Building a greener, smarter transport system in Vilnius
16 September 2025
Vilnius is reshaping how people move through the city by combining sustainable transport improvements with smart digital solutions. From redesigning streets in order to support public transport, cycling and walking, to using real-time data to improve services, the city is working towards a more accessible and user-friendly mobility system. While the path hasn’t been without obstacles, including resistance to change and a fragmented digital experience, Vilnius has tackled these issues through careful planning, strong community engagement and a clear institutional framework to drive implementation.
For other cities, Vilnius provides a useful example of how mobility systems can be adapted over time. Its experience highlights the potential benefits of piloting new approaches, using data to guide decisions, and designing services with a wide range of users in mind.
Context
An introduction to the city
Vilnius, the capital and largest city of Lithuania, is home to over half a million people and serves as the country’s political, economic and cultural centre. It covers an area of 401 km2 and has a population density of approximately 1,480 inhabitants per km2. 61 % of the city is covered in green space with 95 % of residents living within 300 metres of green space.
Its mobility system includes a wide-reaching public transport network of buses and trolleybuses that many residents rely on every day, in addition to 1,490 km of footpaths and over 170 km of cycle routes.
Key urban mobility challenges
Despite this, car use remains high, with nearly half of all trips in Vilnius currently (48 %) being made by private car, compared to 31 % by public transport, 15 % by walking and 5 % by cycling. This heavy reliance contributes to significant traffic congestion, particularly during peak hours, when evening delays can stretch up to 113 minutes. It also adds to air pollution, increases pressure on limited parking, and takes up valuable public space. One of the reasons for this car dependence lies in the city’s urban form: much of Vilnius was shaped by Soviet-era planning, which prioritised wide roads and dispersed neighbourhoods. This makes it harder to retrofit the city with pedestrian- and cycle-friendly infrastructure today.
To address these challenges, Vilnius has committed to transforming its urban mobility system, putting public transport improvements at the centre of its strategy. The city is investing in cleaner vehicles, better services and infrastructure that encourages people to shift from driving to walking, cycling and using shared transport options.
Wider sustainability initiatives
Vilnius' efforts extend beyond transport alone. The city is also pursuing a broader set of sustainability measures aimed at improving urban resilience and overall quality of life. These include significantly expanding the accessibility of green space, restoring riverbanks and natural habitats, supporting renewable energy, and promoting circular economy practices. The city has also launched tree-planting programmes, modernised waste and recycling systems, and promoted energy efficiency in buildings.
This integrated approach has earned Vilnius notable international recognition. The city was elected as European Green Capital 2025 for its strong commitment to sustainability and its clear vision towards becoming a greener city. Vilnius has also received the EU Mission Label under the EU Mission for 100 Climate-Neutral and Smart Cities by 2030, highlighting its commitment to achieve climate neutrality by the end of this decade. In September-October 2025, the city will also host the European Commission's principal urban mobility policy conference Urban Mobility Days.
Building on its growing momentum and positioning itself as one of Europe’s most forward-looking mid-sized capitals, Vilnius, embracing the motto “the greenest city in the making”, is driving ambitious public transport and urban mobility initiatives.
Strong cooperation between city and national level government
Cooperation between the City of Vilnius and the national government of Lithuania has played a crucial role in shaping and supporting mobility initiatives. At the strategic level, the national government provides the regulatory framework and funding mechanisms necessary for the implementation of large-scale infrastructure projects.
In short, successful implementation of Vilnius’ mobility goals relies on a coordinated, multi-level governance model, where local vision is supported by national resources, legislation, and technical alignment.
This case study focuses on these efforts, examining how they address car dependency, improve environmental quality, and contribute to the city’s broader climate and sustainability objectives.
Digital tools and modernisation of public transport
To improve convenience and accessibility, Vilnius has launched digital ticketing and journey-planning tools that support seamless travel across public transport and other mobility options. The m.Ticket app serves as the primary platform for purchasing and activating digital tickets, offering a variety of fare options and supporting card or mobile payments. For real-time route planning and live arrival information, locals and visitors rely on the Trafi app and Google Maps. Additionally, contactless payments are widely available onboard buses and trolleybuses.
Building on these tools, the JUDU app is being developed, building on the existing website
– a comprehensive platform designed to unify ticketing, journey planning and access to shared mobility services in one place for all modes. This upcoming app, due to launch next year, aims to simplify multimodal travel, making it easier for residents and visitors to combine different transport modes smoothly. A single ticketing system with the Vilnius region and the national rail operator (LTG Link) is also being developed, allowing for seamless multimodal travel.
