Access Regulation Schemes in Europe - CIVITAS...Lucy Sadler Sadler Consultants CIVITAS Training: Effective Access Management Schemes for Inner City Areas Brussels 18th November 2015

Lucy Sadler

Sadler Consultants

CIVITAS Training: Effective Access

Management Schemes for Inner City Areas

Brussels 18th November 2015

Access Regulation Schemes in Europe

CSadler

onsultants

Specialists in air quality policy

CSadler

onsultants www.urbanaccessregulations.eu

Access Regulations

in Europe

• 220 Low Emission Zones

• 14 Charging Schemes

• >230 major Access

Regulations

• In 23 European countries

• Roadspace regulated by– Emission

– Cost

– User type

– Vehicle type

– Time….

CSadler


Access Regs: Tackling Urban Issues

• Annual costs in Europe– Air pollution:

• 310 000 premature deaths >> road accidents, €427 - €790 billion

• 21% urban pop > PM10 daily LV; 8% > NO2 annual LV (2012)

– Congestion: €100 billion, 1% of EU GDP

– Transport Noise: €40 billion health costs

• Often when other measures aren’t enough– Not magic wand, but ARS often > other measures

• Part of a package of measures– Part of a SUMP - Sustainability Urban Mobility Plan

– Issues assessed, measures analysed & developed

– Best solutions designed

Air Pollution

Noise

Attractiveness

CongestionAccessibility

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Why Access Regulations (2) ?

• Increase urban quality of life– Traffic jams not attractive

– Balance & optimise access options

• For residents, business, visitors, tourists….

– Minimise travelling time overall

– Nicer city centre = more visitors (if access provided)

– Reduced, smoothed traffic = less emissions

• Access for all = standstill for all– London: before, congestion charge speeds = horse & cart

– with, deliveries & public transport moves

• Increasing public transport, bike & walking often need road space

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What are Access Regulations?• Roadspace allocation to certain types of vehicle or user

– Focus: deliveries, coaches, heavy duty, cars, commuters…

– Permanent or time-related (eg peak hour)

– Area affected from single street to whole region

• Simplest is pedestrian zone, in most towns & cities

• Low Emission Zones

– access regulated by vehicle emissions

• Urban Road Tolls, Road / Congestion Charging

– access regulated by payment

• Other Major Access Regulation Schemes

– access regulated by other methods, eg vehicle type, user

– eg Traffic limited zones, such as Italian ZTLs

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Many variations

• Theoretically: Ideally for vehicle operators one type– However, would be either too strict or too lax

• Differences in city & country– Problems

– Scale of problem

– Politics

– culture

– Size, capacity, resources of city

– Timings

– Economic situation

– Alternatives

• Public transport, cycle lanes, bi-pass, retrofitting…

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Range of LEZs

• Wide range of LEZs, Variations on a theme

• Vehicles: from all vehicles → lorries only → public buses

• Sizes: from ~2000km2 → few streets Lisbon Zone 1

• Emissions standards: Petrol Euro 1 → Diesel Euro 4 (Euro VI)

• Enforcement: camera, sticker, checking papers, (transponder)

• Most PM focused - eg Euro 3(PM), Euro 4 or filter

• Greater emissions impact for lower cost

• Retrofit to meet Euro standard, diesel particulate filter, de-NOx

• Most phased introduction

• Combinations of LEZ & Charge

• Future emissions standards

– EU-wide UNECE retrofit regulation → requiring filter possible

– Euro VI & petrol Euro 6 < Euro 5 for NOx & PM,

diesel Euro 6 not so clear, but generally lower than Euro 5 & 4

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• Germany– All vehicles, manual, national framework, 73 cities

• Netherlands– Lorries, cameras, 13 cities, was DPF now not

• Denmark– Heavy duty only, manual, standard encourages full DPF

• UK– London: Heavier vehicles, cameras

– Other cities: public bus, agreement/traffic commissioner

– Scotland: move to LEZ framework

• Italy– Milan Area C: LEZ & Charging, cameras, all vehicles,

– Regional LEZs, all vehicles, manual enforced, complex, many exemptions; motorcycles often an issue

• (Emergency LEZs– Paris, some Italian cities)

Different types of LEZs

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• Cameras, payment required before

– Milan, London, Stockholm, Gothenburg

• Transponders, Cameras (bill sent)

– 8 Norwegian cities

• Cameras, bill sent

– Valetta

• Payment at gate on exit

– Durham

Charging examples

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Traffic limited zones egs• Pedestrian zones

– Gent: large pedestrian zone, set times for loading

– Barcelona: large pedestrian zone, rising bollards

• Heavy duty vehicle bans– Poznan: lorry restrictions for 3.5T, 10T & 16T

– Budapest: 11 protected, 15 restricted permit-only zones. Permit costs dependent on weight & emissions

• Permit schemes– Common in Italy, camera enforced, various requirements

• Coach restrictions– Prague: HDV restrictions 6T, 12T. Plus coach ban historical

centre, parking ban in 6T zone outside certain sites

• Organised parking schemesKrakow, different areas & payment

• Lorry through traffic ban– 13 German cities

• …….

