- Topic
- Urban freight/city logistics
- Country
- Europe-wide
- Resource type
- Case study
This case study examines how the ULaaDS pilots in Bremen (DE) and Mechelen (BE) generated insights for adapting urban logistics strategies to local regulatory, operational and spatial conditions. The pilots provided practical lessons on embedding logistics solutions within SUMPs and SULPs, and demonstrated how flexible, cooperative and low-emission approaches can be scaled. Their experience offers transferable guidance for European cities aiming to strengthen sustainable last-mile delivery systems.
Context
As European cities continue to grow and evolve, their mobility systems become more complex. Planners must balance multiple objectives, such as decarbonisation, equity, space efficiency and technology integration, while responding to changing mobility patterns. This makes coordinated, long-term planning, such as Sustainable Urban Mobility Planning (SUMP) and Sustainable Urban Logistics Planning (SULP), more important than ever.
SUMP provides a structured framework that guides cities through participatory and data-driven strategies for long-term sustainable mobility. However, traditional planning has primarily focused on passenger transport and often overlooked urban freight transport (UFT), despite UFT accounting for up to 30% of road space and 25% of transport emissions in European cities. To address these challenges, the Sustainable Urban Logistics Plan (SULP) was introduced as a logistics-focused complement to the SUMP.
Cities do not necessarily need a standalone SULP; what matters is having a strategy for urban freight – whether a SULP, a logistics strategy, or part of a broader mobility or development plan – that provides clear direction and a framework for action. See the SULP development cycle in Figure 1.
Figure 1: The SULP Cycle
Source: SUMP Topic Guide on Urban Logistics, 2019, p. 15
Another challenge is that UFT is largely driven by profit-oriented private actors, such as logistics providers, e-commerce platforms and couriers, who control operations and hold most of the data. The complex interplay of multiple stakeholders, diverse activities and varied data sources, combined with a general reluctance to share information, limits cities’ ability to plan or regulate effectively.
Within this context, ULaaDS explored how SULP frameworks can support zero-emission logistics through re-localisation and cooperation, piloting solutions including neighbourhood-level micro-hubs, electrified cargo bikes, autonomous delivery vehicles and collaborative delivery models.
ULaaDS (Urban Logistics as an on-Demand Service) was a Horizon 2020 project (Sept 2020–Feb 2024), coordinated by the City of Bremen and implemented by a consortium of 24 partners from city authorities, research organisations and logistics stakeholders. The project developed and tested innovative, shared, zero-emission logistics solutions in response to the growth of the on-demand economy. Its approach was structured around three lighthouse cities (Bremen [DE], Mechelen [BE], and Groningen [NL]) where pilot solutions were trialled, and four satellite cities (Alba Iulia [RO], Bergen [NO], Edinburgh [UK], and Rome [IT]) where these concepts were adapted and replicated. Through co-creation processes, business-model development, and decision-support tools for integrating ULaaDS principles into SUMPs and SULPs, the project aimed to relocate logistics activities, reconfigure freight flows, and support more liveable and sustainable urban environments.
This case study draws on the Recommendations to Integrate ULaaDS in SUMP and SULP (ULaaDS D6.2), a set of guidelines, methods and policy recommendations finalised in 2023. The guide was informed by extensive insights from ULaaDS pilot activities, collected through workshops, interviews with the three lighthouse cities and analysis of written materials on results and lessons learned. During the drafting of this case study, Bremen and Mechelen provided comments and additions, all of which were incorporated. No feedback was received from Groningen; therefore, the case study reflects primarily the experience of Bremen and Mechelen.
In Action
To implement urban logistics measures effectively within the SULP process, it is essential to understand the enabling conditions. These include the regulatory framework, collaboration with stakeholders, the use of new technologies and the ability to monitor progress through data and evaluation.
Regulation
Clear and supportive regulatory frameworks help public authorities align logistics planning with environmental and public health goals, while providing legal certainty helps operators to plan operations and invest in new delivery models. During the ULaaDS trials, cities found that missing regulatory provisions hindered planned innovations, especially for new transport modes, public space use or traffic restrictions. This experience highlighted the enabling role of regulation in supporting urban logistics experimentation.
