COMMUTING MASTER PLAN FOR RIGA REGION 2021-2027 - Riga 2021
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COMMUTING MASTER PLAN
FOR RIGA REGION
2021–2027
Riga
2021
The CMP has been prepared within the framework of the INTERREG project “Sustainable Urban Mobility and Commuting in
Baltic ” (SUMBA) (Contract No. R074).
Table Of Contents
Terms and abbreviations used................................................................................................................................ 3
Introduction........................................................................................................................................................... 4
1. The functional area the CMP covers.................................................................................................................... 6
2. Institutions involved in the development of CMP................................................................................................ 9
2.1. National and public authorities................................................................................................................................9
2.2. Public transport service providers...........................................................................................................................11
3. Current situation and mobility trends in the CMP area ..................................................................................... 12
3.1. Strategies, policies, action plans, visions in the project area ................................................................................12
3.2. Current situation in the field of mobility.................................................................................................................14
3.3. Main challenges and possible solutions.................................................................................................................19
3.4. Mobility hubs as solutions to mobility problems....................................................................................................22
4. Strategic aims and vision.................................................................................................................................. 26
4.1. The aim: To reduce utilization share of private cars in daily commuting by setting up of efficient mobility hubs............ 26
4.2. The aim: To promote wider use of public transport by introducing joint ticketing system....................................27
4.3. The aim: To increase flexibility to solutions for daily commuting by applying efficient data management .........27
4.4. The aim: To foster collaboration of stakeholders for creation of integrated mobility system .............................................. 28
5. Development scenarios..................................................................................................................................... 28
6. Priority areas and key objectives....................................................................................................................... 30
6.1. Priority area: Establishment of mobility hubs.........................................................................................................30
6.2. Priority area: introduction of a joint public transport ticket...................................................................................31
6.3. Priority area: Efficient data management..............................................................................................................32
6.4. Priority area: Cooperation of stakeholders ............................................................................................................33
7. Action plan....................................................................................................................................................... 34
8. CMP integration in existing strategies and policies........................................................................................... 38
9. CMP implementation monitoring and update................................................................................................... 39
10. Overview on stakeholder involvement and main related outputs.................................................................... 39
11. Studies, analysis and surveys used for compiling CMP..................................................................................... 41
ANNEXES.............................................................................................................................................................. 43
Related materials:
1. Plan for the location and establishment of mobility hubs1.
2. Criteria for cost-benefit analysis of SUMBA mobility hubs and their evaluation methodology2
1 Ltd. “IE.LA inženieri” (2020), Plan for the location and establishment of mobility hubs (in Latvian), https://www.bef.lv/wp-
content/uploads/2020/09/Mobilitates_punktu_plans_SUMBA-1.pdf
2 Ltd. “AC Konsultācijas” (2020), Criteria for cost-benefit analysis of SUMBA mobility hubs and their evaluation methodology
(in Latvian), https://www.bef.lv/wp-content/uploads/2021/01/Mobilit%C4%81tes-punktu-IIA-kriteriji-un-metodika.pdf
2
Terms and abbreviations used
CMP area Riga, Pieriga, impact area of Riga and Pieriga
Commuting Daily movement of residents from their place of residence
in one territorial unit to another territorial unit due to work
and study and back
Mobility hub Transport hubs of different levels with the main task to
provide each user with convenient connections of different
modes of transport together, offering alternative modes
of transport (including public transport) and reducing the
need to use private road transport
PT Public transport
TM Ministry of Transport
RPR Riga Planning Region
RDPAD Riga City Development Department
RMA Riga Metropolitan area
RDSD Riga City Traffic Department
BEF Baltic Environmental Forum Latvia
TAP 2027 National Transport Development Guidelines 2021 -2027
NAP 2027 National Development Plan 2021 -2027
3
Introduction
Transport sector is responsible for one quarter of GHG emissions by the EU and this
amount is ever increasing. The EU Green deal has set the aim to cut these emissions by
90% up to 2050. On top of the actions to reduce the transport emissions, the EU Green
deal is addressing also other aspects of sustainable mobility, such as to eliminate traffic
flow congestions in cities, as well as to implement improvements in public transport,
utilize intelligent transport management systems and digital solutions.3
Sustainable urban mobility is one of the priority areas within cities of the European
Union. Sustainable mobility can be evaluated by the share of different transport
modes, transport related pollution, levels of congestion, as well by the public transport
coverage and accessibility in cities and adjacent territories.4 Mobility and commuting
(daily movement of inhabitants back and forth from their residence at one territorial
unit to another territorial unit due to work and study) trends in Latvia and elsewhere in
the world are requesting changes in the concepts for transportation nets and logistics
by increasing use of multimodal solutions. Ever increasing commuting challenges
are addressed by introducing of new types of mobility, e.g., mobility hubs, transport
sharing concepts, wide application of capabilities of smart devices, simultaneously
ensuring the mobility as a service.
According to the research reports5 and information about the passenger flows6,
almost every second inhabitant at the working age and living in Pieriga (a territory
nearby Riga) finds the working place in Riga. Majority use a private car for reaching
the workplace thus enhancing the commuting intensity between Riga and Pieriga
and increasing the load to the transport infrastructure. Therefore, it is necessary to
improve existing transport system by enhancing its sustainability, e.g., advancing the
public transport and reducing the need for private car use. Municipality initiatives play
an important role in this process by developing of the sustainable urban mobility plan
and implementing the corresponding activities.
