Urban planning StrategieS International Transportation (67) 1 | 2015 11 New Towns and transportation New Town Hashtgerd in the Karaj/ Tehran agglomeration — Integrated urban and transportation planning for GHG emission reduction in the Young Cities project Population growth, metropolitan areas, transportation network One of the strategies for solving the problems of population growth is building New Towns. These New Towns should firstly discharge the cities with large agglomerations. A secondary goal is the restructuring and decentralization of the population in the metropolitan areas. Based on this, New Towns will be planned and built in Iran. The Iranian leading partners are the Building and Housing Research Center (BHRC) and the New Towns Development Corporation (NTDC). The main objective of the Young Cities project is to find out whether the development of New Towns is a reasonable strategy to slow down the population growth in urban agglomerations. Author: Wulf-Holger Arndt T he largest of the thirty planned New Towns in Iran is Hashtgerd, situated 65 km northwest of the megacity of Tehran and 30 km west of the megacity of Karaj (igure 1). The Tehran region is the economic, political, and cultural center of Iran and home to close to 13.8 million residents - 20 % of the Iranian population [PopulationData.net 2013]. The region holds 70 % of Iran’s economic and inancial powers [Fanni 2006]. The research project outlines the development of the planned New Town Hashtgerd in the Tehran/ Karaj agglomeration and implements research results in the form of pilot projects within the New Town. At Technische Universität Berlin, the Departments of City and Regional Planning, Architecture, Civil Engineering and Transportation Planning are involved in this project. The New Town of Hashtgerd, located to the south of the Alborz Mountain Range next to the Tehran Qazvin Highway, was initially intended to accommodate 500,000 people. The massive shortfall in reaching the New Town’s population goals - combined with the necessity to adapt to recent demographic, social and economic changes in the Tehran/ Karaj region - led to a revised comprehensive plan for 2005 onwards, which also extended the targeted inal population number to 660,000 [Fathejalali/ Khodabakhsh/ Pakzad 2012]. In 2013, the number of inhabitants had reached 30,000. The distribution of the settlement areas was elaborated on the basis of the theory of central places and with the goal of ensuring the optimal provision of central services and goods. The transportation network as originally planned was intended to serve only the needs of motorized individual transport (igure 2). Although the revised comprehensive plan briely describes the planned extension of the Tehran metro to Hashtgerd and mentions the need for a public bus system, the main emphasis lies on the optimal distribution of motorized traic entering and leaving the city through one of the big gates of the Tehran-Qazvin highway. Inside the city, the planned and already partly constructed main arteries in north-south and east-west direction form a rectangular pattern. The foreseen facilities for slow modes and environment-friendly means of transport - such as walking and cycling - only meet minimum standards. growing traic and increasing traic-based gHg emissions In many developing countries with their rapidly increasing motorization rates the main coping strategy for the emerging problems is to expand the street infrastructure. Today, Iranian cities are facing similar problems: In 1997, already 20 % of all GHG emissions stemmed from Tehran’s urban transport sector [PLS Ramboll Management 2003]. Furthermore, between 1996 and 2002, the number of vehicle kilometers traveled in congested traic rose from about 21 % to 27 % [World Bank 2010]. The previous master plan for New Town Hashtgerd also prioritized car traic. The results of a car-oriented policy are relected in Iran’s petrol consumption balance (see Figure 1: Tehran/ Karaj urban growth center Source: Fathejalali/ Khodabakhsh/ Pakzad 2012: 24 StrategieS Urban planning International Transportation (67) 1 | 2015 12 figure 3). The share of transport in petrol consumption kept rising steadily, and in 2005 accounted for over 50 % of the total petrol products consumed. traic strategies In line with the strategy aimed at reducing traic-related CO 2 emissions, a mixed-use approach was developed as the main element of an integrated urban transportation concept for Hashtgerd. Thus there is a project dimension aimed at elaborating an integrated transport concept for a 35-ha pilot area (Shahre Javan). The guiding principle for this is to consider the interrelations between spatial structure and traic demand using innovative transport simulation software such as VISEVA/ VISUM. The project was the irst to use an enhanced version of the model, developed by partners at Technische Universität Dresden (TU Dresden), for the optimization of a traic-reduced spatial structure. A high-density and low-rise concept was designed for the realization of the mixeduse approach (see figure 4). The gross population density in Iran’s towns is about 100 to 110 persons per ha. The Iranian New Towns aim for a higher average gross density of about 150 persons per ha. Hashtgerd New Town meets this target with a gross population density of 147.98 persons per ha. The gross population density for the pilot area (Shahre Javan Community) is more than 200 persons per ha. More intense land use promotes efective public transport and more eicient energy supply infrastructure. However, a purely