Fleet electrification and accessibility
Vilnius is undertaking a major renewal of its public transport fleet, aiming for 78 % of the fleet to be electric by 2027. Investment in these electric and hydrogen buses is supported through national climate and innovation funds and EU recovery and resilience plans. This renewal includes introducing new, more comfortable vehicles that meet the highest environmental standards, while ensuring the average age of buses stays below 5-6 years. The city is also working to add a further 12 new public transport routes with the aim of a 54 % more frequent service to reduce waiting and travel times and make public transport more convenient and attractive.
Autonomous trolleybuses are already being tested on some routes, with further investments planned in electric and alternative fuel-powered vehicles.
Accessibility remains a priority, with ongoing deployment of low-floor, accessible vehicles and infrastructure enhancements such as audible signals and real-time information systems to better serve people with limited mobility, older people and other vulnerable passengers.
To support the growing and cleaner fleet, Vilnius is expanding and upgrading transport infrastructure. This includes building and extending dedicated A-lane networks for buses and trolleybuses to improve speed and reliability. The city is also constructing modern stops equipped with video displays, renovating the trolleybus contact network, and installing electric charging stations as well as alternative fuel filling points. These improvements have required significant investment but are key to delivering a faster, more sustainable and user-friendly public transport system.
Data-driven mobility planning
The city uses the Mobility Data Portal, an innovative open-data tool that provides real-time visualisation of travel demand and usage. The platform supports dynamic, data-informed decisions to optimise public transport operations and infrastructure investments, ensuring resources are directed where they can achieve the greatest impact.
Encouraging sustainable mobility beyond public transport
Beyond public transport improvements, Vilnius is implementing measures to encourage sustainable travel choices citywide. The establishment of a Low Emission Zone in the Old Town discourages high-polluting vehicles, reducing congestion and improving air quality while encouraging the use of cleaner transport options.
The city is simultaneously expanding its pedestrian zones and developing an extensive cycling network, aiming for 220 km of bike paths by 2027 with the goal that 65 % of residents will live within 250 metres of active travel infrastructure. This enhances first- and last-mile connectivity, making it easier to combine cycling or walking with public transport.
To further support this integration, Vilnius has introduced mobility hubs in key locations such as the Antakalnis district. These hubs provide safe parking for bicycles, e-scooters and other personal mobility devices close to major public transport stops, enabling commuters to easily switch modes during their journey. In addition, over 2,000 shared cars operate across ~90 % of the city. These measures are intended to help reduce private car dependency and improve the overall convenience of sustainable travel options.
Public awareness campaigns complement these physical improvements by promoting sustainable travel behaviour and raising understanding of the environmental and health benefits associated with reducing private car dependence.
Vilnius is already seeing positive results from its sustainable mobility efforts, as the city actively collects and analyses data to assess the outcome of its sustainable mobility initiatives.
Growing public transport ridership
Public transport use is steadily increasing – currently, the city sees around 735 million trips per year, with as many as 229 million made by public transport. This shift is further driven by targeted service improvements: new electric buses are operating on major routes, service accessibility is increasing, routes are becoming more convenient, and waiting times are shorter. Dedicated lanes are also being introduced, helping to ensure fast and predictable journeys even during peak hours.
Enhanced travel experience through digital tools
The widespread adoption of digital tools such as the m.Ticket and Trafi apps is transforming how people navigate their way around Vilnius. These platforms simplify ticket purchasing and provide real-time journey updates, making travel smoother and more predictable. Meanwhile, the Mobility Map aggregates anonymised data from various sources, enabling the city to monitor travel patterns and modal shifts accurately. This data-driven insight supports ongoing improvements and investment decisions tailored to real user needs.
Progress on air quality and the reduction of emissions
The introduction of the Low Emission Zone in the Old Town is projected to cut car traffic by up to 47 % and reduce greenhouse gas emissions by 72 % by 2030. Alongside this, the shift to electric and hydrogen-powered buses and trolleybuses directly reduces local pollutants and noise, improving daily life for people who live and work along busy roads.
A more inclusive public transport system for diverse user groups
The mobility improvements benefit a diverse range of users:
- Daily commuters enjoy faster, more reliable journeys thanks to dedicated bus lanes, increased frequency and real-time updates that help them plan their trips better. The quieter, smoother rides offered by the new electric buses have also been reported to improve comfort and reduce stress.
- Tourists find navigating the city much easier with digital tools that provide route planning, mobile ticketing and real-time arrival information in multiple languages. Contactless payments and flexible ticket options simplify the system for visitors, making their experience more convenient.
- Older people and people with limited mobility benefit through safer, more accessible infrastructure. Low-floor buses, upgraded stops with ramps and tactile guidance, audible crossing signals and wider sidewalks all contribute to greater independence and safer travel.
