Parking Policy in Bern, Switzerland
The case study reported here is taken from “Parking Policy Measures and their Effects on Mobility and the Economy. Swiss Case Studies” prepared by Ecoplan for the COST (European Co-operation in the Field of Scientific and Technical Research) project Parking Policy Measures and their Effects on Mobility and the Economy, number 342. The report was produced in 2001.

Context
As in other major cities, Bern has experienced an increase in traffic volumes and the associated negative impacts, which has shift transport policy away from predict and provide towards demand management. The main pillars of current transport policy in Bern are public transport and parking policy, which is considered “the most important policy measure in order to achieve a substantial reduction of traffic volume within the urban area of Bern and especially within the city” (European Commission, 2001a). A reduction in traffic volume of 20% was desired from transport policy in 1992. The guiding principles of the parking policy are:

• “to restrict the quantity of provided public and private parking spaces in order to reduce car use selectively
  
• to follow a parking fee strategy in order to reduce motorised private transport and to promote the switch to public transport and the use of bicycles instead.”
  (European Commission, 2001a)

Parking policy measures in Bern are summarised in “Parking Policy Measures in the Urban Area of Bern”

Parking Policy Measures in the Urban Area of Bern

*Blue Zones are located in residential areas. On weekdays parking is limited to 60 minutes between 8am and 6pm. Three hour parking is permitted in the interpeak period. In areas with a lot of leisure traffic, restrictions can be extended to weekends. Residents (including businesses within the Blue Zones can purchase a parking permit at a cost of 240 francs per month. Visitors and other users can purchase daily parking permits. New local legislation was required to enact Blue Zones, and as with other parking measures, was subject to initial opposition and appeal from the Automobile Club and some residents, who claimed that the system contradicted federal law. The system was introduced in 1999, including the removal of 10% of public parking spaces.

Parking charges were to be increased from two Swiss francs in the central business district to four and from one franc to two in outer districts, plus the introduction of a one franc charge for park and ride spaces. However, there was significant opposition from the business community. As a compromise, only the charges in residential areas were increased; one day permits rose from 8 francs to 15 and new four hour permit was introduced fro 8 francs. Charges also became applicable 24 hours per day. External costs are not incorporated into the charges, as the necessary increases would be unacceptable in the current climate. It should also be noted that as the increase to four francs for city centre spaces was blocked, the local authority charge remains lower than that for privately operated car parks.

There was also objection to the reduction in number of public parking spaces. The “Action Plan on Air Pollution” of 1992 promoted this, but the political will and legal basis was missing. A compromise was reached in 1997, resulting in a plan to move 154 ground level spaces from the old part of the city underground, to achieve a pedestrian friendly environment. However, objections were raised against enlarging existing subterranean car parks, resulting in no progress.

Objections against limitations on duration of stay are not reported. thus, public spaces in the centre of Bern are subject to severe restrictions to deter car commuters and provide for visitors. Maximum duration restrictions vary between 15 and 60 minutes depending on charges and centrality. Many central spaces are free, but restricted to 30 or 60 minutes.

It should also be noted that the introduction of a traffic management system within the city also included a parking guidance system. The first area-wide parking guidance system in Switzerland was introduced by the operators of private car parks in Bern in 1997. The system was funded by car users through a 0.10 franc per hour increase in charges. One year on, more customers were using car parks, including park and ride facilities on the outskirts, and revenues were higher than expected. The rest of the traffic management system has been blocked due to opposition on cost grounds, although discussions are on going.

More restrictive controls were introduced for visitor parking around the exhibition centres and sports stadium, as the free public transport (for those with tickets) was not enough to dissuade drivers due to the plentiful free parking spaces. Consequently, fees of 5 francs per half day were introduced. Additionally, legislation was introduced to allow the introduction of White Zones with time limits applicable 24h hours a day, seven days a week. In these areas around the exhibition centres and stadium, parking is limited to 60 minutes unless special allowance has been obtained. As with the Blue Zones, residents’ permits can be purchased. A reservation system is also being investigated, such that only those with a pre-paid parking ticket may access spaces.

On the outskirts of Bern, park and ride has become more important as parking restrictions in the centre and residential areas have increased. Park and ride facilities are operated privately (by a community or public transport operator for example) with financial support from the local authority. Support is dependent upon:

• Park and ride facilities minimising the driving distance for car traffic and being located at public transport access points in the surrounding countryside,
  
• Facilities should not compete with local public transport else modal shift to the car may result,
  
• The facilities must be managed in terms of a charging structure, access limitations and surveillance,
  
• New facilities must correspond with the goals of regional planning and transport concepts.