quantitative approach is not satisfactory since it does not shed light on the living situations of the inhabitants or on the quality and attractiveness of the urban layout and the public realm. This compact and mixed-used urban layout is a precondition for reducing traic and fostering (eco-friendly) mobility. The main approach focuses on a shift of mobility routines and the support of environmentfriendly means of transport, through the creation of a modern, eicient public transport network, the provision of information on alternative ways of mobility, and diferent measures that limit the attractiveness of conventional, motorized individual traic. The special situation of Hashtgerd as a New Town is a chance to strongly inluence the transport behavior of the new inhabitants and promote the shift towards sustainability. Key elements of the transport concept are: • support of the mixed land use approach through adequate mobility systems • accessibility (social and area-related) • integration of all transport means in urban and transport planning • support of environment-friendly means of transport (slow modes, public transport) • iltered permeability of spaces and coequality of transport modes regarding their environmental impact (traic management) • a lexible and adaptable transport and mobility planning approach • prevention of extraneous traic from moving through residential areas • eforts aimed at increasing traic safety • participation of all stakeholders in the planning process • attention paid to disaster management In pursuit of these goals and sub-goals, the transport strategy of the Shahre Javan Community pilot project focuses on reducing travel distances and initiating a beneicial shift in both transportation routines and vehicle choices. In order to achieve this, “push” and “pull” strategies are combined with hard and soft policy measures. Figure 5 shows a choice of possible measures. On the city-wide level, an integrated public transport system (concept) is envisaged for Hashtgerd as a major framework. Its main task is to organize the hierarchically structured public transport system, consisting of light rail transit (LRT) or bus rapid transit (BRT), city bus lines as well as a neighborhood bus (midibus or minibus) sys- 0 50 100 150 200 250 300 350 400 450 1974 - 75 1976 - 77 1978 - 79 1980 - 81 1982 - 83 1984 - 85 1986 - 87 1988 - 89 1990 - 91 1992 - 93 1994 - 95 1996 - 97 1998 - 99 2000 - 01 2002 - 03 2004 - 05 Mboe Year Non-energy uses Agriculture Transport Industry Residential & Commercial Figure 2: New Town Hashtgerd Photos: Arndt Figure 3: Consumption of petroleum products by sector, Iran 1974 to 2005 Source: Ministry of Energy Iran, Energy Planning Department, 2008 Figure 4: Urban layout of the 35-ha pilot area (Shahre Javan) and small-scale mixed-use areas in the neighborhoods Source: YoungCities project Urban planning STRATEGIES International Transportation (67) 1 | 2015 13 tem. The often underestimated soft policies (e.g. information packages, campaigns) should provide consumers with adequate information about the public transport system, which also serves the city of Old Hashtgerd. Following the Young Cities project setup, the key target of the public transport approach is to support energy-eicient and CO 2 -reducing mobility routines. Furthermore, the plan allows for an appropriate and easily accessible public transport system that will enable also small social groups to participate in local and regional social activities. The third aim is the spatial, horizontal integration of the 35-ha pilot area as well as the settlements of Old Hashtgerd and Hoseynabad into the regional public transport network. The approach consists of four major action clusters formed by hard and soft policies and push and pull measures. The soft policies constitute a kind of mobility management, with the aim of informing and supporting the regional population about environment-friendly ways of mobility and the public transport system itself. In contrast, hard policies form the physical basis of eco-mobility encouragement, such as the development of attractive public transport, footpath and bicycle systems. In this part of the strategy, pedestrians, cyclists and shared transport are prioritized, while motorized traic is of secondary importance. Basic functions and accessibility are maintained for service, delivery and rescue purposes, as well as for limited individual motorized traic. The reduction of car trafic will be achieved by limiting the number of available parking lots. For the pilot area, a parking lot factor of 0.2 is planned. Mobility management and public transport approach The chief target of the transportation concept is to establish energy-eicient and CO 2 -reducing mobility routines that will enable all social groups to participate. The concept’s purpose is to reach these targets through a mix of “push” and “pull” strategies based on hard and soft policies to force the shift of transport routines and vehicle choice in the intended direction. The core element of soft “pull” measures is a form of mobility management and contains measures such as information and communication management, organizing services and coordinating activities of diferent partners. This management system aims to inluence the travel choice, destination and location decisions of inhabitants, companies and other groups, for instance tourists. It provides information to these target groups and receives feedback from the traic users, which lows back into the planning system. Its aims are irstly to coordinate all of the authorities