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Range of requirements

• Vehicle type– Cars often targeted (commuters)

– Lorries a key issue, often with different weights

– In touristy areas coaches, while efficient cause issues

– 5+ axle vehicles

• Vehicle Weight– 3.5, 7.5, 12 T most common

– (4, 5, 6, 9, 15, 16, 18 also used)

• Residents– Are often exempted or given reduced cost permits

• Deliveries– Permits or times allowed for deliveries

• Propulsion– Sometimes electric, hybrid or gas fuels exempted / given advs

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Effectiveness depends on many factors• Scheme

– Standard / criteria set / vehicles affected

– How people comply

– How well planned

– How well enforced

• Pre-Scheme vehicle fleet– Vehicle fleet age, types, volume…

• Magnitude & source of problem‒ % traffic pollution / congestion / local

‒ Commuters / school run / coach / tourists

• Geography– Size of zone & city

– Street space available

– Alternatives for users• Public transport, freight consolidation, park & ride, by-pass, good cycle

lanes…

• Funds (raised) for sustainable transport

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Impact of LEZ in Stockholm (in 2000)

0,0

0,5

1,0

1,5

2,0

2,5

3,0

No zone With zone

2000

Full Zone

Illegal vehicles

Motor exchange

Exhaust aftertreatment

Other legal vehicles

Ton /year

Vehicle category

-40%

-50%

Mz_pm02%_uz_mz

%0 - 1

1 - 2

2 - 3

3 - 4

4 - 5

5 - 6

6 - 7

7 - 9

0 1 2 3 4 Kilom eters

N

EW

S

Zone 2000: 0.5 - 9 %

Full zone: 0.5 - 12 %

Emissions of PM10 Emissions of NOx

Concentrations of PM0.2

0

50

100

150

200

250

No zone With zone

2000

Full Zone

Illegal vehicles

Motor exchange

Exhaust aftertreatment

Other legal vehicles

Ton /year

Vehicle category

-10%

-20%

Enforcement improved since this assessment

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Impacts of Milan’s Ecopass• Primarily aimed at PM – Po valley

• Concentration reduced– PM10 annual average 4%, exceedences 13%

• Emissions from traffic (as well as traffic) reduced– PM10 19%

– NOx 11%,

– CO2 9%

• Over time, standards not tightened so impact reduced

Date at which 35 exceedences reached…Annual NOx emissions

16

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Impact Milan’s Area C

• PM & NOx ~ Ecopass, traffic & CO2 < Ecopass

• Traffic ↓ 28-30% (compared to Ecopass)

• Road Accidents ↓ 26%

• Public transport speed ↑ 7.4% bus, ↑ 4.3% trams

• Parking occupation ↓ 10% (↑10% available)

• Polluting vehicles ↓49%

• Cleaner vehicles ↑ 6.1%

• Emissions– PM10 ↓18%, exhaust PM10 ↓ 10%

– NOx ↓18%

– CO2 ↓35%

– Black Carbon ↓ 28-32%

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Impacts London LEZ first phase

• Black Carbon ↓ 40-50%

• NO2: Average ↓ 0.12 μg/m3, peak up to ↓ 0.16 μg/m3

• PM10: Average ↓ 0.03 μg/m3, peak up to ↓ 0.5 μg/m3

• NOx emissions ↓ 2.4% (26 tonnes)

• PM10 emissions ↓ 1.9% (28 tonnes) – reductions from TfL buses ~ ↓90%

2000-2010 yet 32% more km [= ↓ 280%]

No LEZ With LEZ

Rigid HGVs phase 1 Euro 3(PM)

97% compliance

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Other general LEZ impacts

• Traffic flows have remained fairly constant

– Exception is Milan

• Little negative business impacts reported

– Many forecast, including job losses

– DE & NL have ‘hardship’ exemptions; few taken

• Gothenburg haulier & supplier LEZ survey was positive

– 21% very good 'overall rating‘, 28% fairly good, only 20% negative

• LEZs cost both to run and comply with

– Again, exemption is Milan Ecopass in terms of running cost

• But improve health and save money

– But not the same pocket

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Health & Economic gainsLondon predicted• 5200 years of life