Commuting Master Plan (hereafter – CMP) for the period from 2021 to 2027, is a
regional medium-term development planning document. The CMP aim is to improve
the sustainable mobility options in commuting process between Riga, Pieriga and
adjacent municipalities. The CMP is developed according to the strategic aims and long-
term development priorities by the Riga Planning Region Sustainable Development
Strategy 2014-20307 This CMP complements the Action Plan for Riga Metropolitan
3 European Green Deal (in Latvian) , https://eur-lex.europa.eu/resource.html?uri=cellar:b828d165-1c22-11ea-8c1f-
01aa75ed71a1.0014.02/DOC_1&format=PDF
4 European Court of Auditors (2020), Sustainable urban mobility in the European Union (in Latvian) https://www.eca.
europa.eu/Lists/ECADocuments/SR20_06/SR_Sustainable_Urban_Mobility_LV.pdf
5 Department of Human Geography, Faculty of Geography and Earth Sciences, University of Latvia (2017), Clarification of
the boundaries of the Riga agglomeration (in Latvian), http://www.sus.lv/sites/default/files/rigas_aglomeracija_2017.pdf
6 Ltd. “IE.LA Inženieri” (2020), “Mobility hubs Assessment of transport and passenger flows in the project study area” (in Latvian)
7 Sustainable development strategy of Riga planning region 2014.2030 (approved 18.09.2015) (in Latvian), http://rpr.gov.
lv/wp-content/uploads/2017/12/RPR-Ilgtspejigas-attistibas-strategija_2014-2030.pdf
4
Area development8, where the focus is on diversification and adaptation of different
transport modes up to the scale and purpose of use. The CMP fits into the Riga
Metropolitan Area Mobility Spatial Vision9 insights about the development of the outer
and inner accessibility within the metropolitan area.
The Commuting Master Plan is developed within the frame of INTERREG project SUMBA
“Sustainable urban mobility and commuting in Baltic cities” (project Nr. #R074). The
plan is prepared by the Baltic Environmental Forum Latvia in cooperation with Riga
Planning Region and Riga City Council City Development Department. In the process
of development of the CMP there were experts contracted from Ltd. “IE.LA Inženieri”
for compiling of material about the mobility hubs10. The CMP is complemented by
a material on criteria for cost-benefit analysis and a methodology for evaluation
of mobility hubs prepared within the frame of SUMBA by experts from Ltd. “AC
Konsultācijas” 11.
The CMP contains an overview on current situation and trends in mobility related
aspects, topical policy and development planning documents on national and regional
scale, directions for strategic aims and priority areas, as well as planned activities at
regional and local level. The plan includes an explanation of the concept for mobility
hubs, as well as the recommended scope of services at mobility hubs of different
categories for ensuring their functionality.
The CMP includes procedures for supervision of implementation and monitoring. The
monitoring report on implementation of the CMP will be prepared in every three years
– in the year 2024 and 2027. The report will reflect about completed activities or the
activity progress during the reporting period. The Final report (in 2027) will contain
information whether the CMP will be updated also in the upcoming period.
8 Action plan for the development of the Riga metropolitan area (2020), (in Latvian) http://rpr.gov.lv/wp-content/
uploads/2020/06/Rigas-metropoles-areala-ricibas-plans_Web-1.pdf
9 Ltd. “Grupa 93”, Riga Planning Region (2019), Spatial vision of Riga metropolitan area mobility - Final report, (in Latvian)
http://rpr.gov.lv/wp-content/uploads/2019/03/20190201_Mob_viz_Galazinojums.pdf
10 Supra note 1
11 Supra note 2
5
1. The functional area the CMP covers
The territory covered by the commuting master plan (CMP) affects most of the interior
area of the Riga Metropolitan area (Figure 1)12, where three zones can be distinguished 13 -
Riga (orange zone), Pieriga (yellow zone), and the territory affecting Riga and Pieriga (gray
zone):
• Riga – the largest city in the Baltic States in terms of population. The area of the city is
304.05 km2
• Pieriga covers municipalities nearby Riga. They are Jūrmala, Babīte municipality, Mārupe
municipality, Olaine municipality, Ķekava municipality, Salaspils municipality, Stopiņu
municipality, Ikšķile municipality, Ropaži municipality, Garkalne municipality, Ādaži
municipality and Carnikava municipality.
• The territory affecting Riga and Pieriga includes the territories of Engure, Tukums,
Jelgava, Ozolnieki, Iecava, Baldone, Ķegums, Lielvārde, Ogre, Mālpils, Sigulda, Inčukalns,
Sēja, Saulkrasti districts within a radius of approximately 50 km around Riga14.
Such a territorial division corresponds to the situation at the end of 2019 before the
Administrative Territorial Reform.15
In Latvia, after the municipal
elections in 2021, the work of the
new municipal councils will start
in July 2021. (Source: Ministry of
Environmental Protection and
Regional Development of the
Republic of Latvia (13.01.2021), https://
www.varam.gov.lv/lv/administrativi-
teritoriala-reforma ). In accordance with
the Law on Administrative Territories
and Settlements (in force from 23
June 2020), the territory covered by
Figure 1. Area covered by the Commuting Master plan. the CMP will include the following
administrative territories and administrative centers: Riga, Jurmala, Tukums county
(Tukums), Marupe county (Marupe), Olaine county (Olaine), Ķekava county (Ķekava),
Salaspils county (Salaspils), Ropaži county (Ulbroka), Ādaži county (Ādaži), Ogre county
(Ogre), Saulkrasti county (Saulkrasti), Sigulda county (Sigulda), Jelgava county (Jelgava).
12 The area covered by CMP in general corresponds to the internal zone of Riga Metropolitan area and partly corresponds
with the borders of Riga Agglomeration.
13 The administrative division of municipalities corresponds to the situation in April 2020. According to the ongoing
Administrative Territorial Reform In Latvia, in 2021 there will be 39 administrative units (in Latvian), http://www.varam.
gov.lv/lat/administrativi_teritoriala_reforma/
14 The county of Tukums, Engure, Jelgava, Ogre and Ķegums are partly included.
15 Ministry of Environmental Protection and Regional Development of the Republic of Latvia (2020), Administrative -
territorial reform (in Latvian), www.varam.gov.lv/lat/administrativi_teritoriala_reforma/
6
Figure 2. Population at the beginning of 2019 in cities and counties.
When looking at the territory covered by the CMP in 2019, the largest number of
inhabitants are counted in Riga (632,614 inhabitants), Jelgava (55,972 inhabitants),
and Jurmala (49,325 inhabitants) while Ogre, Tukums, Salaspils, Olaine and Sigulda
counties are having the largest number of population16 (Figure 2). The indicated
population in the county also includes cities, except Jelgava, Riga and Jurmala.
(Source: Central Statistical Bureau of Latvia17).
16 The indicated number of inhabitants within the county includes inhabitants also in towns, except for Jelgava, Riga and Jurmala.
