WORKING PAPER

TRANSPORT TECHNOLOGY CONSULTANTS LIMITED

INTERNATIONAL CASE STUDIES ON PUBLIC COMMUNICATION AND CONSULTATION STRATEGIES FOR LOW EMISSION ZONES AND CONGESTION CHARGING SCHEMES

ANDREW PICKFORD, YING WANG, FEI YE, SHIYONG QIU, AND SU SONG

1. EXECUTIVE SUMMARY Highlights CONTENTS 1. Executive Summary...... 1 Low Emission Zone (LEZ) and Congestion Charging ▪ (CC) policies are usually controversial, and 2. Introduction...... 4 efective public communication is one of the factors 3. Stakeholder Consultation and Public Communication contributing to their successful implementation. Processes...... 5 Public communication involves a process of dialogue 4. Case Studies...... 12 ▪ with diferent stakeholders and a process to interact 5. Key Findings...... 47 with the general public for feedback. 6. Further Research...... 49 ▪ Successful international experience shows that Appendix...... 50 public communication for LEZ and CC should start References...... 52 as early as possible with a feasibility study and should continue through all stages of scheme design, Endnotes...... 53 implementation, operation, and management. Working Papers contain preliminary research, analysis, Public communication should be integrated with the ▪ fndings, and recommendations. They are circulated to LEZ/CC scheme design so as to allow enough time for stimulate timely discussion and critical feedback and scheme changes and for proactive public education. to infuence ongoing debate on emerging issues. Most Public communication should be integrated with data working papers may eventually be published in another ▪ collection to allow for an informative evaluation process. form and their content may be revised.

Suggested Citation: Andrew Pickford, Ying Wang, Background Fei Ye, Shiyong Qiu, and Su Song. 2017. “International Case Studies on Public Communication and Public acceptance plays a signifcant role in Consultation Strategies for Low Emission Zones and the successful implementation of LEZ and CC Congestion Charging Schemes” . Working Paper. World policies. LEZ and CC policies have been implemented Resources Institute, Beijing. Available online at http:// in many cities worldwide, especially in Europe. These www.wri.org/publication/international-case-studies- policies have been proven to be efective in congestion public-communication-and-consultation-strategies- mitigation and emissions reduction. Securing public low-emissions. acceptance for LEZ and CC policies requires several

WORKING PAPER | October 2017 | 1 components, including a statement of initial policy case studies highlight how public communication is objectives, political will, a deliverable operational woven into the policy development process, which itself strategy, and scheme design scalability (i.e., whether the may be split into two stages: ‘internal’ (to defne one scheme can be increased in size). With comprehensive or more possible policies in sufcient detail to enable a references to a variety of international examples, this meaningful stakeholder consultation with a small group working paper focuses on stakeholder communication, of experts and politicians) and ‘external’ (to short-list outreach, and consultation processes as some of the most and refne a single policy to a wider range of stakeholders critical measures to raise awareness and secure support and/or the public) for a LEZ or CC within an integrated for LEZ and CC schemes. transportation package.

The impacts of LEZ and CC are often complex, The working paper will be part of the “Low afecting entrenched habits of commuters, Emission Zone/Congestion Charge (LEZ/CC) commercial operators, and other businesses. Public Communication Strategies” series of Cities adopting a CC policy collect a surcharge on papers. The series will summarize international best congested sections of road. The policy is an attempt to practices in public communication and consultation alleviate congestion through curbing travel demand strategies and show the various ways of communicating without increasing infrastructure supply. LEZ refers with the public in decision-making, preparation, and to a dedicated emissions control area set up to reduce implementation of LEZ/CC policies. The LEZ/CC vehicle pollutants with the aim of improving regional Public Communication Strategies series aims to ofer air quality. Charging a fee or imposing emissions-based a comprehensive package of public communication restrictions on vehicles entering a well-defined zone strategies to safeguard successful implementation. This is needs to be viewed, not as the outcome of a law-making the frst paper in the series. In later papers, we will focus process, but as a policy that mitigates the effects of more on how public communication will be carried out, widely accepted problems, either increasing congestion what measures and tools can be considered in the context or declining air quality. of public communication in China, and what various public opinions are and how they change over time. The successful delivery of LEZ and CC schemes depends on public communication that in- cludes comprehensive notification, promo- The Research Problem tion, intensive monitoring of changes in public This paper was developed based on interviews attitudes and timely adjustment, willingness with experts in LEZ/CC communication strategies, to change, and prudent decision-making. Pub- observations made during study tours in some lic communication also involves a process of dialogue of the case study cities, and literature reviews of with relevant stakeholders, known as public consulta- the studied cities. This paper identifes typical cases of tion. Although necessary, public consultation is not LEZ/CC public policy communication with both successful sufficient to make a scheme successful. Political and and unsuccessful cases analyzed. Telephone interviews public acceptance also depends on a policy that miti- and discussion with international experts on public gates visible problems in a way that satisfies the self- communication of LEZ/CC were also a major channel for interest of informed users. information collection. Most of the experts come from the LEZ/CC implementing agencies that were or are heavily About This Working Paper involved in the development and operation of public communication schemes. This working paper studies 10 cases from Europe, Asia, and the United States to highlight This paper is structured to answer the following the variety of social, political, and environmental questions: contexts within which CC and LEZ schemes were planned and implemented. From the Who are the key stakeholders for LEZ/CC public com- examples studied, two types of consultation process ▪ were identifed; scientifc/professional (such as used in munication, and what are the negotiation strategies Singapore and Germany) and consultative/political (such with stakeholders? as used in New York and Milan). All of the international ▪ What are the roles and responsibilities of respective