• 310,000 fewer cases of lower respiratory symptoms

• 231,000 fewer restricted activity days

• £250-670 million benefit (incl £90-250m outside Greater London)

Copenhagen• 1st phase estimated

– ↓ 90 premature deaths

– ↓10m€

• 2nd phase estimated – ↓ 150 deaths,

– ↓ 150 relevant hospital admissions,

– 750 bronchitis attacks, 8,000 asthma attacks

– 90,000 days of restricted activity

• Diesel emissions classified as carcinogenic, with more health impact than simply PM10 (WHO)

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Impact London CCS• Congestion ↓ 30%

• Traffic volume & circulating ↓ 15%

• Traffic entering zone ↓ 18%

• Time drivers spend stationary / queueing ↓33%

• Bus usage ↑ 38%

• Public transport provided ↑ 23% - more space on roads

• Emissions – Traffic NOx and PM10 ↓ 12% in the zone

– CO2 emissions ↓ 19%

• Journey times shorter, AND more reliable & predictable –esp buses

• Ring road

– Small reductions in congestion, despite slightly higher traffic flows

– Traffic NOx and PM10 < ± 2%

• No significant negative impact on business & economy

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Impact German lorry transit bans• Max emissions reduction potentials

– NOx: 20% NO2: 10%

– PM10: 10% Black Soot 7%

• Calculated for different cities, dates, compliances

• theoretical reduction potentials ranged from 1.2 - 16.7%

• 07.00-19.00 near harbour tunnel– 5+ axle vehicles ↓ 88-96%.

– Noise and pollution levels ↓

– Enabled road space reallocation to Public Transport

– Cyclists increased

• Crossing canal cordon morning peak 8%, College Green 30%

– East Wall Road

• HGVs ↓ 97.5% in cordon hours, ↓ 97% over 24 hours

• Vehicles using road per month in 2009 < per day in 2006

Impact Dublin 5+ axle vehicle ban

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London Experiences

• London Lorry Control Scheme– 1985 controls night-time lorry movements

• Central London Congestion Charge– February 2003, central 21km2 (of 1600km2)

• Low Emission Zone– 2008 heavy duty vehicles Euro 3(PM)

– 2012 also vans (Euro 3(PM) & HDVs Euro 4(PM)

• Coach Regulation– Banned from certain streets, organised parking

• Safer Lorry Scheme– Sept 2015 >3.5T fit side-guards & close-proximity mirrors

• Ultra Low Emission Zone– September 2020, CCS area

– Diesel Euro 4, petrol Euro 4, motorcycles Euro 3

– Plus cleaner public transport package

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London Lorry Control Scheme

• Also known as ‛London Lorry Ban‛

• Purpose to reduce night delivery noise issue

– Traffic & unloading noise

• Permits available

• London boroughs working together

• Regularly reviewed, detailed changes to

roads issued

• Fixed & long term scheme

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London CS

• Committed Mayor as Champion– Need implement mid first term; and be successful

– Implemented despite legal challenge main local authority

– Got re-elected next time on LEZ promise

• Congestion problem widely acknowledged– Speeds were same as with horse & cart

• Consultations, feasibility studies,

• → significant increase public transport– Pump primed – much in place day 1

– Legally: Funds used sustainable transport

• Other significant issues– Equalities; positive

– Air quality

– 8 Consistent Strategies

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London LEZ

• 1600km2, lorries, buses, coaches, vans, minibuses– Feb 2008: Euro 3(PM) Heavy Goods Vehicles >12T– July 2008: Euro 3(PM) HGV 3.5T - 12T, buses, coaches– Jan 2012: Euro IV(PM) HGVs, buses & coaches– Jan 2012: Euro 3(PM) vans >1.205T & minibuses– 2014: Euro IV (NOx & PM) for TfL Buses only

• Met by new Euro VI & hybrid buses, SCR retrofit

• Delivers 75% of Euro IV (NOx&PM) for all heavy duty vehicles

• DPF certification requires full filters, max 20% increase in primary NO2

• Enforced with >100 cameras

• From several stages feasibility study

– With Westiminster during CCS legal action !

– As alternative to up to 40% traffic reduction for AQ LV

• Legal basis CCS– Mayor has power with CCS

– Alternative 33 LBs agreeing….