17 The number of inhabitants at the beginning of 2019 (Central Statistical Bureau of Latvia, 2019), https://www.csb.gov.lv/
lv/statistika/statistikas-temas/iedzivotaji/iedzivotaju-skaits/galvenie-raditaji/iedzivotaju-skaits-republikas-pilsetas
7
Roads and railways are important in the context of daily commuting. The territory
covered by the CMP is crossed by different types of transport - land, incl. railways,
strategic 1520 mm gauge railway lines, as well as trans-European transport network
(TEN-T) roads, EuroVelo routes. The Port of Riga and Riga International Airport in
the area covered by the CMP are important logistics and mobility hubs in the Baltic
States, which are also included in the international TEN-T network.
At the beginning of 2019, the population of Latvia was 1,919,968 inhabitants. Of these,
632,614 inhabitants (approximately 33%) lived in Riga.18 In turn, the total number of
employees in Riga is about 433,000. Of these, 32% of employees work in Riga and
live elsewhere, but about 4% live in Riga but work elsewhere.19 The daily movement
of the population (commuting) between Riga and nearby municipalities creates
intensive traffic flows, congestion and increases emissions of harmful substances.
Every morning, 86,000 people move to Riga and 29,700 leave in the direction of
Riga. According to the household survey conducted in 2019, 42% of respondents
(approximately 46% of women and 26% of men) have used public transport for the
daily travel needs between Riga and Pieriga. In turn, 38% use road transport (about
56% of men and 30% of women as drivers) and about 3% use bicycles.20
18 Central Statistical Bureau of Latvia, ISG020. Population and its changes in statistical regions, cities of the Republic,
regional cities, 21 development centers and counties, https://www.csb.gov.lv/lv/statistika/db
19 Riga City Council City Development Department (2019), Riga in figures 2018, https://pasvaldiba.riga.lv/NR/rdonlyres/
D2187E03-C116-4534-B5EE-B48568AF1AE0/70627/R%C4%ABgaskait%C4%BCos2018LATWeb.pdf
20 Updates in the Riga transport simulation model (2020), www.sumba.eu/en/article/updates-riga-transport-simulation-
model
8
2. Institutions involved in the development
of CMP
Institutions involved in the development of mobility represent different levels of
governance, planning and service provision, and their activities influence the progress
of the (Daily) Commuting Master Plan.
2.1. National and public authorities
The Ministry of Transport of the transport and the issuance of permits
Republic of Latvia21 is the leading for international transport.23
public administration institution in the
Five planning regions have been
transport and communications sector.
established in Latvia, which are
It is responsible for policy making in the
competent to ensure regional
transport and communications sector,
development planning, coordination, co-
drafting policy planning documents
operation between local governments
and monitoring the implementation of
and other public administration
the measures set out in the planning
institutions. Planning regions determine
documents. The Ministry develops
the basic principles, goals and priorities
legislation in the transport (rail, road,
of the long-term development of the
maritime, aviation) and communications
region.24 In co-operation with local
sectors. The Ministry of Transport and its
governments and public administration
institutions implement administration
institutions, planning regions
in the public transport sector - monitor
develop long-term and medium-term
compliance with laws and other
development planning documents,
regulatory enactments, manage and
as well as manage and monitor their
organize public transport services in the
implementation. In the field of transport
rote network.22
and mobility, the planning regions
The performance of tasks delegated shall prepare and submit proposals
by the Ministry of Transport in for the necessary amendments to the
the field of passenger and freight route network of regional importance;
transport is performed by the state ascertains and summarizes the opinions
Ltd. ”Autotransporta direkcija”. It of local governments and residents
implements the planning of public regarding the route network in the
transport - passenger transport by region; inspect the stops in the territory
bus and train, the issuance of licenses of the planning region and provide
for commercial freight and passenger proposals regarding their necessity,
21 LR Ministry of Transport,(in Latvian) http://www.sam.gov.lv
22 Law on public transport services (2007), (in Latvian), https://likumi.lv/doc.php?id=159858&version_date=15.07.2007
23 The state Ltd. „Autotransporta direkcija”,(in Latvian), http://www.atd.lv/lv/visp%C4%81r%C4%ABgs-apraksts-par-direkciju
24 Ministry of Environmental Protection and Regional Development of the Republic of Latvia (in Latvian),
https://www.varam.gov.lv/lv/planosanas-regioni
9
construction, and inclusion in the route organization of public transport services,
movement lists or route descriptions.25 rational management of the financial
In the territory covered by the plan, resources allocated to public transport.
development planning is coordinated Municipalities must ensure the
by the Riga Planning Region and the construction of public transport stops
Zemgale Planning Region. and the maintenance of infrastructure in
their administrative territory.28 In order
The Public Transport Council consists
to strengthen cooperation between
of representatives from the Ministry
Riga City Municipality and Nearby Riga
of Transport, the Ministry of Finance,
Municipalities, to establish an effective
state Ltd. “Autotransporta direkcija”,
governance model, as well as to identify
Riga, Kurzeme, Zemgale and Vidzeme
and implement projects important
planning regions and Rēzekne County
for the entire Riga metropolitan area
Council.26 The Council carries out the
(including transport and mobility), on
planning of regional local and intercity
October 29, 2019, between Riga City
routes, it is responsible for ensuring
Council and Nearby Riga Municipalities
a unified approach to the planning,
Association Memorandum of
ordering, conclusion of contracts and
Cooperation “On the Establishment of
use of state budget funds for public
the Cooperation Framework for the Riga
transport services. The council ensures
Metropolitan Area”. In January 2021,
that the interests of local residents
when 15 local governments merged, the
and municipalities are identified and
Riga and Nearby Riga Local Government
represented.27
Association “Riga Metropolis” 29. was
The responsibilities of cities and established. One of the goals of the
counties include managing the route association is to organize the joint
network in their administrative provision of municipal services to the
territory, organizing public transport population, promoting their accessibility
services; to submit proposals to the and quality.
Public Transport Council and VLtd.
“Autotransporta direkcija” regarding the
With the development of the Rail Baltica project in Latvia, the task of the state
capital company Ltd. “Eiropas Dzelzceļa līnijas” is to implement the Rail Baltica public
railway infrastructure construction project in Latvia.30 In its turn, the Baltic joint
venture JSC “RB Rail” is responsible for the implementation of the joint activities of
the Rail Baltica project.