2 | International Case Studies on Public Communication and Consultation Strategies for Low Emission Zones and Congestion Charging Schemes

government departments (including city and state Communication of the highest priority policy administrations) in public outreach? ▪ objectives of the scheme should emphasize that What are the institutional arrangements (e.g., the primary aims are to improve air quality ▪ existence of dedicated communications department, or to mitigate congestion. Other objectives may government communication liaison, outsourcing be mentioned as nonprimary, such as the expected commercial companies, and the respective reporting secondary benefts of improved air quality from CC. lines) to support the public communication process? Ideally, the names of the policies used to communicate the scheme should refect its policy objectives and What are the communication measures, contents, ensure that public communication messages are ▪ skills, and plans in diferent phases? understandable and therefore more readily acceptable. What public participation and feedback mechanisms are Public communication needs to be positive and ▪ used, and how to respond to negative public feedback? ▪ proactive and could be used as an opportunity to inform and educate people. Public communication Key Findings is not just a process to present the public with a few facts and leave it at that. It really needs a positive “pro” Based on observations from the development of sample campaign to allow plenty of time (ideally years) for people international cases, recommendations on public to absorb and accept the information, noting that more communication strategies in the design of China’s frst CC information is better than less. People also need to be or LEZ scheme are made as follows: convinced that a CC or LEZ scheme will reduce congestion and harmful emissions, rather than just divert trafc and The development and delivery of public emissions elsewhere, and they should be informed of ▪ communication programs cannot be alternatives to driving and other travel options that will independent of the context of the intended (or prevailing) scheme but must be integrated exist when the CC or LEZ is implemented. within it. Public communication implies interaction Dealing with opposing opinions can be han- with relevant stakeholders and the public. As various ▪ dled through negotiation and the granting of potential scenarios for a CC or LEZ are developed, it certain exemptions in the consultation process is likely that policy objectives and operating strategies to give all stakeholders confdence that their need to be refned, not only to demonstrate that the views are being recorded and potentially used public communication process is meaningful, but to to adapt the scheme design. As a consultation resolve inconsistencies as early as possible and to tool, granting an exemption for a specifc category develop and maintain political and public acceptance. of vehicle type, user category, or usage provides the opportunity for a concession to increase support. ▪ It is important that public communication However, exemptions make a scheme more expensive be carried out as early as possible in the to enforce as there are more variables that need to feasibility study process or the policy design be monitored by the enforcement regime. Too many process. Early initiation of public communication exemptions can also make the CC or LEZ unworkable leaves more room for modification and can reduce or appear to be biased in favor of certain stakeholders. the costs of remedying mistakes and scheme Ideally, consideration should be taken to balance the operations stemming from a higher proportion of cost of exemptions with public support. users that are likely to be noncompliant. Migration from a simple dialogue through public opinion- ▪ Public communication should be integrated based decision-making to more complex forms with data collection to allow for an informative of public participation may not be applicable in evaluation process. Public communications require China’s political and cultural context. Instead, surveys as critical tools to inform and measure the early interactions with the relevant stakeholders development of public opinion on the need for an and the public will benefit the scheme’s execution LEZ or CC scheme and to set expectations on their by illustrating the potential benefits of public respective objectives. Interactions with stakeholders acceptance on scheme sustainability, thereby and the public provide a cost-efective means of providing flexibility in adapting to feedback gained gathering data on travel patterns and preferences, from stakeholders and the public. and these data provide the means to assess public