Families and children benefit from safer pedestrian zones and improved crossings, making it easier to walk to school or local parks. Expanded cycling paths and secure bike parking also support active travel for all ages.
Vilnius’ ongoing transformation of its urban mobility system through sustainable and digital initiatives offers valuable insight into the challenges and opportunities that come with reshaping city transport systems.
Challenges
Reallocating urban space and managing public acceptance
Implementing ambitious changes to the mobility system in Vilnius has not been without its difficulties. One of the main challenges has been reallocating street space to prioritise buses, cyclists and pedestrians, which inevitably reduces road and parking areas previously dominated by private cars. This shift met with resistance from drivers and some local businesses concerned about access and potential impact on their operations. To address these concerns, Vilnius adopted a phased, participatory approach. Small-scale pilot projects allowed the city to test new layouts, collect user feedback, and make adjustments before wider rollout. Public engagement through awareness campaigns, community workshops and transparent communication played a vital role in gradually building support and reducing opposition.
Overcoming fragmentation and technical complexity in digital mobility
Another significant challenge relates to the fragmentation of digital services supporting public transport and micromobility. Currently, passengers must navigate multiple apps for ticketing, journey planning and accessing shared mobility services, which can be confusing and inconvenient. Building on earlier digital tools, the JUDU app plays a key role in simplifying access and enhancing interoperability across services, providing a more seamless user experience. Until JUDU’s full rollout, the city has worked to improve cooperation between existing platforms like m.Ticket, Trafi, and Google Maps, while ensuring clear multilingual communication to support a diverse user base.
Integrating real-time data from buses, micromobility providers and traffic management systems also presents a complex technical challenge. Ensuring data accuracy, compatibility between different platforms, and effective collaboration with multiple private operators requires ongoing effort and coordination. This integrated data ecosystem is essential for planners to get a complete picture of travel patterns, congestion hotspots, and service gaps, enabling smarter, evidence-based decisions.
At the same time, the rapid growth of new mobility options, like e-scooter sharing, has introduced challenges around safety, parking and maintaining order on public streets. To address this, Vilnius implemented regulations that set clear parking rules, enforce speed limits, and require operators to share usage data with the city. This operator data feeds back into the broader mobility information system, helping the city effectively manage these services while keeping public spaces safe and organised.
Lessons learned and transferability
Invest in data-driven planning and digital integration
Vilnius’ experience highlights the importance of investing in integrated data systems and unified digital platforms. By combining real-time data from buses, micromobility providers and traffic management, the city gains a complete and up-to-date understanding of how people move around. This information allows planners to identify congestion points, understand travel patterns and spot service gaps, leading to smarter decisions about infrastructure investments and service adjustments.
Additionally, digital tools like the upcoming JUDU app aim to simplify the passenger experience by unifying ticketing, journey planning and shared mobility into a single seamless platform. Improving interoperability among existing apps and providing clear, multilingual information helps users navigate the system more easily.
Engage communities through phased implementation
Another important lesson is the value of engaging the community and implementing changes gradually. Vilnius faced resistance when reallocating street space from cars to buses, bicycles and pedestrians. To address concerns from drivers and businesses, the city adopted a phased approach by piloting changes on a small scale, collecting feedback, and making adjustments before wider rollout. Public awareness campaigns, workshops, and transparent communication helped build understanding and trust over time. This participatory process ensured that the solutions reflect local needs and helped reduce opposition.
Balance innovation with regulation
The rapid expansion of new mobility options like e-scooters brought new challenges around safety, parking and street management. Vilnius responded by setting clear regulations, including designated parking zones, speed limits, and requiring e-scooter operators to share usage data with the city. This data feeds into the broader mobility information system, enabling effective monitoring and management of these services. The city’s approach shows how it is possible to embrace innovation while maintaining order and safety in public spaces.
Clear leadership and coordination were crucial to Vilnius’ success. The city’s dedicated mobility agency has provided expert-driven planning and implementation across transport modes. Collaboration between government departments, private operators and the community ensured coherent policies and agile responses to emerging challenges. This governance model supports aligned efforts and makes it easier to scale successful solutions.
Leverage external funding opportunities
Access to European Union structural funds, national climate finance, and recovery programmes has been vital in accelerating Vilnius’ mobility transformation. These funding sources have enabled large-scale investments in electric and hydrogen buses, infrastructure upgrades, and digital innovation that might have been difficult to achieve solely with municipal budgets. Other cities can benefit from exploring diverse funding opportunities to support ambitious sustainable mobility projects.
Author: Dearbhla Mullin
Views and opinions expressed are those of the author(s) and do not reflect those of the European Commission.
Photo credits © - City of Vilnius