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Proposed West Midlands Low Emissions Vehicle Strategy

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Low Emissions Vehicle Strategy West Midlands Low Emission Towns & Cities Programme (LETCP) 2016 – 2021 1 PROPOSED – OCTOBER 2016 The LETCP has been promoted by traditional Environmental Health Services with the support of local authority officers involved in transportation & travel planning; land-use planning and development control; procurement; fleet management; taxi licensing; parking and traffic enforcement, together with cooperation from public health specialists and the West Midlands Combined Authority. The West Midlands LETCP acknowledges the assistance provided by Andrew Whittles, Low Emission Strategies Ltd., in developing and supporting the work of the LETCP. 2 PROPOSED – OCTOBER 2016 Contents Page Low Emissions Towns & Cities Programme (LETCP) 6 Foreword 7 Executive Summary 8 Aims & Objectives of the Low Emissions Vehicle Strategy 12 1 Introduction 14 2 Evidence for Change 17 - Air Quality & Vehicle Emissions in the West Midlands 17 - Low Emission Zone Technical Feasibility Study 19 - Health Impacts of Air Pollution 21 - Legal Compliance 24 3 Creating a Low Emission Future 26 - Land-use Planning and Development Control 26 - Public Sector Procurement 28 3 PROPOSED – OCTOBER 2016 - Taxi Licensing 30 - Travel Planning 32 4 Low & Ultra Low Emission Vehicles & Infrastructure Measures 32 - European Emission Standards (Euro Standards) 33 - Total Cost of Ownership (TCO) 35 - Clean Air Zones (CAZs) 35 - Transport Emissions Framework (TEF) 37 - Cars and Light Goods Vehicles 38 - Taxis 41 - Buses 42 - Freight 45 - Low Emissions Vehicle Infrastructure 45 5 Future Challenges & Opportunities 47 Glossary 49 4 PROPOSED – OCTOBER 2016 Figures Page Figure 1 Emission Reduction Progression 14 Figure 2 Low Emission Strategy Drivers, Policy Areas, Stakeholders & Outcomes (adapted from WYLES) 16 Figure 3 Nitrogen dioxide concentrations across the West Midlands (2011) 17 Figure 4 Low Emission Zone Technical Feasibility Study 20 Figure 5 Percentage of Deaths attributable (<75 yrs) to PM2.5 22 Figure 6 Development Classification Mitigation 27 Figure 7 Suggested Clean Air Zone Standard for Taxis 31 Figure 8 European Emissions Standards (passenger cars) 33 Figure 9 Real World NOx Emissions from Diesel Cars compared with Regulated Limits 33 Figure 10 European Emission Standards for Heavy Duty Engines (ICCT 2015) 34 Figure 11 Performance of heavy duty engines against Euro 34 Figure 12 TCO of ULEV and diesel taxis 41 Figure 13 Emission damage costs of ULEV and diesel taxis 41 Figure 14 Relative emissions of buses per Euro Standard and Euro III retrofit (blue = NOX) 43 Figure 15 NOx emissions of the West Midlands bus fleet (tonnes NOx) - baseline scenario 44 Figure 16 Bus routes or streets to prioritise for deployment of Low Emissions Buses 44 Tables Table 1 Source apportionment of NOx emissions at selected locations as a percentage of total vehicle emissions (examples) 19 Table 2 Current and predicted health impacts of NO2 in the West Midlands 23 Table 3 Limit Values & Target dates for NO2 and PM compliance 25 Table 4 World Health Organisation (WHO) Air Quality Guideline Values 25 Table 5 Tender evaluation criteria 30 Table 6 Clean Air Zone Classes 35 Table 7 Clean Air Zone emission standards for vehicle types in Birmingham 36 Table 8 Total Cost of Ownership (TCO) of selected diesel, petrol, hybrid and electric cars 39 Table 9 Plug-in vehicles (cars and light vans) by local authority area 40 Table 10 Current and projected fleet emission breakdown in 2015 and 2020 (normal fleet replacement) 42 5 PROPOSED – OCTOBER 2016 Low Emissions Towns & Cities Programme (LETCP) A proposed Low Emissions Vehicle Strategy (LEVS) for the West Midlands has been developed by the Low Emission Towns & Cities Programme (LETCP), comprising the seven West Midlands Local Authorities: * Birmingham City Council * Coventry City Council * Dudley Metropolitan Borough Council * Sandwell Metropolitan Borough Council * Solihull Metropolitan Borough Council * Walsall Metropolitan Borough Council * Wolverhampton City Council The LETCP was established in 2011 and funded through the Defra Air Quality Grant scheme to enable collaborative work across the West Midlands region in tackling the principle cause of air quality problems - namely road vehicle emissions. The LETCP seeks to compliment and integrate local strategies to focus on improving vehicle emissions through the acceleration in take-up of cleaner vehicle fuels and technologies. The Programme seeks to secure win-win scenarios by promoting measures that not only improve air quality, but concurrently reduce road transport congestion, emissions of carbon dioxide and noise. The LETCP is governed by a Programme Board chaired by Walsall Metropolitan Borough