WORKING PAPER | October 2017 | 3 acceptance. Informed feedback also allows operational Some cities, such as Berlin and Singapore, only select one of strategies for potential CC or LEZ schemes to be refned the LEZ and CC policies to implement, while other cities, such before a scheme is implemented and to maintain London and Stockholm, enforce both. Even though LEZ and sufcient public support. In addition, data gathering CC difer because of diferent objectives in general, both of also allows for ongoing monitoring, which is required to these policies deal with the popular emerging challenges in measure the levels of support and public attitudes. the transportation sectors in many cities worldwide and afect road users because of the fees that are imposed. Convincing Recommendations users to pay for road use or to reduce emissions from road use Securing sufcient levels of public support through (e.g. by switching to lower emission vehicles or other mea- public communications is important. Without public sures) may be controversial. Users may not trust the govern- support, the necessary development of local regulations may ment to use revenues efectively; there may be a historical lack be blocked, operating costs may increase, and the reputation of confdence in local transportation authorities to implement of the implementing authority may even be threatened. On projects successfully; the benefts may not be readily visible the other hand, when support is obtained and the benefts of (such as reduction of harmful emissions); and for price-based CC or LEZ are delivered, this presents the best opportunity schemes, users may perceive that benefts accrue to others to ensure that a scheme is sustainable and regarded as a re- (such as public transportation users); or frustrations may arise gional or national precedent. With no LEZ/CC implemented because users are ofered no other alternative to paying a fee if in China, a successful pioneer implementation supported by they use their vehicles within the regulated zones. efective public communication strategies will make it easy to promote the policy elsewhere nationally in the future. Securing sufcient levels of political and public support is therefore important. Without political support, the necessary 2. INTRODUCTION development of local regulations may be blocked. Lack of public support can also increase operating costs and, in the 2.1 Background worst case, can threaten the business case and the reputation of the implementing authority, which could make it difcult Since the enactment of the 2013─17 Beijing Clean Air Action to promote the policy again in the same location or elsewhere Plan, LEZ/CC policies have been studied for several years as nationally in the future. On the other hand, when support measures to reduce trafc congestion and vehicle emissions. is secured and the benefts of CC or LEZ are delivered, this Every time news about the LEZ/CC policies appears in presents the best opportunity to ensure that a scheme is sus- public, it leads to a heated and controversial discussion. tainable and regarded as a regional or national precedent. Facing the various voices from diferent stakeholders, the government usually chooses to stay silent. However, based on the international experience, efective public Examples in Berlin, London, Milan, Stockholm, and communication between the government and the public elsewhere demonstrate that LEZ/CC policies can succeed often results in a better understanding of the policies, which in cities of widely varying sizes and economic backgrounds. always helps win more public support on LEZ/CC policies. In these cases, public communication faced complex organization structures and conficting interests that were Cities adopting a CC policy collect a surcharge relating to the harnessed (or at least satisfed sufciently) during the use of vehicles on congested sections of road. The policy is an consultation process to bring reduced congestion and vehicle attempt to alleviate congestion through curbing travel demand emissions and their related sustained benefts to road users without increasing infrastructure supply. Congestion charging and non-road users, businesses, retailers, and individuals. is aimed at marginal consumers, rather than all travel groups, who do not show strong preferences among travel modes but Communication is a process of dialogue with relevant are keenly sensitive to travel cost. These marginal consumers’ stakeholders. The successful LEZ/CC schemes usually attention to travel cost makes it possible to channel their depended on public communication that included choices on travel modes through the CC policy. comprehensive notifcation, promotion, intensive monitoring of changes in public attitudes and timely LEZs are dedicated emission control areas set up to limit adjustment, willingness to change, and prudent vehicle pollutants with the aim of improving regional air decision-making. Based on a detailed review of public quality. LEZs are widely implemented globally and have communication of LEZ/CC policy cases globally, this become an important measure to improve air quality. working paper aims to advise the decision-makers on

