Scope for action and framework conditions for the transport transition

“30 km/h in the city center? We don't have the authority for that.” - “More cycle paths? We don't have the budget for that.” You often hear these sentences when it comes to the traffic turnaround in cities and municipalities. Many local authorities are ready to actively shape the transition to clean, safe mobility, but they face obstacles that are often beyond their control - but not always. However, thanks to new legal frameworks such as the amendment of the StVO and alternative financing models, the first steps are possible.

In view of the debates surrounding the Deutschlandticket, it is clear that transport funding remains one of the biggest challenges for local authorities. Burkhard Horn describes the complicated funding structures as a “funding jungle”. Jan Strehmann, Head of Department for Mobility and Economy at the German Association of Towns and Municipalities, adds: “However, the biggest challenge lies in the inadequate financial resources and thus the de facto inability of many municipalities to act. This is particularly evident in the lack of investment in transport infrastructure. We have calculated that we are seeing a loss in value of 13 million euros per day in municipal infrastructure. The traffic turnaround will not succeed with dilapidated roads, bridges and train stations.”

However, there are alternative financing options. One promising approach to financing the transport transition at municipal level is beneficiary financing. This concept envisages that not only the direct users of local public transport are asked to pay, but also those who benefit indirectly from well-developed local public transport. These include, for example, property owners whose properties increase in value as a result of better connections, or companies that benefit from increased accessibility. Instruments such as development charges, extended parking space management or tourism taxes can be used here.

A 2021 study by civity Management Consultants and BBG und Partner emphasizes the importance of this third financing pillar for public transport and highlights that development charges and the expansion of parking space management and tourism levies in particular have great economic and transport potential. However, the legal framework in Germany is currently still limited, which is why the study calls on the federal states to act in order to give local authorities more leeway in the implementation of such financing instruments.

Baden-Württemberg is planning to introduce a mobility pass as a new financing instrument for local public transport. This instrument is intended to enable local authorities to generate additional funds for the expansion of local public transport by charging residents or car owners. In return, the payers receive a credit of the same amount, which can be used to purchase public transport season tickets, such as the Deutschlandticket. The legal basis for this is currently being created as part of the state mobility law, but it has not yet been introduced.

Another important lever for the traffic turnaround in municipalities is the current legal framework in the form of the new road traffic law. There is a consensus that this is an important first step towards municipal autonomy. Horn comments: “This is a helpful first step, but in many respects it is still not enough.”

Strehmann is also does not consider the changes to be sufficient: “The ‘special proof of danger’ of the StVO could have been omitted more comprehensively than just in the exceptional cases that have now been added. A little more trust in the problem-solving skills of local authorities would have done the reform good. However, as soon as the pending administrative regulation on the StVO is published, we will see measures in many municipalities as a result of this reform.”

However, Horn emphasizes: “If you want to promote the transport transition as a municipality, you already have options that many cities are not yet making sufficient use of. It's easy to say: 'We're not actually allowed to yet, we want to, but we can't'. Instead of hiding, it would be sensible and important to see what is already possible with a little creativity.”

Die Debatte erreichte im Sommer 2024 ihren Höhepunkt, als der Stadtrat das ursprüngliche Konzept der fast autofreien Innenstadt zugunsten eines Kompromisses kippte. Dieser sieht weiterhin 4.000 Parkplätze und kostenloses Parken ab 18 Uhr vor. Während die Befürworter:innen der Verkehrswende dies als Rückschlag betrachteten, fühlten sich Gegner:innen bestätigt.

In addition to legal and financial hurdles, social resistance is hampering the progress of the traffic turnaround. One example is Hanover, where the plan for a car-free city center sparked massive controversy. Mayor Belit Onay planned to make the city centre largely car-free by 2030 in order to prioritize pedestrians, cyclists and public transport. However, the plan met with considerable resistance - both from politicians and the general public.

The debate reached its climax in the summer of 2024 when the city council overturned the original concept of an almost car-free city center in favour of a compromise. This still provides for 4,000 parking spaces and free parking from 6 pm. While supporters of the traffic turnaround saw this as a setback, opponents felt vindicated.

Crises such as the pandemic or the war in Ukraine have diverted attention away from long-term issues such as the transport transition. Horn explains: “The resentment is understandable when you attack people's routines in already unsettled times.”

How can the transport transition still succeed? Strehmann emphasizes: “Early, transparent and fact-based communication is essential. The local press can help to explain the background and convey positive images of the future. Ultimately, it's often about concerns that shouldn't be ignored.”

Horn adds that a “reason-driven transport transition discourse” instead of apocalyptic scenarios could help to win people over to climate-friendly mobility.

The transport transition remains a mammoth task - but it can succeed with creative approaches, courageous reforms and better communication.