Council and includes air quality representatives of all seven West Midland Local Authorities. The Programme consists of four main work-streams led by specified local authorities: West Midlands Low Emission Strategy (Walsall MBC) Good Practice Planning Guidance (Dudley MBC) Good Practice Procurement Guidance (Coventry CC) Low Emission Zone Technical Feasibility Study (Birmingham CC) Reports produced by the LETCP are available at: http://cms.walsall.gov.uk/low_emissions_towns_and_cities_programme 6 PROPOSED – OCTOBER 2016 Foreword TO BE INSERTED 7 PROPOSED – OCTOBER 2016 Executive Summary The West Midlands, as with any major conurbation around the world, experiences elevated levels of air pollution in urban centres and notably in the vicinity of the strategic and key route road networks. Levels of nitrogen dioxide (NO2) exceed the health-based National Air Quality Objective and European Union (EU) Limit Value in a range of locations and, with the exception of Solihull, all of the Metropolitan Councils have designated Air Quality Management Areas (AQMAs) relating to ambient nitrogen dioxide concentrations. Although particulate matter (PM10) concentrations do not currently breach specific UK Air Quality Objectives and Limit Values, it is acknowledged that reducing concentrations will have significant health benefits. The overriding cause of poor air quality is due to emissions from road transport, and in particular diesel vehicles. Whilst vehicle emissions are progressively reducing, they are not improving quickly enough to tackle the problems we face and action is therefore needed to speed up the transformation of the vehicle fleet; this can often also provide financial benefits to vehicle users and operators. It is recognised that pollution does not respect boundaries and therefore the West Midlands Low Emission Towns & Cities Programme (LETCP) was established to promote further joint working between councils to improve air quality. The LETCP acknowledges that there are no quick, simple measures for tackling air quality problems, and co-ordinated activity is required to develop policies and measures that are capable of influencing continued emission reductions that will not only improve air quality, but create a low emission future that is needed to mitigate global warming. A commitment to jointly tackle air quality also now forms part of the West Midlands Combined Authority ‘Devolution Deal’, signed by the leaders of the seven Metropolitan Borough Councils. 8 PROPOSED – OCTOBER 2016 The Low Emissions Vehicle Strategy (LEVS) forms part of the newly adopted West Midlands Strategic Transport Plan “Movement for Growth”1, which will be implemented by the West Midlands Combined Authority (WMCA)2. The LEVS comprises three main themes that are outlined below. Evidence for Change This section details the evidence base for action in the West Midlands, including: - Details of current and future air quality across the West Midlands, including assessments of the technical feasibility of Low Emission Zones (LEZ) in the West Midlands and further consideration of the introduction of mandated and voluntary Clean Air Zones (CAZs) - Information regarding the health impact that air pollution levels have on the residents of the West Midlands - An outline of legal requirements to improve air quality Creating a Low Emission Future This discusses local authority policy developments to support current and future low emission activity, including: - Good practice land-use planning guidance which encourages air quality mitigation to be considered at design stages, measures to support low and ultra low emission vehicle usage and an innovative approach of using damage costs to evaluate the scale and kind of mitigation necessary to make major schemes acceptable - Good practice procurement guidance which promotes innovative approaches to local authority vehicle procurement and mechanisms to ensure that general procurement is both sustainable and considers social value - Licensing measures to promote the uptake of cleaner cars and taxis 1 https://westmidlandscombinedauthority.org.uk/media/1178/2016-06-01-mfg-full-document_wmca.pdf 2 WMCA replaced the ITA and Centro/PTE on the 17th June 2016 9 PROPOSED – OCTOBER 2016 - Travel planning measures that consider improving the emissions of the vehicle fleet in addition to existing initiatives promoting sustainable modal shift Low & Ultra-Low Emission Vehicles and Infrastructure The LEVS focuses on vehicle emissions, embracing new, cleaner vehicle technology - much of which has been developed within the West Midlands region - and specifically promotes the use of low & ultra-low emission vehicles. It outlines issues with current vehicle technologies and highlights how successive European Emission Standards3 have not performed as well in the real world as had
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