25 Riga Planning Region (in Latvian), http://rpr.gov.lv/darbibas-jomas/sabiedriskais-transports/
26 LR Ministry of Transport decree Nr. 01-03/91 (04.07.2019), On the composition of the Public Transport Council, (in Latvian),
http://www.atd.lv/sites/default/files/Rikojums%20par%20sabiedriska%20transporta%20padomes%20sastavu_04072019.pdf
27 Public Transport Council (in Latvian), http://www.atd.lv/lv/jaunumi/sabiedrisk%C4%81-transporta-padome
28 Law on public transport services (2007), https://likumi.lv/doc.php?id=159858&version_date=15.07.2007
29 Riga City Council (11.01.2021.), The Association of Pieriga Municipalities is transformed into the Association “Riga Metropolis”,
(in Latvian), https://www.riga.lv/lv/jaunums/pierigas-pasvaldibu-apvieniba-partop-apvieniba-rigas-metropole
30 European railway lines (in Latvian), https://edzl.lv/par-edzl/kas-ir-edzl
102.2. Public transport service providers
Passenger transport by rail and road in Public transport services by road in the
the area covered by the Plan is performed territory of Riga planning region are
by several domestic public transport provided by 5 companies (JSC “CATA”, JSC
service providers. JSC “Pasažieru “Rigas Taksometru parks”, Ltd. “Ekspress
vilciens” transports passengers by rail Ādaži”, Ltd. “GALSS BUSS”, Ltd. “Tukums
throughout the territory of Latvia on the auto”), providing passenger movement
routes of electric trains and diesel trains. opportunities with regional buses.33
In total, passengers traveling by train in According to the informative report “On
2019 measured 602.7 million kilometers the Development of Public Transport
(on average, one train journey was 32.7 Services of Regional Importance for
kilometers long). In 2019, JSC Pasažieru 2021-2030”34, the network of regional
vilciens carried a total of 18.45 million bus routes is divided into several parts of
passengers. It is planned that the the route network or lots, adapting it to
electrification and modernization of the the flow and travel habits of passengers
railway will allow to further increase the living in the counties. It is planned
number of transported passengers. to identify public transport service
providers as a result of an open tender,
One-time tickets can be purchased for
the subject of which would be a route
the train journey; day tickets; season
network with a volume of 65 million
tickets, as well as single train-bus tickets
kilometers per year, divided into 16 route
- for the convenience of Tukums and
network parts (lots) with a volume from
Aizkraukle passengers (introduced from
2.5 to 6.0 million kilometers per year in
May 2018). The most popular type of
each lot. Uniform quality requirements
train ticket is a one-time ticket. In 2019,
for the fleet (bus age and equipment)
67% of passengers chose this type of
will be set throughout the route
ticket for train travel. From 20 August
network. For the trip by regional bus it
2019, all train tickets purchased online
is possible to buy a ticket on the service
and in mobile applications will receive
platform https://www.bezrindas.lv. It is
a discount. As a result, for example, in
not necessary to print the purchased
December 2019, 28% of the total volume
ticket, they can be stored and presented
of one-time tickets sold was purchased
on smart devices.35
electronically (13.5% in December
2018).31, 32
31 JSC „Pasažieru vilciens” (2020), https://www.pv.lv/en/about-us/
32 JSC „Pasažieru vilciens” (2020), In 2019, the number of train passengers continued to grow, reaching 18.45 million,(in
Latvian) https://www.pv.lv/lv/informacija-medijiem/
33 Riga Planning Region (2020), Public Transport (in Latvian), http://rpr.gov.lv/darbibas-jomas/sabiedriskais-transports/
34 Cabinet of Ministers (2019), Information report “On the development of public transport services of regional significance
in 2021-2030” (in Latvian), http://tap.mk.gov.lv/mk/tap/?pid=40473219
35 Ticketing platform BezRindas.lv (2021), https://www.bezrindas.lv/en/how-is-it-working
11Passenger movement in public transport “Rīgas minibus bus traffic” has been
in the city of Riga is provided by Riga involved in the provision of public
Municipality Ltd. “Rīgas satiksme”. transport services (in 2020, passenger
The company operates 8 tram routes, 18 transportation was performed on 18
trolleybus routes and 54 bus routes. In minibus routes).37 Since May 1, 2009,
total, “Rīgas satiksme” vehicles (trams, a single electronic ticket (e-ticket) for a
trolleybuses, buses) cover about 45 certain number of trips has been fully
million kilometers a year and carry about operational in Riga public transport.
140 million passengers. “Rīgas satiksme” There are so-called time tickets for
manages more than 6,000 parking lots a certain number of hours, monthly
in Riga. The company also provides tickets, as well as a one-time ticket for
other services: vehicle and retro tram one trip, which can be purchased from
rental, as well as bicycle parking.36 From the driver.38
1 December 2018, the subcontractor
3. Current situation and mobility trends in
the CMP area
3.1. Strategies, policies, action plans, visions in the project area
An integrated, sustainable transport transport system in order to increase the
system, which provides high-quality use of bicycles and other environmentally
opportunities for the mobility of people friendly vehicles. 39
and goods throughout the country, is a
Considering one of the key elements of the
national development goal in the field
European Green Course, to accelerate the
of transport, defined in the Latvian
transition to sustainable and smart mobility,
National Development Plan 2021-2027.
the goal of Latvia’s transport policy is an
The transport system must ensure local
integrated transport system that ensures
accessibility using the railways as the
safe, efficient, smart and sustainable
backbone of public transport, as well as
mobility, promotes economic growth,
international connectivity, within the EU
regional development and contributes to
core network (Rail Baltica), ensuring the
the transition to the low-carbon economy.