In Mechelen (BE), access restrictions for motorised vehicles in selected city centre streets pushed logistics operators to explore alternatives such as cargo bikes for last-mile delivery. The EU project CityChangerCargoBike found out that cargo bikes can replace at least 51% of urban trips associated with the transport of goods; while the EU project CycleLogistics indicates that 32% of all goods deliveries can be done by cargo bike; yet only 1% of deliveries in Belgium use cargo bikes. Challenges include operational constraints, staffing needs, high upfront costs and infrastructure barriers such as narrow streets and limited loading areas.
UPS, a ULaaDS project partner, concluded that the roads in Mechelen were not yet safe enough for cargo bike operations. These findings show that while regulation can effectively steer change, it must consider practical operational impact.
Working with stakeholders
Effective urban logistics depends on collaboration between public and private stakeholders. Cooperation helps secure space for hubs, align goals and avoid conflicting priorities. To support this, ULaaDS cities created local meetings to engage logistics operators, businesses and residents in the planning process. These platforms enabled co-design of viable, locally adapted solutions.
In Bremen (DE), the city partnered with logistics providers such as Rytle to pilot e-cargo bike deliveries from micro-hubs. The trial proved that cargo bikes can handle larger shipments if hubs are located close to delivery areas. Challenges emerged around hub placement and the limitations of pre-loading standardised containers. Success depended on strong municipal support and logistics actors valuing the social and environmental benefits, such as improved public space, road safety and job creation.
Figure 2: ULaaDS Micro Depot in Bremen
Source: Michael Glotz-Richter/SKUMS, ULaaDS Project
In Mechelen (BE), the collaborative logistics pilot in the city centre was characterised by limited involvement of local shopkeepers. As a result, participation in local fora was low and input from key actors responsible for, or affected by, delivery activities remained minimal, contributing to the pilot’s lack of success. Furthermore, initial scepticism regarding the expected benefits among the participating companies led to reluctance to fully commit, requiring extensive time to negotiate acceptable conditions for all parties. Thus, it is crucial to invest greater effort in communicating the benefits of innovative logistics solutions, not only to directly involved partners but also to stakeholders whose support is essential for effective implementation. Also, clearer value propositions and the use of contractual agreements to formalise collaboration are critical tools for sustaining stakeholder engagement and commitment in similar pilots.
Technology and innovation
Stakeholder collaboration provided a framework for testing new technologies. Urban logistics is evolving through e-mobility, automation and interconnected systems. Electric vehicles reduce emissions and automated delivery systems offer greater efficiency. At a broader scale, concepts like the Physical Internet aim to connect logistics systems, standardise operations and improve resource use.
Mechelen (BE) tested an autonomous shuttle transporting parcels and people in an industrial park. While the pilot demonstrated potential, it also revealed current limitations. Additional testing is needed to ensure safety, with respect to integrating parcel lockers in passenger vehicles and ensuring usability. In practice, freight-passenger integration is rarely viable due to different schedules, speeds and routing needs. The regulatory framework would also need updating for the pilot to be able to operate in a real-world urban environment, not just in a controlled area.
Figure 3: Autonomous Shuttle in Mechelen
Source: Domien Stubbe (VIL), ULaaDS Project
Generating impact: data, indicators and monitoring
Reliable data and transparent sharing processes are crucial for successful urban logistics trials. ULaaDS trials have been a source of significant learning. Bremen and Groningen, through the introduction of customer experience surveys, generated meaningful data which contributed to understanding auser experiences and needs. However, a critical challenge was the lack of common baseline across trials due to the absence of a standardised framework which made it difficult to effectively compare and analyse data from different trials. In addition, the trials faced data-sharingconcerns and inconsistent data from operators, who were reluctant to share commercially sensitive information.
To respond to the lack of real operational data, ULaaDs trials adopted a case-specific monitoring approach. Each city selected relevant Key Performance Indicators (KPIs) and used methods such as surveys, interviews or cameras to collect data. Despite inconsistencies, this flexible approach enabled meaningful learning and showed that urban logistics must remain adaptable, using structured monitoring and collaboration to keep pace with changing regulations, technologies and user needs.
