barcelona Provincial Council in the Assessment of Urban Mobility Plans (PMUs). ECOMM 13-15th May 2009
Contents
1. Barcelona Provincial Council and the current regulatory
framework for mobility in Catalonia
2. Ex-ante and ex-post assessment
3. Obstacles that can hinder the correct development of a PMU
4. Criteria for facilitating the development, monitoring and
assessment of a PMU
5. Barcelona Provincial Council's proposal for implementing
PMUs
6. Conclusions
20
The Experience of Barcelona Provincial Council in the Assessment of Urban Mobility Plans (PMUs). ECOMM 13-15th May 2009
Su
bseq
uen
t
PriorSubsequent
Pri
or
Sub
sequ
ent
Prior Subsequent
Prio
rP
ub
lic/p
riva
te
Sh
ort / m
id
term
Long
term
pri
vate
public
Sp
ecial plan
PGOU
PProgrammePBudget
PPact PPlan
Public/privateThe 4 provisions (P) that can facilitate the development of PMUs
4. Provisions for facilitating the development, monitoring and assessment of a PMU
21
The Experience of Barcelona Provincial Council in the Assessment of Urban Mobility Plans (PMUs). ECOMM 13-15th May 2009
Provision 1. The formalisation of pacts for committing all the agents involved to the preparation and management of the mobility plan.
Subsequent
Pri
or
Pu
blic
/pri
vate
PPact
Public/private Creation of coordination and agreement spaces:
a) On the political level: Municipal Mobility Commission
b) On the technical level: working group on mobility
c) On the social level: Local Mobility Council
4. Provisions for facilitating the development, monitoring and assessment of a PMU
Constitution of Granollers Mobility Council. 2007
22
The Experience of Barcelona Provincial Council in the Assessment of Urban Mobility Plans (PMUs). ECOMM 13-15th May 2009
Provision 2. The incorporation of the criteria and determinations of the PMU in municipal urban development and planning instruments.
Su
bseq
uen
t
Prior
Sp
ecial plan
PGOU
PPlan
Inclusion of mobility proposals in the municipal urban development plans of the town to take advantage of their greater regulatory power (they are compulsory). Mobility planning must be undertaken, then, prior to urban development and planning.
The dimensioning and hierarchy of the different mobility networks (pedestrian, bicycle, public transport, private cars) must guide and define the uses of each street in connection with urban development criteria.
4. Provisions for facilitating the development, monitoring and assessment of a PMU
23
The Experience of Barcelona Provincial Council in the Assessment of Urban Mobility Plans (PMUs). ECOMM 13-15th May 2009
Provision 2. The incorporation of the criteria and determinations of the PMU in municipal urban development and planning instruments.
4. Provisions for facilitating the development, monitoring and assessment of a PMU
Basic network
Secondary network
Neighbourhood network
Basic network
Local network
Neighbourhood network
Scope of special planOld centre
Preferred pedestrian routes
FUTURE CIRCULATION PLAN
24
The Experience of Barcelona Provincial Council in the Assessment of Urban Mobility Plans (PMUs). ECOMM 13-15th May 2009
Provision 3. The preparation of the PMU Action Programme (6 years) and the approval of the work plan of the first year.
Subsequent
Prio
r
Sh
ort/m
id
term
Long
term
PProgramme
The programme of actions of an Urban Mobility Plan must determine the agents responsible for carrying out each action and, if possible, the commitment of these agents should be agreed.
It is advisable for the town council to approve an annual programme of actions in order to enable better monitoring of the plan.
The programme must be ‘open’ in order to facilitate the incorporation of changes to the proposals if new needs or opportunities arise throughout the six-year period.
4. Provisions for facilitating the development, monitoring and assessment of a PMU
25
The Experience of Barcelona Provincial Council in the Assessment of Urban Mobility Plans (PMUs). ECOMM 13-15th May 2009
Provision 3. The preparation of the PMU Action Programme (6 years) and the approval of the work plan of the first year.
4. Provisions for facilitating the development, monitoring and assessment of a PMU
The mobility plan of the Autonomous University of Barcelona (UAB) determines the percentage to be contributed by the different agents involved.
DPTOP
49%
Municipal
support/ADIF
9%
Town councils
4%
Businesses
and others
3%
UAB
35%
Cost estimate: €22 M
26
The Experience of Barcelona Provincial Council in the Assessment of Urban Mobility Plans (PMUs). ECOMM 13-15th May 2009
Sub
sequ
ent
Prior
Pri
vate
Public
PBudget
Provision 4. The establishment of the budgetary programming instruments of the PMU to fund the infrastructure and transport services.
It is necessary to assign agreed funding sources to the budgetary actions proposed in the mobility plan.
The mobility plan will give rise to public transport service plans and infrastructure investment programmes.