interconnection of the core network and
The goal of the policy is defined in the
the comprehensive network. One of the
Transport Development Guidelines for
tasks included in the CMP is to improve the
36 Riga Municipal Limited Liability Company “Rīgas Satiksme” (2020) (in Latvian), https://www.rigassatiksme.lv/lv/par-mums/
37 Riga Municipal Limited Liability Company “Rīgas Satiksme” (2020), Interim report for the nine months of 2020, review (in
Latvian) https://www.rigassatiksme.lv/files/2020_gada_devinu_menesu_starpperiodu_parskats.pdf
38 Riga Municipal Limited Liability Company “Rīgas Satiksme (2020) (in Latvian), https://www.rigassatiksme.lv/lv/biletes /
39 National Development Plan 2021-2027 (2020) (in Latvian), https://www.pkc.gov.lv/sites/default/files/inline-files/NAP2027_
apstiprin%C4%81ts%20Saeim%C4%81_1.pdf
122021-2027 (draft, 1st edition) 40. The results metropolitan area is daily or frequent
to be achieved include improved mobility trips to Riga from Pieriga and more
opportunities, reduced greenhouse gas remote areas (for example, Jelgava) for
emissions in transport and improved work, study or services. In the common
environmental quality, competitive transport system, rail as a basis, roads
transport and logistics infrastructure and as a support, integrated and high-
services, increased transport safety and quality public transport, mobility points,
security; promoted innovation and training cycling, waterways and micromobility
of highly qualified professionals in the field. are key elements in a common vision
for the development of metropolitan
At the regional level, the Riga Planning
mobility.
Region Sustainable Development Strategy
2014-203041 quality mobility and logistics In order to achieve coordinated
have been identified as one of the development of Riga metropolitan area
priorities. The vision defined in the and coordination of processes taking
strategy includes the development of a place there, using integrated approach
unified transport system in the region, and complex solutions, as well as to
which is based on all types of public harmonize interests of state, Riga city,
transport networks, which ensure Riga metropolitan area municipalities
territorially accessibility in accordance and residents, an Action Plan for Riga
with the requirements of daily mobility. metropolitan area development.45 has
Sustainable Development Strategy been developed. The solutions included
of Zemgale Planning Region 2015- in the plan are to be implemented in
203042 includes guidelines for regional 2021-2027. within the framework of the
accessibility planning. The Spatial European Union funds, state and local
vision of the mobility of the Riga government budgets, as well as other
metropolitan area43 includes a vision financial instruments of the annual
of the development of the external and programming period.
internal accessibility of the metropolitan
Riga’s development vision and long-
area44 making the daily commuting of
term development goals are defined in
the population convenient and safe.
the Riga Sustainable Development
Commuting in accordance with the
Strategy until 2030. 46 In order to ensure
spatial vision of the mobility of the Riga
a comfortable, safe and pleasant urban
40 National Transport Development Guidelines 2021 -2027 (1.redakcija) (in Latvian), https://www.sam.gov.lv/lv/sabiedriska-
apspriesana-transporta-attistibas-pamatnostadnu-2021-2027gadam-projekts-un-strategiskas-ietekmes-uz-vidi-
novertejuma-vides-parskata-projekts/tap-2021-2027_pirma-redakcija.pdf
41 Sustainable development strategy of Riga planning region 2014-2030 (approved 18.09.2015) (in Latvian), http://rpr.gov.
lv/wp-content/uploads/2017/12/RPR-Ilgtspejigas-attistibas-strategija_2014-2030.pdf
42 Sustainable development strategy of Zemgale planning region 2015 -2030 (in Latvian), https://www.zemgale.lv/index.
php/attistibas-planosana/planosanas-dokumenti/category/34-zpr-ilgtspejigas-attistibas-strategija-2015-2030
43 Ltd. “Grupa 93”, Riga Planning region (2019), Spatial vision of Riga metropolitan area mobility - Final report (in Latvian),
http://rpr.gov.lv/wp-content/uploads/2019/03/20190201_Mob_viz_Galazinojums.pdf
44 Riga metropolis - a space of economic and social movement functionally closely connected with the capital, formed by
the city of Riga together with nearby cities of various sizes (Jūrmala, Olaine, Jelgava, Baldone, Salaspils, Ogre, Tukums un
Sigulda) and municipalities of Pieriga counties, where the daily commuting of the population is pronounced.
45 Action plan for the development of the Riga metropolitan area (2020) (in Latvian), http://rpr.gov.lv/wp-content/
uploads/2020/06/Rigas-metropoles-areala-ricibas-plans_Web-1.pdf
46 Riga Sustainable Development Strategy until 2030, (in Latvian), https://www.rdpad.lv/wp-content/uploads/2014/11/
STRATEGIJA_WEB.pdf
13environment, as well as to make Riga a the central part of the city of Riga. The
pedestrian, cyclist and public transport program includes measures for the
friendly city, the strategy envisages integration of the Rail Baltica railway
improvement of the urban transport line in Riga into the mobility system. At
system and relevant infrastructure the same time, it is also thinking about
according to the “pedestrian - cyclist improving air quality - in accordance with
- public transport - private transport - the Air Pollution Reduction Action
freight” hierarchy. It is noted that in the Plan 2020-2030. It is planned to create
central part of the city the entry and a low-emission zone in the city of Riga,
parking of private vehicles should be where emissions from diesel engines
limited, giving priority to other modes of are limited.48
transport.
Cycling is one of the fastest growing
An action program for sustainable alternatives to motor vehicles in
mobility of the Riga transport system Riga. “Cycling development concept
has been prepared for the mobility of for integrated cycling development
the city of Riga, accessibility of territories in Riga” 49, determines development
and accessibility of objects, as well directions and goals for integrated
as for better quality assurance of the development of bicycle traffic in Riga
living environment, including a short- street plan, covering 3 main areas -
term action plan for 2019-202547. In bicycle traffic infrastructure, bicycle
order to reduce the intensity of road traffic planning and management,
transport and air pollution in the city bicycle traffic promotion and education.
core, the program includes, for example, In 2021, it is planned to update the
measures to restrict traffic in the city concept.50
center, to divert road traffic outside
3.2. Current situation in the field of mobility
The area covered by the CMP is SKDS and the Institute of Transport and
characterized by a high intensity of Telecommunications. The target group
commuting both towards Riga and from included residents of Riga and Pieriga
Riga to the surrounding areas. Within the who have reached at least 8 years of age.
