Green Alternative’s Comments and Recommendations on the Tbilisi Transport Plan

The Tbilisi Transport Plan (TTP), formerly known as the Sustainable Urban Mobility Plan (SUMP), is a crucial document guiding the capital toward sustainable mobility. The plan’s goals and proposed solutions are both realistic and achievable, provided there is sufficient commitment, forming a solid foundation to address the city’s urban mobility challenges effectively.

Green Alternative’s comments stem from a brief presentation of the draft TTP, as the organization has not received the complete document for a comprehensive review. Consequently, our analysis focuses on the elements missing from the presentation rather than on assessments of the detailed measures within the draft itself.

Aligning Transport and Urban Development: Need for Legal Frameworks

Despite the 2019 Tbilisi Land Use Masterplan’s noble vision of creating a compact, well-connected, green, and resilient city, the reality on the ground often starkly contrasts with these principles. Urban development frequently flouts Masterplan restrictions and undermines Tbilisi’s declared Transport Policy. A glaring example is the planned multi-purpose center on Heroes’ Square, which epitomizes this troubling disconnect between policy and practice^[1]URC | Urban Research Center, announcement on the project of a multifunctional center near Heroes’ Square, 19 September 2023 … Continue reading.

The rollout of the TTP/SUMP hinges on reining in unchecked construction and harmonizing urban development policy with mobility reform. Without tackling these issues, the plan’s implementation remains an uphill battle.

The Tbilisi Land Use Masterplan, the capital’s foremost legal document for development, fell short in detailing transport-related aspects due to ongoing studies on the city’s transport network. Elevating the legal status of the Tbilisi Transport Plan (TTP) is crucial for its effective enforcement, making adherence to its principles mandatory. Integrating the TTP with the Land Use Masterplan is imperative to ensure both documents’ restrictions and measures are aligned and enforceable, paving the way for cohesive urban development and transport policy.

Recommendations:

• Tbilisi City Hall should prioritize the seamless integration of development regulation and transport network reform. This can be achieved by expanding the City Masterplan to address sustainable mobility concerns comprehensively. It is imperative to cease breaching the land use restrictions defined by the Masterplan.
• The TTP should be granted legal efficacy to ensure its principles are enforceable. A viable solution is to integrate the TTP with the existing legally binding Land Use Masterplan. This integration should be subject to approval by the Tbilisi City Assembly through a formal vote.

Decarbonization: mobility policy and emissions reduction

In April 2021, the Government of Georgia approved Georgia’s updated Nationally Determined Contribution (NDC) in accordance with its obligations under the United Nations Framework Convention on Climate Change (UNFCCC). The NDC includes unconditional (35 percent) and conditional (50–57 percent) targets for reducing greenhouse gas emissions by 2030 compared to 1990 emissions levels ^[2]Georgia’s updated nationally determined contribution, 2021, https://mepa.gov.ge/Ge/Files/ViewFile/50125.

Georgia aims to cut greenhouse gas emissions from the transportation sector by 15% by 2030, as outlined in the revised Nationally Determined Contribution (NDC) compared to the baseline scenario projections ^[3]The final version of the Nationally Determined Contribution (NDC) financing strategy and investment plan. technical report. 2022 (in … Continue reading.

The pursuit of this goal assigns a distinct role to Tbilisi’s mobility policy, shaped notably by the concentration of urban transport in the capital. Current statistics, as of 2021, reveal that 35% of vehicle owners are registered in Tbilisi. This importance is also underscored by the incorporation of the Tbilisi Transport Plan (SUMP) in key national documents, including in the Climate Change Strategy 2030 and draft Georgia’s National Energy and Climate Plan.

Yet, the publicly available sections of the TTP don’t provide enough clarity on how the plan’s goals for cutting emissions align with the corresponding objectives outlined in the national climate documents.

While the TTP outlines measures directed at enhancing urban life and safeguarding the environment, the disclosed sections lack specifics on the anticipated outcomes regarding improved air quality and reduced greenhouse gas emissions.

Presentations on the Tbilisi Transport Plan highlight the shift in transportation modes, advocating a transition from personal cars to shared and active mobility. However, the plan pays insufficient attention to reducing reliance on fossil fuels, a critical aspect of the energy transition. While the plan sets a target of reducing personal car travel to 20% by 2043, it lacks specific projections about what share of these vehicles will be hybrid or electric. Additionally, there is a notable absence of information on local initiatives aimed at reducing the dependence of private and public car and bus fleets on fossil fuels within the city.

Boosting the role of railways in the TTP is commendable for reducing dependence on both traditional mobility forms and fossil fuels. Urgently addressing the development of railways and their integration into the capital’s transport network might be critical as recent decisions by the Georgian Railway, such as canceling several suburban trains nationwide, have negatively impacted city traffic and conveyed the impression that passenger transportation is not a priority for the Railway company ^[4]Rail’s share of passenger travel is less than 1%, and overall rail travel has not yet returned to pre-pandemic levels. Source: … Continue reading.