• Part of Mayors Air Quality Strategy M25

motorway

LEZ area

Congestion

charge area

7

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London Ultra LEZ• Ultra LEZ in London in CCS area

– 2015-20 Increase hybrid & zero emission buses

– 2018 Newly licensed taxis & private hire = zero emission capabe

– Sept 2020

• Car, van & minibus : Euro 4 (petrol), Euro 6 (diesel)

• Motorcycle, moped etc: Euro 3

• Bus, coach & lorry: Euro VI

• Age limit non zero emission capable taxis from 15 to 10 years

• All double-deck buses hybrid / single-deck buses zero emission

– Sept 2023 residents' & disabled discounts expire

– Non-compliance penalty ≈ CCS charge • If don’t comply with the LEZ, pay all 3 charges / penalties

– Traffic pull of central London means wider impact

– Emissions standards diesel ≈ petrol emissions

– New / retrofitting buses rest of London ~ Euro VI (NOx & PM)

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London Coaches

• HGVs overrepresented in cyclist and pedestrian accidents– 53% cyclist fatalities involved lorries (but 4% of traffic)

• Construction vehicles further over-represented– 2011: HGVs 9/16 cyclist deaths, construction 7/9 HGVs

• Quicker achievement of safety regulations

London Safer Lorry Scheme

• Balancing issues

– better access to tourist coaches

– more flexible/smarter use of stopping & parking space

– improved perception coaches

– protecting residents

• Joint with CPT (trade body) & London Boroughs

• ‘Coach Ban Areas’ to protect residents

• Organised Parking to support tourist industry

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Milan

• Ecopass, emissions-related charge (& LEZ)

– Trial for limited period, as no SUMP

– Cost related to emissions, some vehicles banned, complex

– Camera enforced

– Positive impact

– Not tightened, so over time impact reduced

• Area C, simpler charge & LEZ

– Done first as trial

– Then referendum

• Due legal challenge Area C stopped briefly before vote

• People saw how much worse without Area C, so voted for it

– Now confirmed part of SUMP

• Stockholm: similar successful referendum

• Edinburgh: no trial, -ve coverage, unsuccessful

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What not do / avoid

• ‘Secretly release complex ordinances the day before it comes into place’

• Use permit schemes as revenue generation– Goal of traffic reduction not achieved

– Bad publicity & resentment

• ‘Emergency’ schemes– Logistical difficulties (vehicle operators, predictions)

– Questionable effectiveness

• Large lists of exemptions

• Poor / no enforcement– Do: Have penalties proportional to chance of getting caught

– Watch out, good manual enforcement can be expensive

• Few alternatives for access

• Having first phase without impact

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Issues to cover

• Analyse what’s needed for the city

– Part of package of measures - SUMP

– Measures working together different sources

• Good planning

– As simple as possible while fulfilling needs

– Transparent schemes with clear objective

• National/Regional Framework/Coordination

• Communication

– Legally required EU Freedom of Movement

– As widely as possible, as soon as possible; in different stages

• Have enough information at each stage of publicity

• Don‘t re-invent the wheel

– As similar as possible to others

– Easier, less resistance, more successfull

• Consider socio-economic issues

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ARS Support Material

• DG MOVE non-binding guidance

– Access Regulations & logistics published 2016

– Short, key aspects; translation planned

• DG ENV LEZ Guidance

– Draft voluntary guidance, not implemented, useful info

• CLARS Membership

– Free support funded by DG MOVE for public authorities

– Lots of material, including

• EU guidances Best practice collations

• ARS reports Monitoring data

• Emissions testing ARS contacts

• Secretariat to ask questions Guidances etc etc….

– See www.urbanaccessregulations.eu/public-authorities or

contact [email protected] or give Lucy

card / contact & I’ll register

CSadler


More information on Access Regulations

Lucy Sadler

www.urbanaccessregulations.eu

www.urbanaccessregulations.eu/public-authorities

[email protected]

+49 (0) 7641 9375 335

CSadler


Extra slides

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Paris

• Odd-even regulation in emergency situations

– Depending on air quality predictions implemented the

next day

– Odd-even have had little success long term

– Public transport offered free & had capacity

– In London considered, but logistical impact too great

• Staged Low Emission Zone

– Short notice, but low standard

– Tightening steps announced early

– Part of a wider plan with limited traffic zones

– Accompanied by Mayoral statements on diesel bans

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Sweden• 3 in operation since 1996

• 7 towns, Stockholm, Malmö, Göteborg, Lund, Helsingborg,

Möndal, Umeå, Uppsala; with national framework

• Emissions standards to be met by all heavy vehicles - lorries,

buses, coaches

– Until 2010

• Vehicles < 6 years old, or those 6-8 years = Euro 2

– From 2010

• Vehicles <6 years old, or 6-8 years = Euro 3

• Euro 4 allowed in until 2016, Euro 5/EEV until 2020

– Manually enforced, retrofitting must meet all pollutants

4

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Germany

• National framework, local decision & implementation

• All vehicles except 2 & 3 wheelers– Class 2: All diesel vehicles Euro 2(PM); petrol Euro 1

– Class 3: All diesel vehicles Euro 3(PM); petrol Euro 1

– Class 4: All diesel vehicles Euro 4(PM); petrol Euro 1

• eg Berlin from 1.1.2008, from 2010

Freiburg from 2010, from 2012, from 2013

• Baden-Württemberg co-ordinating 20+ towns - those with PM10

problem start March 2008; NO2 problem 2010.