framework of the SUMBA project in Riga The face-to-face interviews took place at
and Pieriga in the spring and autumn of 2019 the respondents’ places of residence,
a survey of households was conducted51. they had to provide information
This was done by the research centre about their commuting activities on
47 Riga Transport System Sustainable Mobility Action Program, Part I, Short-term Action Plan 2019 – 2025 (in Latvian)
(2019), https://www.rdpad.lv/wp-content/uploads/2019/04/2_MRP_2019_2025_Gala_versija.pdf
48 Air pollution abatement action plan 2020–2030 (in Latvian) (2020), https://likumi.lv/ta/id/314078-par-gaisa-piesarnojuma-
samazinasanas-ricibas-planu-2020-2030-gadam
49 Riga city bicycle traffic development concept 2015-2030 (in Latvian), https://www.rdsd.lv/uploads/media/557550c430e1f.pdf
50 Riga City (25.01.2021), The concept of Riga bicycle traffic development will be renewed (in Latvian), https://www.riga.lv/
lv/jaunums/atjaunos-rigas-velosatiksmes-attistibas-koncepciju
51 Riga City Council City Development Department (2019) Household survey on population movement habits, (in Latvian), https://
www.rdpad.lv/rigas-pilsetas-pasvaldiba-uzsak-majsaimniecibu-aptauju-par-iedzivotaju-parvietosanas-paradumiem/
14Tuesday, Wednesday and Thursday According to the results of the survey,
of the previous week. The survey was the main reason for the respondents’
conducted in two languages - Latvian movement was work or study. The
and RusLtd.n - and was conducted distribution of transport modes in
only in private households. Responses Riga: 46.43% - tram, trolleybus, bus
were received from 5,317 households, and minibus users; 34.7% - car users;
covering about 40,000 trips. 53% of 7.31% of pedestrians and 3.45% of
respondents were women and 47% cyclists (Figure 3).
men.
Figure 3. Distribution of respondents’ modes of movement 52
The results of Riga metropolitan residents routes on regional bus routes, passenger
reflect trips to and from Riga: 42% - public trains, as well as for trips on Riga public
transport users, 38% - car users, ~ 3% transport (tram, trolleybus, bus, minibus).
cyclists and 17% use other modes of Since 2018, a single train-bus ticket has
transport. The majority of private car users been introduced for the convenience of
are men, while public transport users are Tukums and Aizkraukle passengers. The
mainly women. 53 single ticket can be used for a trip on the
train route Riga – Tukums to the railway
The existing public transport ticket
stop Tukums 1 and further from Tukums
purchase system provides an opportunity
bus station for a trip on bus routes in
to purchase public transport tickets for
Tukums region.54
one-time trips or subscription tickets for
52 Riga City Council City Development Department
53 Updates in the Riga transport simulation model (2020) (in Latvian), www.sumba.eu/en/article/updates-riga-transport-simulation-model
54 AS “Pasažieru vilciens” (2018), The single ticket can be used on 27 bus routes to Tukums region (in Latvian), https://www.
pv.lv/lv/izmainas-un-jaunumi/jaunumi/11960/vienota-bilete-izmantojama-27-autobusa-marsrutos-tukuma-novada/
15In part of the city of Riga, a single
electronic ticket - an e-talons - can be The data of the population survey 59
used to pay for a public transport trip. (approximately 4000 respondents)
The e-talons is a single electronic ticket show that in 2019 6.4% of the
for public transport in the city of Riga. respondents in Latvia rode a bicycle
The ticket loaded in the e-talons is valid every day or almost every day, while
for 12 months from the moment of its once a week 19.8% of the Latvian
purchase, unless the ticket type tariff population rode a bicycle, most of
changes or the ticket type is cancelled, them in Pieriga ( 23.2%), but the least -
and no payment is required for payments in Latgale (17.2%) and Riga (17.7%).
for the use of public transport.55
In 2019, 727,164 passenger vehicles According to a study conducted to
were registered in Latvia, of which clarify the boundaries of the Riga
220,218 (approximately 30%) were agglomeration 60 the proportion of
registered in Riga.56 In January 2020, commuting to Riga at the working age of
the total number of passenger cars the population has increased in all regions
registered in Latvia increased by of Latvia, but most rapidly in Pieriga
approximately 12 thousand.57 municipalities. The intensity of commuting
in all regions of Pieriga in 2016 was over
45%, which indicates that almost every
Analysing the collected data on the second inhabitant of Pieriga of working
intensity of bicycle traffic in Riga, it has age works in Riga. Also evaluating the
been established that in recent years the commuting in the direction from Riga,
number of cyclists on weekday mornings higher commuting is observed in Pieriga
on city bridges has significantly increased. municipalities - Ķekava, Mārupe, Garkalne
For example, in September 2018, more and Stopiņi. Daily commuting from
than 550 cyclists were counted on the Riga to these regions also exceeds 40%.
Vanšu Bridge in the morning from 8.00 These trends are also confirmed by the
to 9.00 (approximately 100 cyclists in information available in the Geographical
2008)58. Spatial Planning Platform of the Latvian
Administrative-Territorial Reform
established in 2020. 61
55 Riga Municipal Limited Liability Company “Rīgas Satiksme” (2020), What is e-ticket? (in Latvian) https://www.rigassatiksme.
lv/lv/biletes/kas-ir-e-talons/
56 Central Statistical Bureau (2020), (in Latvian), https://data.csb.gov.lv/pxweb/lv/transp_tur/transp_tur__transp__auto_celi__ikgad/TRG070.px/
57 State Joint Stock Company “Road Traffic Safety Directorate “ (2021), Transportlīdzekļi, (in Latvian), https://www.csdd.lv/
transportlidzekli/registreto-transportlidzeklu-skait
58 Ltd. “IE.LA inženieri” (2020), Methodology of bicycle traffic flow accounting and data analysis (in Latvian) , https://www.bef.lv/velodatu_metodika/
59 Ltd. “Enviroprojekts” (2019) (in Latvian), Study on cycling and cycling infrastructure at the national level, http://veloplans.
