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Study on International Practices for Low Emission Zone and Congestion Charging

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Study on International Practices for Low Emission Zone and Congestion Charging WORKING PAPER STUDY ON INTERNATIONAL PRACTICES FOR LOW EMISSION ZONE AND CONGESTION CHARGING YING WANG, SU SONG, SHIYONG QIU, LU LU, YILIN MA, XIAOYI LI, AND YING HU EXECUTIVE SUMMARY China’s rapid urbanization and motorization have CONTENTS caused severe air pollution and traffic congestion in the Executive summary........................................................... 1 country, which in turn has led to a sharp increase in social costs. In Beijing, vehicles account for 31.1 percent, Introduction...................................................................... 5 33 percent, and 50 percent of total emissions of fine Research methodology and framework............................. 6 particles (or particulate matter 2.5, PM2.5), volatile organic compounds (VOCs), and nitrogen oxides (NOx), London case study............................................................ 8 respectively, making vehicles the leading pollution source Singapore case study...................................................... 27 in the city. Growing traffic congestion also imposes high Stockholm case study..................................................... 50 socioeconomic costs. In September 2013, Beijing released the Beijing Clean Air Action Plan 2013–2017, and the Conclusions................................................................... 62 Work Plan for Vehicle Emissions Control 2013–2017, Endnote.......................................................................... 67 in an important effort to tackle transport emissions References...................................................................... 68 problems. One of the key elements of the plans is to study the low emission zone and congestion charging (LEZ/CC) Acknowledgements......................................................... 71 scheme. This scheme is also being considered as a local policy option by other cities in China. Working Papers contain preliminary research, analysis, findings, and recommendations. They are circulated to Cities adopting the congestion charging (CC) scheme stimulate timely discussion and critical feedback, and to collect a surcharge on congested sections of road. The aim influence ongoing debate on emerging issues. Working is to alleviate congestion through curbing travel demand papers may eventually be published in another form and without increasing infrastructure supply. This action has their content may be revised. had a positive influence in London, Singapore, Stockholm, Suggested Citation: Ying Wang, Su Song, Shiyong Qiu, Lu Lu, Yilin Ma, Xiaoyi Li, and Ying Hu. 2016. “Study on International Practices for Low Emission Zone and Congestion Charging” . Working Paper. World Resources Institute, Beijing. Available online at http://www.wri.org/publication/study-international- practices-low-emission-zone-and-congestion-charging. WORKING PAPER | January 2017 | 1 and Milan. Low emission zone (LEZ) refers to a dedicated • What are the main challenges to introducing the LEZ/ emissions control area established to reduce vehicle CC scheme? pollutants. The LEZ policy is created mainly to solve air • What are the main concerns expressed by stakeholders? pollution problems caused by vehicle emissions. LEZ • Are there any complementary measurements to support has been implemented in cities all over the world, and is the LEZ/CC scheme? particularly important in Europe. • How can public acceptance be improved through public communication? This report was developed based on interviews with • What are the main factors to consider when selecting experts in LEZ/CC policies, and observations made LEZ/CC enforcement technologies? during study tours in London, Singapore, and Stockholm. • What are the benefits generated by the LEZ/CC scheme? The report is intended to help readers understand how LEZ/CC policies work to alleviate air pollution and Table ES-1 shows the key features of the LEZ/CC poli- greenhouse gas (GHG) emissions. The report addresses cies implemented in the cities of London, Singapore, and the following questions: Stockholm, and their results so far. Table ES-1 | Comparison of LEZ/CC Schemes in London, Singapore, and Stockholm (I) Features London Singapore Stockholm Policy LEZ and CC CC LEZ and CC Legal safeguards from national government, and Thorough consideration of policy results, while National law on taxation political commitment from local government balancing theory and public acceptance Effective communication between Clear policy objectives, and thorough Highly controlled technology development and government and citizens consideration of details management Successful system trial Comprehensive public consultation, with