4 | International Case Studies on Public Communication and Consultation Strategies for Low Emission Zones and Congestion Charging Schemes

how to properly engage stakeholders in the policy-making companies, and the respective reporting lines), process and how to communicate efectively with the public where known; so as to reduce or neutralize possible public objection when Government communication measures, content, skills, introducing such controversial road-charging policies. ▪ and plans in diferent phases; The working paper will be part of the “Low Emission Zone/ ▪ Public participation and feedback mechanism; and Congestion Charge (LEZ/CC) Public Communication Response to negative public feedback (measures, key Strategies” series of papers that summarize international ▪ messages). best practices in public communication and consultation strategies and show the various ways of communicating Several schemes are described highlighting a variety of with the public in the decision-making, preparation, and approaches to communication and outreach that in many implementation of LEZ and CC policies. The “LEZ/CC cases are aligned with successful scheme implementation. Public Communication Strategies” series aims to ofer a In addition, some examples will highlight failures to get comprehensive package of public communication strategies acceptance, invariably stemming from (but not always to safeguard successful implementation. This is the frst because of) inefective communication and consultation paper in the series. In later papers, we will focus more on as important lessons can be learned from failure. For how communication will be carried out and what measures example, London’s public communication strategy on its and tools can be considered in the context of public 2003 CC policy was assessed in detail, as it was the frst communication in China. major successful scheme of its kind, and its success was largely attributed to a well-planned, multi-phased public 2.2 Scope and Methodology communication process. Reference schemes are described, including those that were associated with unsuccessful This working paper studies international practices regarding implementations. Failed cases like Edinburgh, Manchester, the public consultation and communication policies for LEZ/ and New York were also analyzed through a literature CC. Ten case studies from Europe, Asia, and the United review or direct discussion with related experts. Cases with States are discussed in the following sections to highlight the a Chinese cultural background, such as Singapore and variety of social, political, and environmental contexts within Hong Kong, were also taken into consideration. which CC and LEZ schemes were planned and implemented. This paper identifes typical cases of LEZ/CC policy public Chapter 3 provides the conceptual framework and further communication through a literature review and expert details on the process of stakeholder consultation and recommendation, with both successful and unsuccessful the critical role of public communication. Chapter 4 is cases analyzed. Telephone interviews and discussion with focused on international examples, including successes international experts on public communication of LEZ/CC and failures, to highlight best practices in consultation and policies were also a major channel for information collection. communications. Chapter 5 builds on the idealized scope Most of the experts come from the LEZ/CC implementing and objectives in the context of international experience agencies that were or are heavily involved in the development to make recommendations that could be relevant to the and operation of public communication schemes. development and implementation of new CC and LEZ policies. Section 6 provides links to further research Within the limits of confdentiality and completeness of relevant to the schemes cited in this working paper. primary and secondary data, each example is described in terms of the following dimensions: 3. STAKEHOLDER CONSULTATION AND Identifcation of key stakeholders and negotiation ▪ strategies with stakeholders; PUBLIC COMMUNICATION PROCESSES Role and responsibility of respective government de- 3.1 Context ▪ partments (including city and state administrations) A consultation process is usually focused on seeking views in public outreach; on a limited range of topics over a limited time in order Institutional arrangements (e.g., existence of for the consultation host to gauge the level of support for ▪ dedicated communications department, government key proposals. Communication is where governments communication liaison, outsourcing commercial want to educate the public, particularly to seek support