lv/wp-content/uploads/2017/08/Velo-petijums_15012020.pdf
60 Department of Human Geography, Faculty of Geography and Earth Sciences, University of Latvia (2017) Clarification of
the boundaries of the Riga agglomeration (in Latvian), http://www.sus.lv/sites/default/files/rigas_aglomeracija_2017.pdf
61 Map publishing house Jāņa sēta (2021), Map of the Administrative Territorial Reform of Latvia, (in Latvian), https://atr.kartes.lv/
16To assess the current situation in the weaknesses in the transport sector,
field of mobility in the area covered by which make it difficult to achieve the
the CMP, a SWOT analysis was performed goals of sustainable mobility. The main
(in 2018)62. TIts aim was to assess shortcomings included the lack of
the transport system and mobility in qualified and experienced staff able
general, based on the responses to a to deal effectively with multimodal
survey of municipal specialists included mobility and transport planning, and
in the area. The evaluation included 25 the risk of overburdening existing
aspects that comprehensively described staff in municipalities. Insufficient
the areas of the transport sector - cooperation between the service
legislation, financial sources, parking provider and the municipality was
management, expert capacity and assessed as a shortcoming in the field
cooperation between municipalities, of improvement of the traffic control
impact of forthcoming development and management system. Weaknesses
projects and population, safety of daily in the transport sector also included
travel, reliability and availability of public existing tariff schemes, in particular
transport, sharing, traffic control and the lack of a unified ticketing policy
information system, public transport within the agglomeration. One of the
fleet and capacity, as well as accessibility important development opportunities
for people with reduced mobility, public in the field of transport is cooperation
transport priority in the common between municipalities. In the area
transport system, tariff schemes and covered by the CMP, to develop a
ticketing system, visibility of public common public transport network,
transport companies and information agree on a common tariff and ticketing
channels. policy, develop a coherent cycling
infrastructure network and parking
Based on the SWOT analysis, some
policy, and develop joint projects.
well-developed fields in the area
Analyzing the possibility of potentially
covered by the CMP were identified,
unfavorable situations, the SWOT
which characterize the resources that
analysis highlighted the importance of
contribute to the effective achievement
an appropriate workforce approach in
of the objectives of the area. The
municipalities, as the lack of qualified
reliability, frequency and punctuality
and experienced staff or overcrowding
of public transport were recognized as
of existing staff can hinder the mobility
strengths. The public transport fleet
system development opportunities.
(age of vehicles, etc.) was assessed as
Along with the development of low-rise
modern and in line with modern trends,
buildings, the relocation of residents
noting the activity of public transport
from the city of Riga to the regions
companies to purchase new vehicles.
of Pieriga, while maintaining the high
However, the SWOT analysis showed
integrity of the labor market of the
that most of the selected aspects were
city of Riga, and social processes is
identified as organizational or systemic
62 Pakalna L. (2020), SUMBA project - accomplished and planned activities (in Latvian), https://www.bef.lv/wp-content/
uploads/2021/02/02_SUMBA_BEF.pdf
17associated with an increasing amount of a prototype, on the results of which the
commuting. The choice of the residents further development of mobility hubs in
of Riga and Pieriga in favor of private Riga and potentially also in other Latvian
road transport as the main mode of cities will be based.66
transport creates an increased load on
Rail Baltica - Riga multimodal transport
the transport infrastructure of the city of
hub at Riga Central Railway Station
Riga, disturbances in mobility processes
with convenient bicycle and pedestrian
(congestion, road accidents), as well as
infrastructure and mobility services will
noise and air pollution63, 64
reduce the flow of private vehicles, improve
In order to increase the competitiveness of public transport, pedestrian and bicycle
public transport, in 2020 RPR municipalities connections between the center and the
were provided with the opportunity to Moscow street suburbs, the left bank of
participate in the preparation of the the Daugava and Zaķusala. An integrated
project application of the European local, regional and international passenger
Investment Bank program “ELENA”.65 transport movement will be created, new
Individual consultations were provided to mobility opportunities for pedestrians,
the municipalities of the region, evaluating a positive impact on the development of
the most suitable locations of mobility the Torņkalns multimodal transport hub,
hubs. The application was based on the improving the accessibility of the left bank
concept of mobility hubs prepared in the of the Daugava.67
SUMBA project and their location.
Rail Baltic Regional traffic - potential
On July 1, 2020, the first mobility hub in the stations in the territory covered by the
Baltics was launched in Riga. Compared to CMP - Vangaži, Saurieši, Acone, Jāņavārti,
other mobility hubs in Europe, the solution Riga, Torņakalns, Imanta, Riga Airport,
developed in the VEF area is unique in that Jaunmārupe, Jaunolaine, Ķekava, Iecava.
it takes into account not only the mobility
In 2019, the research center “SKDS” on
needs of citizens, but also the interest of city,
behalf of the Road Transport Directorate
scientists and entrepreneurs in collecting,
conducted a survey on population
opening up and promoting innovative
satisfaction with regional public
solutions. A stationary pedestrian and
transport. A total of 3,055 respondents
bicycle flow meter has been installed at
were interviewed in Cēsis, Daugavpils,
the mobility hub, a test point has been
Jelgava, Ķekava, Madona, Ogre and Talsi
provided for piloting the Internet, machine
municipalities. The main argument why
vision and other solutions, as well as for
people prefer public transport is cheaper
collecting various open data of the city.
compared to other modes of transport,
The VEF neighborhood mobility hub is
63 Riga Transport System Sustainable Mobility Action Program. Current situation report (2019) (in Latvian), https://www.
rdpad.lv/wp-content/uploads/2019/04/1_MRP_Esosa_situacija_Gala_zinojums.pdf
64 Riga Sustainable Development Strategy until 2030 (in Latvian), https://www.rdpad.lv/wp-content/uploads/2014/11/STRATEGIJA_WEB.pdf
65 Riga Planning Region (2020), Project Track50 news (September 2020), Sustainable energy and climate action plans
developed for nine municipalities of Riga Planning Region (in Latvian), http://rpr.gov.lv/projekta-aktualitates-track-50/
66 Riga City (2020), Launch of first mobility hub in Latvia (in Latvian), https://lvportals.lv/dienaskartiba/317678-atklats-
pirmais-mobilitates-punkts-latvija-2020
67 Ltd. “Grupa 93”, Riga Planning Region (2019), Spatial vision of Riga metropolitan area mobility - Final report (in Latvian),
http://rpr.gov.lv/wp-content/uploads/2019/03/20190201_Mob_viz_Galazinojums.pdf
18although the location of the stops is no car that they also use on a daily basis.
less important. The survey also identified About 10% said that public transport
the most common reasons why residents was too expensive and 5% said it was not
of these seven counties do not use available. Overall, 81% of respondents
public transport services. About 69% of evaluate regional public transport services
people who do not use public transport positively. 68
indicated that they have a private or work
3.3. Main challenges and possible solutions
3.3.1. Intensity of commuting
During the development of Riga Transport the need to transfer to the city center.