open Emphasis on social equity and not-for-profit Summary Strong technology support and transparent public communication Focus on public communication and public Transparent revenue allocation Well-designed complementary measurements participation for transport sector Effective management and continuous improvement CC in 2003 (less than 3 years’ preparation) Area Licensing Scheme (ALS) in 1975 and LEZ in 1996 Electronic Road Pricing (ERP) in 1998 (with 13 LEZ in 2008 CC in 2007 (4 years’ preparation) Timeline years of preparation) GPS-based ERP (stage II) in 2017 Initiated by national government and mayor Initiated by government Trial Prerequisites Referendum Multiple Exemptions, including ultra-low No Exemptions, except for emergency vehicles Multiple Exemptions Exemptions emission discount such as police cars, fire trucks, and ambulances 2 | Study on International Practices for Low Emission Zone and Congestion Charging Table ES-1 | Comparison of LEZ/CC Schemes in London, Singapore, and Stockholm (II) Features London Singapore Stockholm 7.00 am–6.00 pm 7:30 am–8:00 pm, Monday to Friday 6:00 am–6:30 pm Charging Monday to Friday 12:30 pm–8:00 pm on Saturdays Monday to Friday Hours 7:30 am–1:00 pm for public holidays (differs at some road sections) Daily Flat Rate £11.50 (about USD 14.2) Charging on passing gantries. Rates vary from 0 SEK 35 (about USD 3.8) charged on to SGD 12 (about USD 8.4), depending on vehicle passing gantries during rush hours Rate type, time, and location Daily Maximum of SEK 105 (about USD 11.3) Dedicated to improving transport system Revenue to national government, no dedicated Dedicated to infrastructure Revenue of London during the first 10 years of usage development in Stockholm implementation Allocation Details of revenue allocation shown on tax bill Impacts on low-income groups, and overall Privacy of vehicle owners Theft of vehicle license plates economy Safety of cash cards Public boycott Issues created by traffic diversion and Charging of non-local vehicles Blocking or changing of vehicle Challenges compulsory enforcement plates to escape charging System reliability Technical feasibility Charging system malfunction Privacy of vehicle owners Decreased business activities in zone Over-charging of taxis with multiple entries to Negative influences on retailers charging zone within charging zone Increased cost of transportation to logistics suppliers Indirect negative influence on business activities Business relocation from downtown Concerns from in the zone area, causing recession within the Stakeholders Dividing charges between taxi drivers and zone passengers Financial pressure on low-income groups Large number of complaints from public Improved public transportation service Reduced vehicle registration fees Extension of public transport services Alternative detour plan Introduction of carbon emissions-based vehicle Complementary scheme Improved bicycle lanes and Optimized traffic signal timing Measures sidewalks Revised certificate of entitlement for vehicles Exclusive parking zone for residents around charging boundaries “Free Pre-Peak Travel” on MRT WORKING PAPER | January 2017 | 3 Table ES-1 | Comparison of LEZ/CC Schemes in London, Singapore, and Stockholm (III) Features London Singapore Stockholm National government released Road Charging Land Transport Authority Gallery, and reader- Public inquiry to collect feedback Options for London friendly brochures and understand public expectations Promotion of CC policy during election campaign Open-to-all traffic information Emphasis on environment charges during promotion Public Professional surveys of public and key Community partner teams to understand traffic Communication stakeholders within communities, and to promote policies Pioneer of congestion charging trial project Strategies Open access details of the policies in newspaper, Social work radio, television, and other media Frequent and accurate disclosure Alerts on charging rate adjustment on policy implementation Road shows and community meetings to Use of congestion charging rather than road tolls communicate with residents Easy-to-understand communication to emphasize congestion alleviation materials Automatic Number Plate Recognition (ANPR): Dedicated Short-Range Radio Communications Early stages: ANPR+DSRC (DSRC): • Verified technology Now: ANPR • Stable • Quick to set up (completion within mayor’s • Labor and construction cost term) • Intelligent Selection of • Recognition rate Technology • Influences on cityscape • Environmentally friendly • Installation of cameras for policy • Flexible enforcement as required by law • Easy to use • Affordable CC policy (within one year of policy becoming • The number of vehicles in Singapore has Trial implementation of CC policy: effective): continuously increased, but traffic volume in • ~10–15% vehicle emission the restricted zone has
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