4. Provisions for facilitating the development, monitoring and assessment of a PMU
27
The Experience of Barcelona Provincial Council in the Assessment of Urban Mobility Plans (PMUs). ECOMM 13-15th May 2009
Contents
1. Barcelona Provincial Council and the current regulatory
framework for mobility in Catalonia
2. Ex-ante and ex-post assessment
3. Obstacles that can hinder the correct development of a PMU
4. Criteria for facilitating the development, monitoring and
assessment of a PMU
5. Barcelona Provincial Council's proposal for implementing
PMUs
6. Conclusions
28
The Experience of Barcelona Provincial Council in the Assessment of Urban Mobility Plans (PMUs). ECOMM 13-15th May 2009
PMU implementation
• Technical assistance
• Economic cooperation
• PMU monitoring
PMU manager training
Local mobility planning
and management courses
• Local mobility conferences
Network management
Network of urban mobility
plan managers
(MOBAL NETWORK)
Barcelona Provincial Council – Infrastructure and Mobility Services Division
Town councils in the province of Barcelona
A B C
Scope of cooperation and assistance
PROVINCIAL COUNCIL – TOWN COUNCIL AGREEMENT
5. Barcelona Provincial Council's proposal for implementing urban mobility plans
29
The Experience of Barcelona Provincial Council in the Assessment of Urban Mobility Plans (PMUs). ECOMM 13-15th May 2009
A) A) Implementation of urban mobility plansImplementation of urban mobility plans
TECHNICAL ASSISTANCE – Barcelona Provincial Council provides advice and technical assistance for the development of a sustainable mobility plan.
COORDINATION – Foster the creation of an internal commission within the town council to facilitate coordination between mobility and urban planning.
PARTICIPATION – Foster the participation of citizens through the creation of the Municipal Mobility Council and the preparation of a citizen participation plan. Citizen participation must go hand in hand with development.
CO-FUNDING – Barcelona Provincial Council contributes part of the cost of the PMU, and the town council contributes the rest. Shared responsibility with the town council.
FUNCTIONAL TOWN – The territorial scope of reference must be the functional town in the analysis and diagnosis, whereas the proposals are carried out on a municipal level but in a coordinated manner (example: Granollers).
5. Barcelona Provincial Council's proposal for implementing urban mobility plans
30
The Experience of Barcelona Provincial Council in the Assessment of Urban Mobility Plans (PMUs). ECOMM 13-15th May 2009
B) B) Training of urban mobility plan managersTraining of urban mobility plan managers
By means of the agreement with the town councils, free training is provided to the technicians of the towns developing urban mobility plans.
5. Barcelona Provincial Council's proposal for implementing urban mobility plans
31
The Experience of Barcelona Provincial Council in the Assessment of Urban Mobility Plans (PMUs). ECOMM 13-15th May 2009
5. Barcelona Provincial Council's proposal for implementing urban mobility plans
B) B) Training of urban mobility plan managersTraining of urban mobility plan managers
32
The Experience of Barcelona Provincial Council in the Assessment of Urban Mobility Plans (PMUs). ECOMM 13-15th May 2009
C) C) Network management: MOBAL networkNetwork management: MOBAL network
In 2007, the MOBAL network was developed. It is a web portal on the subject of local mobility and its objectives are as follows:
MUNICIPAL SUPPORT – Creation of a permanent technical support space for the towns developing mobility plans.
COORDINATION – Facilitation of the information (mainly mobility plans already implemented) that enables better coordination of the actions undertaken by a town council.
KNOWLEDGE TRANSFER – Fostering of the transfer of knowledge based on the exchange of good practices and specific technical documentation.
MOBILITY MANAGER – Strengthening the role of the local mobility manager.
NETWORK CREATION – Creation of a network of the different local mobility managers in the province with the incorporation of the other agents involved (companies, universities, etc.).
5. Barcelona Provincial Council's proposal for implementing urban mobility plans
33
The Experience of Barcelona Provincial Council in the Assessment of Urban Mobility Plans (PMUs). ECOMM 13-15th May 2009
C) C) Network management: MOBAL networkNetwork management: MOBAL network
http://xarxamobal.diba.cat
430 registered users
120 companies
3 years in operation
15,000 visits per year
Municipal information
Mobility plans
Accessibility plans
Technician directory
Good practices
Company directory
Job vacancies
Search for financing
News
Agenda
Technical reports
Training
Monthly newsletter
5. Barcelona Provincial Council's proposal for implementing urban mobility plans
34
The Experience of Barcelona Provincial Council in the Assessment of Urban Mobility Plans (PMUs). ECOMM 13-15th May 2009
Contents
1. Barcelona Provincial Council and the current regulatory
framework for mobility in Catalonia
2. Ex-ante and ex-post assessment
3. Obstacles that can hinder the correct development of a PMU
4. Criteria for facilitating the development, monitoring and
assessment of a PMU
5. Barcelona Provincial Council's proposal for implementing
PMUs
6. Conclusions
35
The Experience of Barcelona Provincial Council in the Assessment of Urban Mobility Plans (PMUs). ECOMM 13-15th May 2009
NEED FOR PMU ASSESSMENT METHODOLOGIES – In 5 years we will have 56 PMUs, which will all need to be assessed and monitored. We have to think about how to do this.
EX-POST ASSESSMENT – We know how to carry out ex-ante assessment (EAMG and strategic environmental assessment), but we have no ex-post experience.
KEY ELEMENTS – For good monitoring and assessment we need a good plan and good management methodology: trained technicians + network. Barcelona Provincial Council must assume the role of facilitator of these three conditioning factors.
COMMITMENT – Forming an agreement with the town councils before starting the Urban Mobility Plan enables us to establish the bases for fostering a permanent and long-term work dynamic. It also enables us to avoid drafting costly documents that become useless due to a lack of coordination with other public policies established by the town council and other public administrations.
6. Summary and Conclusions
36
The Experience of Barcelona Provincial Council in the Assessment of Urban Mobility Plans (PMUs). ECOMM 13-15th May 2009
The Experience of Barcelona Provincial Council in the Assessment of Urban Mobility Plans (PMUs)
Paloma Sánchez-ContadorHead of the Technical Office for Mobility and Local Road Safety, Barcelona Provincial Council
Informe:
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