Recommendations:

• The TTP should not only focus on changing forms of mobility but also prioritize reducing dependence on fossil fuels. It is essential to include measures and initiatives aimed at decarbonizing both public transport and private vehicle fleets.
• Initiate effective cooperation with the Georgian Railway promptly to integrate Tbilisi’s existing railway network into the ongoing transport reform process. Additionally, efforts should be made to restore existing suburban connections to Tbilisi’s surrounding areas.

Women and vulnerable groups in mobility policy ^[5]There was no information on this issue at all during the presentation of the transport plan.

In Tbilisi, similar to global trends, gender-specific mobility patterns are evident. Women are more likely to use public transport, walk, and utilize taxi services. A 2022 transport study funded by the EBRD as part of the Tbilisi metro and bus projects reveals that women are more inclined to switch modes of transport during their journeys and choose diverse transportation means for various purposes.

According to the study, 77% of public transport passengers make two changes, while an additional 19% make three changes. This raises concerns about whether gender-specific mobility aspects and women’s movement patterns were adequately considered in the bus network restructuring. This underscores the necessity of examining the Tbilisi Transport/Sustainable Mobility Plan from a gender perspective and developing appropriate solutions and measures to address these specific needs.

A critical concern regarding gender involves the safety of women and gender minorities in public transport, given the prevalent instances of sexual harassment against women and discrimination faced by the LGBTQI+ community. Studies reveal alarming trends, with 44.23% of the LGBTQI+ community citing public transport as a site of discrimination in 2012, a figure that increased to 53.8% in 2020.

According to a Green Alternative survey on transport issues conducted in Tbilisi in the spring of 2022, 31.3% of respondents reported experiencing sexual harassment in transport, with most choosing not to report the incidents. Young women are particularly vulnerable, with 70% of women aged 18 to 35 reporting instances of sexual harassment.
A notable finding from a representative survey conducted by a transport company for the Tbilisi metro and bus projects reveals that 22% of respondents reported witnessing incidents of sexual harassment, while 5% stated they had personally experienced such harassment. However, this data does not fully capture women’s experiences, as the company did not disclose responses categorized by gender and age of the respondents.

The forthcoming study under the KfW-funded Sustainable Urban Mobility project, focusing on women’s mobility and safety perceptions in public transport, signals a positive step towards addressing gender-related concerns. However, to enhance transport safety, it is imperative to identify effective measures and implement interventions.

Recommendations:

• Incorporate gender issues into Tbilisi’s transport plan and assess the impact of decisions and measures from a gender perspective. Address women’s safety issues based on existing research, including making detailed data on sexual harassment public.
• Conduct transport research that explores the experiences of sexual and gender minorities and develop appropriate interventions to ensure their safety on public transport.
• Choose gender-sensitive indicators that account for the experiences of women and sexual and gender minorities when determining safety indicators in the transport plan.

Enhancing Civic Engagement: Public Participation, Communication, Outreach and Awareness Raising Campaigns

Addressing the challenge of creating an inclusive mobility model that meets the needs of diverse stakeholders is a central focus in many studies. Achieving broad acceptance necessitates prioritizing public engagement in decision-making—a component that is currently marginalized. Treating dissent as obstruction undermines effective governance, creating barriers to democratic and consensus-driven decision-making processes and hindering the search for viable solutions.

As private car use in Tbilisi continues to rise, the critical decision between prioritizing a shift towards sustainable mobility and enhancing public transport requires transparent communication. It is essential for transport policy leaders to actively engage the public, clearly explaining planned changes in accessible language and providing genuine opportunities for the public to influence transport policy and reforms. Unfortunately, the current approach does not meet this standard.

Enhancing mobility on one city street may inadvertently harm another, yet the perspectives of residents on the affected street often go unheard. For instance, the development plans for Chavchavadze Avenue proceeded without any dialogue with the local population, neglecting the impact on nearby residents. The consequences were significant, with unintended repercussions such as the relocation of air pollution from Kavsadze Street to Berdzenishvili Street. City Hall failed to consider crucial aspects such as transverse intersections, two-way traffic on adjacent streets, and appropriate pedestrian traffic light systems. Engaging more closely with the community during the planning phase could have mitigated these issues.

The development of a sustainable, people-centered, and accessible transport system relies heavily on public participation. Despite initiatives from the Transport and Urban Planning Agency of the City Hall, the ultimate decision on transforming the mobility landscape rests with the residents of Tbilisi. Therefore, incorporating awareness and community engagement elements into the plan is crucial for its success.

The transport plan must proactively address sustainable mobility concerns by 2043. It is crucial to include motivating factors that encourage the population to change their modes of transportation. Beyond the convenience of reaching destinations quickly, the plan should emphasize health and environmental impacts, specifically targeting issues like air pollution and promoting emission reduction. These considerations will increasingly influence decision-making regarding changes in mobility patterns over time.

Recommendations:

• Ensure public awareness and broad engagement from the early stages of developing sustainable urban mobility and transport plans. This involvement should begin during the definition of the system’s vision, while alternatives are still being considered.
• Include comprehensive action plans within the transport plan for public communication and awareness-raising on sustainable mobility issues. These plans should facilitate active public involvement in decision-making throughout the plan’s implementation.
• Reconsider the decision to change the name of the document to emphasize mobility or include an element of sustainability in the name to better reflect the plan’s goals.