Parking spaces on local authority premises are also subject to regulations:

• Neither civil servants nor visitors have a right to a parking space
  
• A fee is charged for use of a space
  
• The fee should include the costs of land use, maintenance and investment
  
• The fee is reduced if a private vehicle is used for official purposes.

Private non-residential parking is also subject to regulations, but there is also substantial opposition. In some cases, this is from a canton disputing Federal Court decisions, not from private companies. The Federal Court ruled that the Canton of Bern must collect parking fees from the customers of new and existing shopping centres, however, this obligation has been dropped by the Canton. The handbook on “Implementation of Parking Policy Measures” was introduced to persuade organisations of the need for voluntary parking controls and explain how they should be planned, introduced and managed. Whilst shopping centres suffering from the poor image created by significant amounts of search traffic may introduce charges (somewhat unwillingly) the lack of compulsory measures for shopping centres is often used to argue against parking charges on public spaces in the centre of Bern. Indeed, opposition from companies has been less, due to the high opportunity cost they pay for their parking spaces, which is not traditionally passed on to employees. Fritz Studer AG only provide a parking space for employees living outside a certain area (i.e. beyond the reach of public transport), and even then a fee is charged. The more central the car park, the higher the charge. Revenues are used to maintain the car park and promote public transport use amongst employees. Planning regulations are also used to limit PNR around new developments, with the number of spaces more limited where the destination is well served by public transport. These measures are similar to the company travel plans introduced elsewhere.

Impacts on demand and supply
Bern transport polices have resulted in a stabilisation in traffic growth on arterial roads (although not on motorways), with levels below that forecast as in “Traffic Growth in the Urban Area of Bern”. However, it should be noted that the desired 20% reduction had not been achieved by 2001. The parking policy is credited with much of this success, as if a free parking space is guaranteed, 90% of commuters will drive.

Traffic Growth in the Urban Area of Bern

(European Commission, 2001a)

The Blue Zones have been the most successful element of the parking policy:

• Traffic volumes decreased by 15% on average – 14% in the morning peak, 21% in the evening peak and a 13% reduction in the number of vehicles in restricted areas.
  
• Demand for spaces dropped – the average occupancy of parking spaces decreased by 13%. Residents had fewer problems finding a space and search traffic was reduced.
  
• There was displacement of commuters out of residential areas, as in the short run there is little modal shift. Although, where high quality alternatives exist, modal shift does result. In the northern residential district of Bern, the Blue Zone resulted in the occupancy of the nearest park and ride increasing from 150 to 600 spaces on average.
  
• To counteract displacement and encourage modal shift the introduction of Blue Zones in neighbouring areas should be co-ordinated.
  
• Residential areas have become more appealing to shoppers as they can find a space. Around shopping centres a time limit of 60 minutes was introduced for public spaces, thus the Blue Zones have not caused disadvantages for urban retailing compared to shopping centres.
  
• Regular and strict enforcement is necessary for success. High fines should be imposed if time restrictions are abused. In 2001 the fine was 40 Swiss francs, with plans to increase it to 60 over the following five years.

Parking fees applicable to public car parks and spaces around stadium used for large events have been less successful:
· In the central business district charges have barely had any impact on demand as they are not high enough. In some streets, as much as 20% of the traffic is search traffic.
· With regard to spaces around large events, charges had only been in place for 6 months in 2001 and demand for parking spaces was nearly as high as the previous year. It is thought that there may be greater change as time progresses and people become aware of the charges.

It was not possible in 2001 to assess other parking measures due to lack of implementation.

Environmental Impacts
Again these are largely attributable to the Blue Zones. Nevertheless, most people had not perceived a change in the levels of nuisance from air pollution and noise, as illustrated by “Perception of Change in Air Pollution and Noise in Residential Areas with Blue Zones”.

Perception of Change in Air Pollution and Noise in Residential Areas with Blue Zones

(European Commission, 2001a)

Economic Impacts
The city centre parking charges are too low to be having any impact in terms of covering full costs or revenue raising. Similarly, park and ride charges cannot be set high enough to cover costs, as making them significantly higher than city centre parking will dissuade people from using the facilities. However, the Blue Zones are operating at a profit level. Purchase of permits generated 6 million Swiss francs per year, whereas introduction and enforcement costs amount to 2 million Swiss francs. These costs have been reduced through the outsourcing of enforcement to a private company. This resulted in a 20% drop in enforcement costs. Enforcement has also become more effective as a dedicated team can perform regular checks that the police could previously not manage. The surplus generated by the Blue Zones will be used to fund traffic calming measures.

Policy contribution