Results
The ULaaDS trials provided crucial insights into the operational and institutional conditions for sustainable urban logistics. Although the long-term viability of each pilot differed, cities gained practical experience on what works in their specific contexts. In Bremen, the trials built on existing initiatives to develop a robust logistics framework that integrated micro-hubs, cycle logistics and stakeholder governance.
In Mechelen (BE), the trials showed that some innovations, such as autonomous delivery shuttles, are not yet ready for large-scale deployment due to legal and infrastructure constraints. A bottom-up approach with pilot projects is essential to develop effective logistics policy. Real-world testing helps cities understand practical barriers, refine solutions and make evidence-based decisions before pursuing broader implementation.
The continuation and scaling up of the trials in Bremen is supported by clear operational benefits and alignment with broader mobility goals. The cargo-bike sharing pilot demonstrated sufficient effectiveness to be integrated into the city’s main bike-sharing system through a public tender, resulting in 40 cargo bikes operating under the Bre.Bike scheme. The microhub trials showed strong performance in the dense downtown area under market-based conditions, though results were less favourable in mixed districts such as the Östliche Vorstadt.
Across all cities, the process itself proved more impactful than individual pilot results. Early stakeholder involvement, flexible governance and clear data-sharing arrangements were critical. Cities also learned to adapt to evolving regulations, logistical hurdles and changing consumer demands.
Overall, ULaaDS demonstrated that structured experimentation in real-world urban environments, combined with collaboration and monitoring, can accelerate progress toward sustainable logistics, even if further refinement and policy support are needed for widespread deployment.
Challenges, opportunities and transferability
Implementing innovative urban logistics solutions through ULaaDS revealed both promising opportunities and complex challenges. While the project successfully tested new delivery models, governance structures and technologies, the trials underscored the need for flexibility, strong stakeholder coordination and sensitivity to local contexts. Many interventions, such as micro-consolidation, shared delivery vehicles and data-driven planning, show clear potential for wider replication, but their success depends on specific urban, regulatory and institutional conditions. The lessons learned provide practical guidance for other cities.
Lessons learned from the process and implementation:
- Structured stakeholder participation platforms (Local Logistics Fora) were critical for sustainable implementation.
- Citizen engagement, including surveys, helped identify gaps and improvement needs in urban logistics.
- Clear written expectations for collaboration, data sharing and participation improved coordination.
- Flexibility was essential to adapt to changing regulations and urban conditions.
- Shortening the time between pilot agreements and implementation minimised risks from shifting priorities.
- Data sharing among stakeholders improved communication, resource use and efficiency.
- Urban logistics strategies must stay adaptable to changes in consumer behaviour, such as increased e-commerce demand.
- Restructuring logistics systems is a long-term effort, requiring patience and continuous coordination, as operational habits and workflows change gradually.
Key recommendations:
1. Ensure fair and efficient allocation of public space
Urban space must be allocated in a way that accounts for logistics needs. This requires addressing regulatory gaps around loading zones, access regulations and enforcement to prevent misuse.
2. Involve stakeholders early in planning
Early engagement helps align strategies with business and community needs.
3. Promote fair competition in freight transport
Cities should avoid giving privileges to certain operators and instead create equal conditions for all. Support measures, including government backing for trials, can encourage wider participation and innovation.
4. Embrace technological innovation while maintaining a critical assessment
New technologies can enhance urban logistics but must be embedded in the right context. Cities should test solutions such as kerbside management tools, parcel locker systems, autonomous vehicles and cargo hitching – while recognising their limits as standalone solutions.
5. Develop clear and supportive logistics policies
Strong policy frameworks are needed to translate pilot insights into long-term practice. Clear policies help guide implementation, standardise approaches and enable broader impact across the city or region.
In depth
ULaaDS D6.6.pdf
ULaaDS D7.8 Policy paper on the future on-demand urban logistics
ULaaDS_Replication-Booklet.pdf
Author: Katy Huaylla
Views and opinions expressed are those of the author(s) and do not reflect those of the European Commission.
Photo credits © Domien Stubbe (VIL), ULaaDS Project, Michael Glotz-Richter/SKUMS, ULaaDS Project, pikselstock, SUMP Topic Guide on Urban Logistics, 2019