• Manually enforced with sticker, fines & points on your

driving licence

• Tax incentives for retrofits & cheaper loans for new vehicle

purchase to help compliance

5

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Milan (Ecopass)Congestion Charge & LEZ

• More polluting vehicles chargedfor entry 7:30-19:30

– Free: Class 1 • AFV; gas, electric, hybrid

– Free: Class 2

• Petrol: cars Euro 3+

• Diesel: cars & GV Euro 4+ or with filter

– 2€/day: Class 3

• Petrol Euro 1, 2


• Petrol: cars Euro 0; GV Euro 1, 2;

• Diesel: cars Euro 3; GV Euro 3; buses Euro 4 & 5


• Diesel: cars Euro 0; GV Euro 0-2; bus Euro 0-3

• Resident & multiple entry discounts (non-commercial vehicles only)

• In addition to LEZ controls

• Reduced traffic & pollution

• In operation 1.1.2008 - 31.12.2011. Now simple charge plus ban for pre-Euro 4 diesel, pre-Euro 1 petrol (‘Area C’)

9

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Norway• In planning / consideration for 3 towns

• Would work on an ‘Environmental Tax’ basis– Building on existing AutoPASS entry charges

• Vehicles <Euro 6 pay– Lower Euro standard → higher cost

• Camera and transponder enforced– As are AutoPASS and studded tyre charges

Oslo10

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Retrofit certifications

• LEZ-based certifications– So far, each country has had its own certification scheme, similar but

slightly different

– All bring the vehicle to a higher Euro standard for PM

• New ISO Standard– For both PM10 (↓90%) and/or NO2 (↓60%)

– Will be adopted by EU

– Nearly completed, able to be used from end 2014

– Should also enable new standards

• eg Euro III / Euro II + full DPF or

• Euro VI / Euro V + de-NOx

– Means a separate Portugese certification is not needed

• France has new certification based on draft ISO → final ISO when published

11

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Impact of London LEZ – post-implementation

Pollutant Of total emis Of traffic emis

NOx -2% (529T)

NO2 +2.6% (+116T)

CO2 +0.06% (4243T)

PM10 -1.9% (28T) -3%

PM2.5 -2.4% (-26T) -3.7%

NO2

Average concs reduced by 0.12 μg/m3,

Peak reductions up to 0.16 μg/m3

Rigid HGVs phase 1 Euro 3(PM) Artic HGVs phase 1

No LEZ No LEZWith LEZ With LEZ

97% compliance:

PM10

Average concs reduced 0.03 μg/m3

Peak reductions up to 0.5 μg/m3

+ reductions from TfL buses ~ ↓90%

2000-2010 yet 32% more km [= ↓ 280%]

Black Carbon

Reduced by 40-50%

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Edinburgh

• Studies on Congestion Charging

• Unfavourable news coverage

• Referendum during unfavourable coverage,

without trial

• Referendum voted no to charge

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Impact Stockholm CCS

• Traffic across the cordon ↓18%

• Emissions traffic CO2 ↓ 14-18%

• Exempted alternative fuel vehicles in

Stockholm areas.

– Proportion of trips by AFV ↑ from 3% to 13%

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CLARS: Key aspects

• All information stakeholders need for ARS in cities

– Low Emission Zones, Charging Schemes,

Major Access Regulations, Physical Restrictions

– Full information, incl. map, dates, standards, costs, requirements,

penalties, foreign vehicles, exemptions, online registration/payment….

– User-friendly, consistent format, in all EU languages

– Periodic alerts for registered

– Target groups: All who need to travel by vehicle into urban areas

• CLARS Platform for ARS authorities

– Support for public authorities operating / planning / considering ARS

– Members website with collated info, including

• Best Practice, reports, guidance, city egs, vehicle emissions, impacts, construction

– Contacts, info bulletins, forum…

– Target groups: Public Authorities

– Available for informal consultation on EC guidance

Documents

Access Regulation Schemes in Europe - CIVITAS...Lucy Sadler Sadler Consultants CIVITAS Training: Effective Access Management Schemes for Inner City Areas Brussels 18th November 2015