Clean Air Zones: An Approach for Local Authorities

Transcription

1 Clean Air Zones: An Approach for Local Authorities Investigation of Air Pollution Standing Conference - 6th December 2016, Birmingham. Nigel Jenkins Principal Consultant

2 2 Outline of presentation: Clean Air Zones for non-mandated authorities Local Authority approach for Clean Air Zones Preparing for a Clean Air Zone in Southampton Innovative options for establishing baseline emissions and monitoring compliance. CAZ s and NICE

3 The CAZ framework set outs out the CAZ s are expected to be: be in response to a clearly defined air quality problem; signs along major access routes to clearly delineate the zone; be identified in local strategies at the earliest opportunity; provide active support for ultra-low emission vehicle take up; include a programme of awareness raising and data sharing; include local authorities taking a lead; support healthy, active travel. ensure bus, taxi and PHV emission standards are improved to meet Clean Air Zone standards; Ricardo Energy & Environment in Confidence 3

4 4 Charging Clean air Zones: Local authorities are already able to introduce a Clean Air Zone under powers within the Transport Act Part III of the Act empowers local authorities (as charging authorities ) to make a local charging scheme in respect of the use or keeping of motor vehicles on roads. Before introducing a Class A zone a local authority should explore reducing emissions from buses, taxis and Private Hire Vehicles (PHVs) through existing non charging routes, for example using licensing or working with bus operators through any of the new mechanisms proposed in the Bus Services Bill to raise the emission standards of vehicles entering the area.

5 5 Non-charging Clean Air Zones. Implementing CAZ measures through a variety of routes: Bus Quality Partnerships Bus services Bill* Partnership working and emissions standards compliance Potential LA franchising powers Taxi licencing Age of vehicle and emissions standards Discounts for reduced CO2 and ULEV/plug-ins Traffic Regulation Conditions (TRC): Access restrictions for buses based on emissions and anti-idling Traffic Regulation Orders (TRO): Restrict non-compliant HGVs and coaches from entering zones

6 6 Central Brighton (Bus) Low Emission Zone The Transport Act 1985 gives the Traffic Commissioner authority to introduce a Traffic Regulation Condition for various reasons, including to reduce or limit noise or air pollution. Traffic Regulation Condition - limit bus emissions in Brighton. Emission standards (Euro V) and anti-idling (1 minute) ANPR and compliance surveys Over 100 buses either retro-fitted or upgraded to Euro V and VI supported by 1.25 million DfT Clean Bus Transport Fund for 85 Brighton bus retrofits. Taxis although not covered but drivers observing no engine idling policies whilst stationary at taxi ranks. Also won 195K to design low emission technology for minibus taxis. = 25 taxis retro-fits

7 7 Local Authority approach for developing Clean Air Zones The process for developing the CAZ Options appraisal to CAZ or not to CAZ Determine if a CAZ or other type of strategy is best way forward. Core measures: Assessment of measures: viability, cost, health impacts, funding. Extent of CAZ: consider impacts on communities, stakeholders, delivery partners and neighbouring authorities. Supporting measures: AQAP measures, policies (transport and planning), local ULEV initiatives. Road-map: Planning, implementation, operation and monitoring.

8 8 Preparing for a Clean Air Zone in Southampton. 10 areas of concern in Southampton have been designated as AQMAs. Road transport emissions are the most significant source of elevated NO 2 levels in the AQMA, however, other sectors, including Port activities, are also important in a certain AQMA. Link AQMAs under combined AQAP = City-wide Low Emission Strategy with Low Emission Zone(s) Western Docks Figure 1: Southampton Air Quality Management Areas

9 9 Preparing for a Clean Air Zone in Southampton. Western Docks NO < >70 SCC undertook a Low Emission Zone (LEZ) Feasibility Study for the Western Approaches. The study showed that road transport emissions accounted for between a 1/3 and 2/3 of modelled levels of NOx with port activities contributed to 1/3 of levels at Millbrook. Figure 2: Modelled NO2 on the Western Approaches (2011 ). The study concluded that a LEZ on the Western Approaches for heavy goods vehicles (HGV) would displace vehicle emissions to other parts of the City as road freight looked for ways around the LEZ.