System Sustainable Mobility Action
Research and analysis70 of the current
Program,69 the location of congestion,
situation in the field of mobility in Riga
characteristic parameters have been
and Pieriga71 indicate that in recent years
assessed. The estimated monetized public
the number of cars on the streets and
losses during one working day in certain
roads has been gradually increasing.
street sections reach approximately 155
Data from the Central Statistical Bureau
thousand. EUR per working day (i.e. EUR 39
of Latvia show that in 2017, a Latvian
million per year). Congestion is particularly
resident travels approximately 44 km by
pronounced in the morning and afternoon
car as a driver or passenger, and travels an
of a working day. Evaluating the mobility
average of 2.7 km on foot72 The average
aspects of the city of Riga, it has been
distance traveled by bicycle is 10.6 km,
acknowledged that the movement of
while the average distance travelled by city
pedestrians and cyclists in the city of
public transport (tram, trolleybus) is about
Riga is mostly subordinated to car traffic.
7 km. Assessing the load of cars, it can be
At the same time, the current public
assumed that residents who go to Riga
transport route scheme for the residents
on a daily basis for work or school mostly
of Riga›s neighborhoods does not fully
drive alone in their private cars.
provide a direct connection between the
neighborhoods, which would allow you It is necessary to create preconditions for
to get to your desired destination without the restructuring of transport flows in order
68 State Ltd. Road Transport Directorate (2019), Survey: Passengers evaluate public transport services on regional routes
positively (in Latvian), http://www.atd.lv/lv/jaunumi/aptauja-pasa%C5%BEieri-pozit%C4%ABvi-v%C4%93rt%C4%93-
sabiedrisk%C4%81-transporta-pakalpojumus-re%C4%A3ion%C4%81lajos-mar%C5%A1rutos
69 Riga Transport System Sustainable Mobility Action Program. Current situation report (2019) (in Latvian), https://www.
rdpad.lv/wp-content/uploads/2019/04/1_MRP_Esosa_situacija_Gala_zinojums.pdf
70 Riga Energy Agency, Ltd. “Grupa 93” (2019) Final report of the mobility management solution corresponding to the
specifics of the city of Riga - conceptual development and approbation of the “Mobility Point” model ” (in Latvian), https://
www.grupa93.lv/lv/teritoriju-attistibas-koncepcijas/rigas-mobilitates-punkts/
71 Transport development guidelines 2021. – 2027. gadam (annex 1) Description of the current situation and main challenges
(in Latvian), https://www.sam.gov.lv/sites/sam/files/media_file/1_pielikums_esosas_situacijas_raksturojums_izaicinajumi-3.pdf
72 Central Statistical Bureau (2018), Results of the survey “Mobility of the Latvian population in 2017” (in Latvian), https://www.
csb.gov.lv/lv/statistika/statistikas-temas/transports-turisms/transports/meklet-tema/357-apsekojuma-latvijas-iedzivotaju-
mobilitate
19to reduce the need to use individual cars. connection between destinations and
By developing the priority system where various support infrastructures, such as
the highest priority is given to pedestrians, indications on directions, applications to
then cyclists, public transport, private find commuting options e.g., “Last mile”.
transport, it is possible to change the habits At the same time, it is necessary to define
of commuters and reduce the intensity of specific conditions for the places where
road traffic. One of the solutions is the mobility hubs should be developed (e.g.,
creation of mobility hubs, which would population density, existing infrastructure
ensure the interrelation of the road, bicycle and mobility solutions).
and public transport system, convenient
3.3.2. Management of public transport system
The current passenger transport model on public transport. Already in 2019, the
is inefficiently organized and the public state Ltd. “Autotransporta direkcija” has
transport system is poorly integrated, started to develop a joint ticket storage
promoting the dominance of private cars system. It is planned that the single ticket
on the roads. There is a lack of mutually will be valid for commuting by bus or train
agreed timetables for the various public including the transfer possibilities.74 In
transport routes, and no joint ticketing order to solve the problems identified in
mechanisms have been put in place to the management of the public transport
improve citizens’ mobility habits and system in 2021, the Ministry of Transport
mobility as such.73 This is particularly has established a working group that
important in the context of commuting has agreed on activities to be performed
processes, creating a close integrity in the Riga metropolitan area to make
between regional buses and passenger Riga and Pieriga public transport unified
trains. and convenient for passengers. For
the integration of public transport in
In order to promote wider use of public
the metropolitan area, it is planned to
transport, significant improvements are
coordinate strategic planning, develop
needed in the field of public transport, to
a route network, a unified passenger
provide passengers with convenient and
information system, as well as introduce a
up-to-date purchasing system of tickets
unified tariff policy and a joint ticket.75
for regional routes, and to accurately list
and identify those who receive discounts
73 Riga Transport System Sustainable Mobility Action Program. Current situation report (2019), 43 lpp. (in Latvian), https://www.
rdpad.lv/wp-content/uploads/2019/04/1_MRP_Esosa_situacija_Gala_zinojums.pdf
74 State Ltd. “Autotransporta direkcija” (2019), From 2021 a modernized regional public transport ticket sales system
will be available (in Latvian), http://www.atd.lv/lv/jaunumi/no-2021-gada-b%C5%ABs-pieejama-moderniz%C4%93ta-
re%C4%A3ion%C4%81l%C4%81-sabiedrisk%C4%81-transporta-bi%C4%BCe%C5%A1u-tirdzniec%C4%ABbas
75 Randers I. (2021), 300 million for the mobility of Pieriga. For Pieriga with Riga, common routes, one ticket and uniform
tariffs are planned (in Latvian), www.la.lv/300-miljoni-pierigas-mobilitatei
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