and eforts regarding environmental mobility - for example, reduction of transport distances, and the use of footpaths, bicycles and public transport. Secondly, it informs the regional population about environment-friendly ways of mobility and supports the establishment of sustainable mobility routines (see igure 6). The suitable time for a mind shift and for building new mobility routines is during the change of residence. In that phase of (a person’s) reorientation, a special element of the mobility management - the mobility package for new inhabitants - will provide information and guidance about environmentfriendly mobility (eco-mobility) and give incentives to use public transport (PT) and make a change in lifestyle. Since individuals develop their future mobility routines during a short reorientation phase after the move to a new location (relocating), instruments intended to push this process towards eco-mobility are included in the transport concept. The mobility management primarily focuses on the change in mobility routines, since new residents will largely originate from Greater Tehran or other urban agglomerations that rely heavily on individual motorized trans- ● limitation of parking space ● exaltation of MT trip costs through road design measures (e.g. speed humps, bottlenecks) ● access limitations through street widths layout (one-way systems) ● ltered permeability of space ● use-based apportionment of external costs (eco -fueltax) ● exaltation of MT trip costs through access limitations, speed limitations ● city / highway toll ● pedestrian / PT privileging road way and path design (e.g. wide footpath and - ways, high number of crossings, barrierfreedom) ● high densed foot path and PT network ● high density of PT -stops ● mobility management ● mobility package ● information on transport ● infrastructure ● campaigns integrated measures Mobility Management With Focus on Organisation and Coordination Mobility offices Municipality Inhabitants Special Target Groups / Destinations Economy PT-Carrier Mobility Package Advice Ticketing Customer Service Campaigns Workshops Transport Adviser Workshops Internet Portal Municipality City Marketing Move Tourism Public Relations Figure 6: Mobility management concept for Hashtgerd New Town Source: Arndt, Döge Figure 5: Possible instruments for implementing the strategy’s guiding principle (hard policies on the left, soft policies on the right push measures above, pull measures below) Source: Arndt 2011: 122 STRATEGIES Urban planning International Transportation (67) 1 | 2015 14 port. Soft policy measures are one part of the strategy to support this shift of mobility routines towards more eco-mobility. The key instrument in this strategy is a “mobility package” for new residents intended to make targeted use of the change of residence and the associated reorientation and ‘reset’ of their habitual choice of transport mode. This instrument aims to promote sustainable transport routines by helping with PT orientation and recommending destinations at short travel distances. The package includes information, services and incentives - for instance, a test ticket for the public transport system - needed for a modal shift away from individual motorized transport. The hard policies establish the preliminary design of the public transport system. With the ultimate target being further optimization, a irst approach was drafted and integrated into the transportation model. The draft follows certain criteria: • high capacities on the main arteries from north to south • additional city-wide ’feeder’ bus system on arteries from east to west • small buses connecting local neighborhoods • throughout the city, the nearest PT stop- should never be more than 300 m away • integration of a common taxi system • high-capacity connection to the railway station and the planned metro station, providing a fast commuter connection to Tehran • integration of Old Hashtgerd and the industrial belt to the north of it • incremental expandability The result was a preliminary approach representing the maximum version, which will be further optimized using the results of the transportation model (figure 7). This irst approach consists of the following public transport ofers: 1. Tram (LRT)/ BRT, capacity: 2,000 - 30,000 passengers/ h, catchment area: <-300 m 2. City Bus, capacity: 1,000 - 4,000 passengers/ h, catchment area: 250 m - 300 m 3. Local Bus, midibus/ minibus, catchment area: < 250 m The integration of these three services in a public transport network combines high accessibility in the neighborhood with low distances to the residential area and a high system speed. Compared to bus service, light-rail transit is inlexible (separate rail network), but Figure 8: CO 2 emissions related to parking lot factor. 