10 10 Options appraisal: Car 1: Low emission car and eco-driving Car 2: ULEV infrastructure Car 3: ITS/traffic management HGV 1: Encourage low emission deliveries HGV 2: Improving HGV emissions for port HGV 3: Gas freight vehicle infrastructure HGV 4: Anti-idling campaign/enforcement Bus 1: Retrofitting of buses Bus 2: Encourage investment in ULE buses Bus 3: Installation of ITS Bus 4: An anti-idling campaign and enforcement hotline for buses

11 Potential quick wins Medium to long term measures Low priority 11 Options appraisal: Ranking of measures by ease of delivery and deliverability. Prioritisation of measures in short-list report ID Measure Car 1.1 Low emission car and eco-driving messaging in the MyJourney sustainable travel campaign Car 1.2 Eco-driving and driver feedback systems on all SCC vehicles Car 2.1 Procurement of low emission vehicles in Council and partner fleets Car 2.2 Low emission vehicle lease/salary sacrifice scheme HGV hr delivery for low emission trucks to encourage fewer peak time HGVs HGV 1.4 HGV standards for deliveries in city centre HGV 2.3 Voluntary Euro V standard for port access HGV4 Anti-idling campaign/enforcement for HGVs Bus 1 Retrofit for buses: SCRT for older buses, Thermal management for Euro 5 Bus 2 ULEV bus scheme ULEV bus is Euro 6 plus 30% less CO 2 Bus 4 Taxi 1 Anti-idling campaign/enforcement for Buses Greater enforcement of, or tighter emission standards in taxi licence *Taxi added in (CAZ requirement) Taxi 4 Taxi 5 Car 2.3 Car 2.4 Car 2.5 HGV 1.1 HGV 1.2 HGV 2.1 Low emission taxis promoted through procurement/contracts Anti-idling promotion for taxis Low emission parking areas Develop EV charging infrastructure, with a common approach to EV recharging payment systems EV car clubs Low emission vehicles used for final delivery from consolidation centre, and greater use of SDC Low Emission vehicles encouraged in DSP work Port booking scheme used to encourage/incentivise low emission trucks HGV 3.1 HGV gas refuelling scheme linked to port and council depot HGV 3.2 Bus 3 Taxi 2 Council gas RCV fleet ITS to improve bus journey times/bus priority Priority low emission taxi ranks Taxi 3 Taxi EV charging points Car 3 ITS/traffic management to help manage traffic at key AQ hotspots. HGV 2.2 Port booking system linked to ITS system to ease flow of trucks to port at key times especially AM peak

12 12 Options appraisal: Impacts on air quality NOx emissions savings and relative % savings 10.00% % % % % Car 1 HGV 2 Bus 2 Car 3 Bus 1 Bus 4 HGV 4 HGV 1 HGV 1a HGV 3 HGV 2a Bus 3 Car % -2.00% NOx emissions savings (kg) NOx emissions savings relative to baseline (%)

13 13 Options appraisal: Aggregating costs and benefits Final ranking of measures (NVP) Societal costs Rank Measure NPV (central, ) BCR (central) NOx emissions savings (kg) NOx em issions savings relative to baseline (%) Costs to SCC 1 Car 1 389, % 2 HGV 2 284, , % 3 Bus 2 278, , % 4 Car 3 73, % 5 Bus 1 72, , % 6 Bus 4 15, % 7 HGV 4 9, % 8 HGV 1-52, , % 9 HGV 1a - 70, , % 10 HGV 3-154, , % 11 HGV 2a - 284, , % 12 Bus 3-374, , % 13 Car 2-2,170, , %

