The zoo is at one end of quite a large park, this enclosure is at the other end. I guess it works as advertising for the zoo. Bear exhibits viewed from outside the zoo are actually not that uncommon in European zoos (Tierpark Berlin and Heidelberg spring to mind), but they're usually right on the zoo boundary.
Bern and Berlin also have bear enclosures completely separate from a zoo, just in the public space, as well.
This really highlights the very different behaviors of the European public and many other first world countries where l am confidant in saying the bear would be killed or injured by the public.