0 = no parking lots; 0.1 = number of parking lots equals 10% of the population, etc. Graphic: Arndt Cars Public Transport Others All Besançon Parking lot guaranteed Parking lot not guaranteed 90% 46% 6% 29% 4% 25% 100% 100% Grenoble Parking lot guaranteed Parking lot not guaranteed 94% 53% 3% 29% 3% 18% 100% 100% Toulouse Parking lot guaranteed Parking lot not guaranteed 99% 41% 1% 24% 0% 35% 100% 100% Bern Parking lot guaranteed Parking lot not guaranteed 95% 13% 3% 55% 2% 32% 100% 100% Geneva Parking lot guaranteed Parking lot not guaranteed 93% 36% 3% 25% 4% 39% 100% 100% Table 1: Impacts of parking provision Source: Mezghani 2006 Figure 7: Accessibility patterns of public transport stops in the Shahre Javan Community Red: Tram (LRT)/ BRT Green: City Bus Blue: Local Bus Source: Arndt, Döge 2013: 165 Urban planning STRATEGIES International Transportation (67) 1 | 2015 15 produces less CO 2 , consumes less energy, has lower lifecycle costs and higher capacity. For these reasons, the bus rapid transit on separate lanes is the irst high-capacity option and can be developed in response to growing demand from public transportation users. It can subsequently be substituted by light rail systems using the same lanes. Parking concept with reduced parking lot factor The provision of parking lots has a strong impact on the modal split. A high availability of parking space located closed to the dwellings supports high car use. Table 1 shows an example of this interrelation between public transport share and parking lot supply. The demand for public transport is higher if parking lots are not guaranteed. The Iranian guidelines for New Towns specify one parking lot per dwelling in housing areas as a minimum. This would create an oversupply of parking lots and strong support for car use. The motorization rate in Hashtgerd New Town in 2027 will reach 125 cars per 1,000 inhabitants [Paykadeh 2011]. Based on a four-person household, this leads to 50 % household car owners and a parking lot factor of 0.5 parking lots per dwelling. To promote public transport use and CO 2 reduction, a decrease in car ownership is needed, and the goal should be 20% household car owners. This would also support the modal split in the comprehensive plan for Hashtgerd New Town. Thus, a parking lot factor of 0.2 is an initial parameter of the transport concept for the 35-ha pilot area in Hashtgerd New Town. Figure 8 compares the CO 2 emissions impact of diferent parking lot factors. It shows the steep decrease of CO 2 emission through the reduction from 1.0 to 0.2 of the parking lot factor. A conventional parking lot demand with factor 1.0 parking lots per dwelling in the Hashtgerd 35-ha pilot area would lead to extensive parking provision, despite a compact urban form. The parking lots would cover all wetlands alongside the access roads and some parts of the residential building areas. All of these aspects show that a maximum parking lot factor should not be higher than 0.2 parking lots per dwelling. Transportation model using VISEVA+/ VISUM software In cooperation with TU Dresden, an advanced version of the VISEVA transport model was used to calculate a traic-optimized settlement structure for the irst time as a secondary output (VISEVA+). The results were used for the further spatial development of Hashtgerd New Town with the aim of minimizing traic. The integration of so-called paratransit services - for example, diferent taxis types - was a special adaptation of the model for its use in Iran. Based on three scenarios, CO 2 emissions were calculated using the traic CO 2 -emissions tool for emerging countries (TECT), which was developed in the scope of the project. The results show that an implementation of the transportation concept as designed by Young Cities could reduce CO 2 emissions by about 10% (igure 9). Implementation and financing In 2012, the comprehensive plan for the 35-ha pilot area, including the transportation concept, was approved by the responsible State Commission 5. An investor for the realization of the entire urban concept has already been found. Thus, the implementation of the transportation concept could start in 2014. In February 2014, the Tehran Urban Planning and Research Center has expressed its interest in adapting the Hashtgerd concept for two districts in Tehran. Sustainability should be a main criterion for location choice, and should be kept in mind from the beginning of the urban and transportation planning, as the experiences in the Young Cities project show. ■ REFERENCES Arndt, W.-H. (2011): Integrated Transportation Planning for Energy Reduced Traic. In: Schäfer, R. et al. (Eds.): Accomplishments and Objectives: Young Cities Research Papers Series. Vol. 02. Berlin 2011 Arndt, W.-H. et al. (2013): CO 2 -Balance for Buildings and Transportation in Hashtgerd New Town and Tehran Region. Young Cities Research Briefs (Band 13). Berlin 2013 Arndt, W.-H., Döge, N. (2013): Integrated Transportation Approach for the Shahre Javan Community. In: Pahl-Weber et al. (Eds.): Urban Challenges and Urban Design Approaches for Resource-Eicient and Climate-Sensitive Urban Design in the MENA Region. Young Cities Research Paper Series Vol. 5. Berlin 2013 Fanni, Z. (2006): Cities and urbanization in Iran after the Islamic revolution. In: Cities. Vol. 23, Issue 6, pp. 404-11 Farshad, F. (2013): Hashtgerd Stakeholder Analysis, Young Cities. Analysis of Relevant Actors in the Planning and Development Process of Hashtgerd New Town. Young Cities Research Briefs. Vol. 8. Berlin Fathejalali, A./ Khodabakhsh, P./ Pakzad, J. (2012): Study Area, Vision, and Goals. In: Pahl-Weber et al. (Eds.): Young Cities Research Paper Series. The Shahre Javan Community Detailed Plan. 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(2010): The report as Iran’s second National Communication to UNFCCC, National Climate Change Oice at Department of Environment on behalf of the Government of the Islamic Republic of Iran. Tehran World Bank (2010): Sectoral Notes: Middle East and North Africa Regional Annual Meetings 2010 Worldstat (2014) http: / / de.worldstat.info/ Asia/ Iran, access: 2 Feb 2014 Wulf-Holger Arndt, Dr.-Ing. Head of research unit “Mobility and Space”, Center for Technology and Society, Technische Universität Berlin, Berlin (DE) wulf-holger.arndt@tu-berlin.de Figure 9: CO 2 balance of all scenarios in comparison