WORKING PAPER | October 2017 | 5 of or compliance with policies and goals. Consultation based evidence (as used in all current CC and most and communication are usually intertwined for policies LEZ schemes described here); like LEZ and CC where the public is the largest and most The availability (or lack) of critical stakeholder. Therefore, in most cases shown in this ▪ working paper, the communication process is embedded Alternative routes for through trafc, within the consultation process. Flexibility to change the time of travel to avoid time-based charges (reduced fexibility is often A comprehensive consultation process would identify associated with heavy goods vehicle schedules, as stakeholders to a fne level of granularity to ensure that observed during the New York CC consultation the most relevant information is communicated to each. process, and shift workers, as seen during the Any feedback mechanisms would be provided up to the development of the London CC scheme), and deadline date of the consultation phase. Following the High quality alternatives to the convenience of consultation period, views would need to be analyzed, driving, such as Bus Rapid Transit (BRT), light rail, categorized, summarized and, in some cases, published via or mass transit services; and the Internet or other media. Of course, the consultation and related communications process may be multi-phased to The identifed need for a comprehensive regional properly capture stakeholders’ views for complex projects ▪ transportation package, for example, the platform on or where the period of planning is long and during which which Gothenburg’s CC scheme was developed. stakeholders’ views may have changed measurably. Stakeholder consultation and related public Cities are complex in many dimensions, including their communications processes aim to build and maintain jurisdictional structures, entrenched travel habits, legitimacy for a LEZ or CC scheme by informing dynamically varying demand, wide variation in land-use perceptions and developing and maintaining positive patterns, growth limitations caused by natural restrictions stakeholder attitudes. Therefore, consultation for an (such as rivers or national boundaries), coalitions LEZ or CC depends on cooperative and consultative of interests (e.g., road user associations, residents’ interactions with several parties including local government cooperatives, and political parties), national regulations on departments, political organizations, government car ownership (such as a frst registration tax) and vehicle authorities (national, regional, and local), road user groups usage (such as fuel tax, insurance, and parking fees), rivalry (such as automobile associations and freight transportation among local economic regions, and ferce competition for operators), local employers (such as hospitals, schools, government resources for other local projects. ofces, and factories), residents (such as property owners and residential cooperatives), and other individuals. The need for policies like LEZ or CC is mainly driven by the transportation and environmental challenges and pressures faced by many cities. Among many issues, the context of 3.2 Stages stakeholder consultation and communications policy is Public communication and consultation should be a likely to face one or more of the following challenges: process of dialogue and interactions (prompted by structured questions) with selected stakeholders, perhaps Publicly visible transportation-related problems, such prioritized as ‘internal’ (government) and ‘external’ ▪ as declining air quality, worsening congestion, and (other government departments and the public). Each increasing journey time variability; phase of a consultation process should have a specifed An identifed need for additional road infrastructure start and end date, and it should inform decisions on the ▪ and lack of public funds to do so; objectives, scope, and implementation for the scheme. Consultation should have the efect of encouraging greater ▪ Precedents already established, such as Singapore’s Area involvement from stakeholders and help to refne the policy Licensing System (ALS) that enabled the evolution to objectives and scheme operations strategy, among other Singapore’s current ERP policy, or the CC in Stockholm attributes. Consultation and interaction with the public that paved the way for a similar scheme in Gothenburg; with communications campaigns is likely to be an ongoing The existence of proven enforcement processes, based process, not just during the pre-implementation phase, but ▪ on expert witnesses or automatically captured image- during piloting and subsequent full-scale implementation.

6 | International Case Studies on Public Communication and Consultation Strategies for Low Emission Zones and Congestion Charging Schemes

At this point, it is important to diferentiate among three A formal consultation is usually used to defne the CC and stages of stakeholder interaction (Figure 1): LEZ policy design and the operational strategy with other stakeholders prior to implementation. Specifcally, formal (a) Informal consultation: to shape policy through dialogue consultation aims to with a limited range of stakeholders (mostly internal); (b) Formal consultation: to refne policies in a structured ▪ develop and maintain a channel for dialogue between manner, based on informing and securing feedback the sponsoring organization and other stakeholders, from other political and public stakeholders and including road users and non-road users; (ideally) gaining sufcient level of support for raise awareness of the potential forms of the scheme proposed CC or LEZ schemes, potentially within a ▪ and their relative impacts, based on one or more larger investment in transportation; and provisional concepts of operations described from the (c) Ongoing dialogue during operations: to refne the perspective of each stakeholder, including competent scheme’s operational strategy, confrm achievement of authorities and vehicle operators; policy objectives, and monitor ongoing acceptance. ▪ develop an understanding and acceptance of the benefts; confrm the scale and scope of the implementation The informal consultation process aims to shape policy ▪ and the sequence by which the scheme could be rolled themes and general policy structure. This stage may be out over time and by successively including additional informed by liaison with other international scheme vehicle categories; operators, local studies on congestion and emission trends, and technology trials to confrm technical confrm the level of adoption or intention to adopt a feasibility in a structured of-road environment. ▪ scheme by road users;

Figure 1 | General Consultation and Communication Framework

1 2 3 Informal Consultation Formal Consultation, Policy Shaping Policy Refinement, Phased Implementation Scenario-Building Scenario Selection

1 2 4

1. Scope and shortlist 2. Refine policy 3. Refine operational strategies and policy options and options and demonstrate objectives met adapt operational details • Lock-in stakeholder acceptance • Internal stakeholder • External stakeholder • Demonstrate benefits buy-in buy-in • Meet expectations • Gain support from • Trials (optional) as veto-holders communication tools 4. Perfect and enhance operational • Set expectations • Concessions strategies • Set expectations • Maintain support • Measure and report • Build case for refinements • Confirm internally and externally

WORKING PAPER | October 2017 | 7 Figure 2 | The Role of Formal Stakeholder Consultation, Public Communication, and Attitudinal Measurement as Part of the Development of Policies for CC and LEZ Precedents

Views of peers, family, Perceptions Attitudes business and associations

Costs, Benefits to Me, Consultation, Awareness, Use of Revenues, and Public Understanding and Confidence in Communications Acceptance Objectives, Trust, etc.