14 Potential quick wins Upda ted ranki ng ID Measure Notes Car 1.1 Low emission car and eco-driving messaging in the MyJourney sustainable travel campaign Car 1.2 Eco-driving and driver feedback systems on all SCC vehicles HGV 1.3 HGV hr delivery for low emission trucks to encourage fewer peak time HGVs HGV standards for deliveries in city centre HGV 2.3 Voluntary Euro V standard for port access HGV4 Anti-idling campaign/enforcement for HGVs Bus 1 Retrofit for buses: SCRT for older buses, Thermal management for Euro 5 Bus 2 Ricardo Energy & Environment in Confidence Impact of measure small but easy to implement Likely to deliver significant net benefit Impact of measure small but easy to implement Likely to deliver significant net benefit Easily achievable where aimed at Euro V Likely to deliver net benefit when impacts outside Soton taken into account Easily achievable where aimed at Euro V Likely to deliver net benefit when impacts outside Soton taken into account Looks achievable and acceptable Estimated to deliver net benefit due to low upgrade costs (Euro VI standard delivers net cost and hence would be medium term priority) Potentially good measure with good public image Delivers small net economic benefit Delivers significant emissions reduction and funding available Could deliver overall net benefit ULEV bus scheme ULEV bus is Euro Delivers significant emissions reduction and funding available 6 plus 30% less CO 2 Could deliver overall net benefit Bus 4 Anti-idling campaign/enforcement for Buses Taxi 1 Greater enforcement of, or tighter emission standards in taxi licence Potentially good measure with good public image Delivers small net economic benefit Good image but not popular with industry; could deliver large emissions savings Could deliver net benefit where newer ICEV or hybrid vehicles are incentivised. Incentivising EV s could incur higher costs Taxi 5 Anti-idling promotion for taxis Easy to implement; on basis of other anti-idling measures On basis of other anti-idling measures, could deliver small net benefit Taxi 4 Low emission taxis promoted through procurement/contracts Easy to do as part of wider procurement activities Could deliver net benefit where newer ICEV or hybrid vehicles are incentivised. Incentivising EV s could incur higher costs 14

15 Low Priority Medium to long term measures Updat ed rankin g ID Measure Notes HGV 1.1 HGV 1.2 HGV 2.1 HGV 3.1 Low emission vehicles used for final delivery Large impact on emissions but challenging to deliver (elec / gas vehicles) from consolidation centre, and greater use of SDC Likely to deliver net benefit when impacts outside Soton taken into account Low Emission vehicles encouraged in DSP work Large impact on emissions but challenging to deliver (elec / gas vehicles) Likely to deliver net benefit when impacts outside Soton taken into account Port booking scheme used to Practical but risks shifting behaviour encourage/incentivise low emission trucks Estimated to deliver net benefit due to low upgrade costs (Euro VI standard delivers net cost and HGV gas refuelling scheme linked to port and council depot hence would be medium term priority) Scheme difficult to get up and running but could deliver large savings Likely to deliver net benefit when impacts outside Soton taken into account HGV Council gas RCV fleet Scheme difficult to get up and running but could deliver large savings 3.2 Likely to deliver net benefit when impacts outside Soton taken into account Car 2.1 Procurement of low emission vehicles in Council Impact of measure small but easy to implement and show leadership from SCC and partner fleets Measure delivers significant net cost but could be important for overall balance of package Car 2.2 Low emission vehicle lease/salary sacrifice Impact of measure small but easy to implement and show leadership from SCC scheme Measure delivers significant net cost but could be important for overall balance of package Car 2.3 Low emission parking areas Larger impact but more time consuming Measure delivers significant net cost but could be important for overall balance of package Car 2.4 Develop EV charging infrastructure, with a Larger impact but more time consuming common approach to EV recharging payment Measure delivers significant net cost but could be important for overall balance of package systems Car 2.5 EV car clubs Larger impact but more time consuming Measure delivers significant net cost but could be important for overall balance of package Taxi 2 Priority/ low emission taxi ranks Difficult to do and enforce On basis of Car 2 assessment, may incur large upfront costs Taxi 3 Taxi EV charging points On basis of Car 2 assessment, may incur large upfront costs HGV Port booking system linked to ITS system to Impact not necessarily clear and technically could be difficult 2.2 ease flow of trucks to port at key times especially Assessed as potentially cost effective in wider HGV 2 grouping AM peak Car 3 ITS/traffic management to help manage traffic at AQ emission impacts are unclear key AQ hotspots. But delivers positive net benefit, even without considering congestion benefit Bus 3 ITS to improve bus journey times/bus priority Impact could be small but useful as part of wider transport strategy Under modelling assumptions (bus corridors) measure delivers large net cost Ricardo Energy & Environment in Confidence 15

