The growth of parcel logistics presents challenges for municipalities seeking to create a livable, sustainable, and safe urban environment. Do parcel lockers contribute to achieving these goals? Municipalities need a concrete action perspective: what role can parcel lockers play? A research project for the Dutch Top Sector Logistics provides a neutral framework that offers both strategic and practical support for sustainable urban logistics and the design of public spaces.
Diverging Opinions on Parcel Lockers
Some consumers prefer pickup options, while most prioritize the convenience and flexibility of home delivery. Parcel delivery companies are investing in sustainable alternatives, such as cargo bikes and more efficient delivery routes, but they rarely operate their own parcel pickup points. They tend to favor staffed service points at existing local businesses or parcel lockers in public spaces. Municipalities face balancing space constraints, mobility impacts, and residents’ objections when placing parcel lockers and pickup points.
This complex situation raises the question of what role municipalities can and want to play. The guidelines help municipalities understand the opportunities, challenges, and potential actions related to parcel lockers and pickup points. However, municipalities and logistics service providers do not share a vision regarding the role and location of parcel lockers, particularly in public spaces.
Research Approach
A consortium of Rebel, PosadMaxwan, and Fishermen conducted the study. They engaged in discussions with municipalities (Amsterdam, Utrecht, The Hague, Zwolle, Rotterdam, ’s-Hertogenbosch, and Delft), parcel locker providers (De Buren, MyPup, CiPiO), parcel delivery companies (DHL, PostNL), industry organizations (Thuiswinkel.org), and knowledge institutions (University of Groningen, Amsterdam University of Applied Sciences).
Based on these discussions, literature reviews, international examples, and design research, a set of guidelines was developed, covering the following elements:
- A market overview of parcel lockers
- Categorization of different types of parcel pickup points and lockers
- Policy framework and strategic spatial planning
- A step-by-step plan for the placement and management of parcel lockers
- An overview of alternative delivery methods.
Guidelines for Municipalities
The final output of this project provides municipalities with the necessary information and tools to make informed and strategic decisions for a healthy, safe, and sustainable urban environment that accommodates the growing parcel market and its associated logistical challenges. The guidelines provide support on both a macro level (strategic policy choices) and a micro level (practical implementation), taking into account the interests of residents, businesses, and logistics stakeholders.
Responses from municipalities
Some municipalities provided feedback on the guidelines with relevant suggestions. Parcel delivery is not easily regulated; particularly in existing city centers and neighborhoods, it is nearly impossible to establish a truly comprehensive parcel pickup system due to the sheer volume of deliveries.
Consumers have historically been accustomed to home delivery. Opportunities may exist in newly developed or redeveloped, often car-free, urban areas. In such areas, parcel delivery, return, and recycling streams, grocery deliveries, and meal box services can be integrated into planning. For businesses, pickup points offer little relief. Societal benefits (such as improved traffic safety and flow) can also be achieved through other measures, such as time window regulations and facilitating the use of Light Electric Freight Vehicles (LEFVs). Parcel deliveries are only a small part of overall urban logistics (less than 10% of freight movements in cities).
Key points of the report
- Challenges of parcel logistics: The growth of parcel logistics presents challenges for municipalities seeking to create livable, sustainable, and safe urban environments. While parcel delivery is only a small part of city logistics, e-commerce is a growing sector with a visible impact.
- Parcel lockers are not necessarily a sustainable solution. Parcel points and lockers might reduce the number of delivery vans on the streets. However, parcel lockers generate extra traffic if delivery services replenish these points in addition to their regular home delivery routes, and EU research indicates that 25 to 50% of consumers pick up their parcels by car (e.g., this Belgian study).
- Consumer preferences: While some prefer to pick up their packages, most prioritize convenience and flexibility. User behavior studies suggest that if distances are short and costs are low, many users will opt for non‑car modes
- Role of municipalities: Municipalities face the challenge of balancing space constraints, mobility effects, and residents’ objections to the placement of lockers and collection points. The report aims to provide municipalities with insight into the opportunities, challenges, and action perspectives regarding parcel points and lockers.
- Strategic options for municipalities: Municipalities can choose from several strategic options for parcel lockers, including no policy, restricting lockers in public spaces, accepting or facilitating provider-specific lockers on private property, commissioning open-access lockers in strategic locations, or allowing parcel lockers broadly based on specific conditions. Some municipalities chose not to stimulate home shopping to support local retailers.
- Categorization of parcel points: The research defines four types of parcel points based on location (private vs. public domain) and function (monofunctional vs. multifunctional): manned service points, parcel lockers in the private domain, parcel lockers at mobility hubs, and parcel lockers in the public domain.
- Multi-actor and multi-criteria: The different interests of consumers, parcel deliverers, and municipalities create tension. Consumers focus on convenience, flexibility, and price, parcel deliverers focus on drop density and cost efficiency, and municipalities prioritize minimizing negative effects on public space and the living environment.
- Best practices: Integrated strategies that align with broader visions of mobility and city logistics can lead to improvements in mobility, reduced emissions, and enhanced traffic safety. The city of Mechelen (Belgium) is presented as an example, where the placement of parcel lockers in the public domain was tendered to one party, resulting in a well-organized network supplied by cargo bikes or electric vans.
- Steps for municipalities: The report proposes a step-by-step plan for municipalities to follow for the placement and management of parcel lockers, including vision formation, research and planning, dialogue and agreements, permits and placement, communication and public information, and monitoring and evaluation.
- Alternative Delivery Methods: The report provides an overview of alternative delivery methods, including parcel points at home, parcel lockers as delivery addresses, mobile parcel points, delivery robots, and delivery drones.
The report concludes that municipalities have an influence on parcel delivery through policy measures. Placing lockers in public spaces is not necessarily disadvantageous, and a shared vision between municipalities and parcel deliverers is needed. Behavioral change is essential to ensure the success of any new system.
And… the most crucial question: why would a municipality support online shopping instead of supporting local stores?
Check out this TNO report.