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Final Report Study on Urban Vehicle Access Regulations Authors: A. Ricci, S.Gaggi, R.Enei, M.Tomassini, M.Fioretto (ISINNOVA) F. Gargani, A.Di Stefano, E. Gaspari (PwC) with contributions from experts: G. Archer, S. Kearns, M. McDonald, F. Nussio, A. Trapuzzano, T. Tretvik April – 2017 EUROPEAN COMMISSION Directorate-General for Mobility and Transport Directorate B - Investment, Innovative & Sustainable Transport Unit B4 – Sustainable & Intelligent Transport E-mail: [email protected] European Commission B-1049 Brussels EUROPEAN COMMISSION Study on Urban Vehicle Access Regulations Directorate-General for Mobility and Transport 2017 3 Europe Direct is a service to help you find answers to your questions about the European Union. Freephone number (*): 00 800 6 7 8 9 10 11 (*) The information given is free, as are most calls (though some operators, phone boxes or hotels may charge you). LEGAL NOTICE The information and views set out in this study are those of the author(s) and do not necessarily reflect the official opinion of the Commission. The Commission does not guarantee the accuracy of the data included in this study. Neither the Commission nor any person acting on the Commission’s behalf may be held responsible for the use which may be made of the information contained therein. ISBN: 978-92-79-57535-8 doi:10.2832/64096 © European Union, 2017 Reproduction is authorised provided the source is acknowledged. PRINTED ON ELEMENTAL CHLORINE-FREE BLEACHED PAPER (ECF) PRINTED ON TOTALLY CHLORINE-FREE BLEACHED PAPER (TCF) PRINTED ON RECYCLED PAPER PRINTED ON PROCESS CHLORINE-FREE RECYCLED PAPER (PCF) Final report - Study on Urban Vehicle Access Regulations Table of Contents Executive summary ........................................................................................................ 6 1. Introduction to the overall UVARs theme, policy relevance and rationale behind the study 9 Topics selected .................................................................................................. 13 2. Summary account of the topics selected .................................................................. 15 Literature review ................................................................................................ 16 Stakeholder involvement and contributions ............................................................ 16 Expert contributions ........................................................................................... 17 Workshops ........................................................................................................ 18 Online consultation ............................................................................................. 21 3. Summary account of the individual annexes ............................................................. 24 4. Conclusions and recommendations ......................................................................... 30 ANNEX 1: The Role of Information and Communication in Urban Vehicle Access Regulations (UVARs) schemes ........................................................................................................ 40 ANNEX 2: Vehicle Types, Exemptions and (Cross-border) Enforcement of Successful Urban Vehicle Access Regulations (UVARs) schemes ................................................................... 59 ANNEX 3: Planning, Consultation and Design of Urban Vehicle Access Regulations (UVARs) schemes ..................................................................................................................... 80 ANNEX 4: National legal frameworks for Urban Vehicle Access Regulations (UVARs) schemes 105 ANNEX 5: Evaluation and Assessment of Urban Vehicle Access Regulations (UVARs) scheme 134 ANNEX 6: Technology options and interoperability for Urban Vehicle Access Regulations (UVARs) schemes ................................................................................................................... 163 Index of figures Figure I: The UVARs scheme ......................................................................................... 12 Figure II: The delivering process .................................................................................... 15 Figure III: Composition of UVARs stakeholders ................................................................. 18 Directorate-General for Mobility and Transport 2017 5 Final report - Study on Urban Vehicle Access Regulations Executive summary This report is the Final Report of the DG MOVE study on ‘Urban Mobility - Preparation of EU Guidelines on Urban Vehicle Access Regulations (UVARs)‘, as specified under the contract MOVE/C1/SER/119-2014-371. The study purpose is to assist the European Commission in preparing six high quality non- binding guidance documents (NBGDs) on different aspects of access regulations. The aim of this report is to summarise the key results of the study. Accordingly, the document is structured as follows: • Chapter 1 introduces the overall UVARs theme, providing an overview of the EU policy and objectives underlying the implementation of UVARs schemes and the rationale behind the study. • Chapter 2 describes the methodological approach underpinning the preparation of non- binding guidelines documents (NBGDs), data sources used and the logic behind stakeholders’ involvement. • Chapter 3 provides a summary account of the individual NBGDs, describing the topics examined. • Chapter 4 summarises the recommendations emerging from the individual NBGDs. Overlapping recommendations across the NBGDs have not been repeated in order to provide a consistent picture of the overall indications. • This Final Report is complemented by a separate set of six Annexes, each corresponding to the one individual NBGD: 1. Information and communication (Annex 1), 2. Enforcement (including cross-border), vehicle types, their identification and exemptions (Annex 2), 3. Planning, consultation and design (including definitions and typologies) (Annex 3), 4. National legal frameworks (Annex 4), 5. Evaluation and assessment (Annex 5) and 6. Technology options and interoperability (Annex 6). The study has been carried out by a consortium consisting of two experienced organisations in research and consultancy, ISINNOVA and PriceWaterhouse&Cooper (PwC), under the lead of ISINNOVA. The policy relevance of the UVARs design and implementation stems from the consideration that behind the adoption of the UVARs different schemes, generally three motivations stand out, in isolation or in combination: 1. Environmental aims, such as in the Low emission zones (LEZ) regulative frameworks, in which many cities regulate vehicle access in order to foster the use of cleaner and more energy-efficient vehicles towards enabling the city’s compliance with the EU air quality limit values for particulate matter and nitrogen dioxide. 2. Raising revenues, as in the Norwegian urban road tolling systems, for which funding road construction from toll revenue has been in practice for over 70 years, and also more recently also operate around cities. 3. Reducing congestion, as in the Milan, London or Stockholm cases, in which the key targets are to improve congestion, air quality, urban accessibility, and/or to foster the Directorate-General for Mobility and Transport 2017 6 Final report - Study on Urban Vehicle Access Regulations development of alternative transport modes and the use of cleaner and more energy- efficient vehicles. The European Union addresses the issue of UVARs schemes in the light of the subsidiarity principle, according to which urban mobility essentially falls under the local responsibility. In such a context, the European Commission provides indications and guidelines to deal more effectively with the design and implementation of UVARs schemes, in partnership with Member States and other relevant stakeholders, in order to avoid fragmentation and ensure a seamless transport system. The 2013 EC Communication “Together towards competitive and resource-efficient urban mobility”, pointed out that smarter urban vehicle access regulations (UVARs) and road user charging required “non-binding guidelines” that “would allow cities and Member States to benefit from the experiences elsewhere, and, where appropriate, foster a more common approach to issues such as vehicle categories, road signs, information provision, enforcement, exemptions, and pricing. This would make it easier for users to understand and comply with schemes, while leaving cities flexibility to adapt to their local circumstances”. Against the risk that the growing diversity of different access regulations schemes being implemented in different ways may hamper the achievement of economies of scale and contribute to the fragmentation of the single market, the rationale of this study is to deliver non-binding guidance documents (NBGDs), in accordance and with the involvement of relevant stakeholders, that may assist policymakers in the smooth and successful UVARs implementation. To this end, the guidelines, also include the illustration of best practices to serve as inspiring examples. Therefore, the key factors behind the successful implementation of the practices showcased in the NBGDs, as well as the potential impact of a European rapprochement, have been analysed with the help of external experts and a selected group of stakeholders. The overall analysis has allowed for the identification of a set of recommendations specifically directed to cities that consider the introduction of a UVAR scheme. 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