16 16 Core measures and road map for a Clean Air Zone for Southampton Phase in CAZ promoting interim standards that can be achieved quickly and additional measures aimed at changing vehicle purchase and use behaviour. Introduce a mandated CAZ in 2019 with enforced emission standards for buses, coaches, heavy goods vehicles (HGVs) and taxis in line with National CAZ Framework. Boundary of the proposed Southampton Clean Air Zone (draft only To be confirmed))

17 17 Supporting measures for a Clean Air Zone for Southampton. Develop a Clean Air Partnership (CAP) in conjunction with neighbouring authorities and key stakeholders to develop common emission reduction policies and measures. The CAP is to introduce a Clean Air Recognition Scheme (CARS) to promote the early uptake of cleaner fuels and technologies.

18 18 Supporting measures for a Clean Air Zone for Southampton. The LES will be re-named as the Clean Air Strategy (CAS) and will include high level messaging, health impact awareness and a programme of measures to support the CAZ The CAZ, CAP and CAS will be supported and promoted through an effective communication strategy working with partners such as Public Health. SCC will work with project partners to introduce mechanisms, including incentives, that will encourage all key stakeholders to aim higher than the mandated CAZ requirements (planning policies, parking) Additionally, SCC will continue to work with the ports to reduce emissions from ships and other port activities.

19 19 CAZ baseline emissions and compliance monitoring. CAZ authorities can establish and monitor emissions from road-side real-world fleet emission studies: Establish baseline emissions and fleet mix (ANPR) Identify real-world pollution sources (target vehicles) Undertake compliance surveys (pre & post CAZ/LEZ) 5 We undertook tailpipe emission measurements of >100,000 vehicles in London. NO 2 (g/kg fuel) FUEL_TYPE Diesel Euro 6 diesel Petrol Petrol hybrid This resulted in new insights into NO x and NO 2 emissions showing high NO 2 from recent diesel vehicles* year of manufacture *Carslaw, D.C. and Rhys-Tyler, G. (2013). New insights from comprehensive on-road measurements of NO x, NO 2 and NH 3 from vehicle emission remote sensing in London, UK. Atmospheric Environment, Vol

20 20 Clean Air Zones and other NICE recommendations. NICE draft guidance out for consultation - closes on 25 January 2017 Other recommendations in support of LA actions not focus on single measure but combination of measures Planning, CAZs, public sector transport services and fleets, smooth driving and speed reduction, modal shift, cleaner routes for cycling, awareness raising Gaps in evidence: Effectiveness of development planning (incl. building design: siting, layout and design), public transport routes, traffic management and enforcement. Further research: effect of trees/vegetation, CAZ s, air pollution alerts,, telematics, exposure to air pollution using different modes of transport.

21 Acknowledgments to: Sam Rouse Steve Guppy - Brighton and Hove City Council - Southampton City Council Nigel Jenkins Principal Consultant Ricardo Energy & Environment 30 Eastbourne Terrace, Paddington, London W2 6LA nigel.jenkins@ricardo.com ee.ricardo.com