Adapt process and Broadcast media, key messages social media Local precedence Consultation Feedback Channels, Surveys and Market Research

confrm the potential scope of integration with other members, etc.), the local precedence of public-sector ▪ stakeholders’ initiatives (e.g., public transportation initiatives of similar complexity, the media (as well as and infrastructure improvements); and social media), and the information presented as part of confrm the approach to governance of the design and the public communications strategy. ▪ implementation of the scheme, potentially including a liaison group that includes key stakeholders. Stakeholder perceptions drive stakeholder attitudes that may be measured through interviews, surveys, panels, and focus groups although it is likely that the The roles of formal stakeholder consultation and public media may be regarded as refecting one dimension of communication, including the critical feedback channels, public attitude. As stakeholders develop awareness, are shown below in Figure 2. understanding, and (ideally) acceptance of a proposed CC or LEZ scheme, the messages that form part of the public During the operational phase itself, continued public communications will need to be adapted. According to communication, surveys, and performance monitoring the Department for Business, Enterprise and Regulatory are important tools to reassure stakeholders that policy Reform (2008) in the UK, “…consultation documents objectives are being met in the context of changing should be clear about the consultation process, what is economic and social contexts over the long term. being proposed, the scope to infuence, and the expected costs and benefts of the proposals.” Public communication is an integral part of the consultation process and is used throughout the Ideally, high levels of awareness (e.g., mass marketing development, implementation, and operation of a through leafets delivered to households) suggest that CC or LEZ. Figure 2 highlights how stakeholders are increased levels of detail may be provided (Section 3.3 influenced by their peers (other professionals, family below) to develop a high level of understanding of what

8 | International Case Studies on Public Communication and Consultation Strategies for Low Emission Zones and Congestion Charging Schemes the scheme will achieve and how it works. Finally, a high 3.3 The Dimensions of Stakeholder level of understanding (confrmed through structured Consultation measurement) provides the basis for acceptance. The dimensions of the formal consultation processes are Communication methods are generally multichannel such as leaflets, media events/interviews, Internet/ ▪ duration and phasing; social media (e.g. WeChat), on-street trials, public development and presentation of relevant information; hearings, and road shows that provide the following ▪ communication with relevant stakeholders; information: ▪ the asking of objective questions and the ofer of The underlying rationale and policy objectives (e.g., ▪ meaningful options; ▪ mitigating congestion, funding complementary measures, reducing harmful emissions, funding new ▪ management and coordination; infrastructure, and subsidizing and improving public facilitation of feedback; and transportation); ▪ sustainability, at least to maintain measures of ongo- The initial scheme concept or design and the potential ▪ ing acceptance and achievement of policy objectives. ▪ timetable(s) for implementation; ▪ Potential benefts (and costs) to stakeholders; Duration and phasing ▪ Feedback mechanisms that would permit all The external stakeholder communication campaign stakeholders to express their views and submit should initially focus on building awareness and an enquiries and complaints; and understanding of the basic facts for the scheme and/or the How well the scheme meets policy objectives and broader transportation package in which the scheme is ▪ potential changes to the objectives themselves during integrated (Figure 3). The campaign should also address the operations phase. the long-term future and impact of the scheme.

Figure 3 | The Phases of a Public Communication Campaign Leading up to the “Go Live” (Operations Commencement) Date

Build awareness and understanding (basic facts of the scheme and who is affected)

Action if affected, how to participate (register and pay), select alternative mode campaign:

The shape of a or time of travel (CC), upgrade vehicle (LEZ), modify vehicle routing (LEZ) public information public

Who is affected, how it works, where When, where and how to pay, What is it, what are the revenues being used, what is it upgrading vehicle (LEZ), what problems does meant to solve? happens if I do not comply? it solve, when phasing Message

over time: over and where? Register for scheme and get tag or on-board unit (if needed) discounts, exemptions, vehicle emission classes (LEZ)

Time

WORKING PAPER | October 2017 | 9 An outline describing the policy (and potential variations) opment of a list of statements relevant to each of the stake- should be prepared that is relevant to each stakeholder holder groups to provide them with some prior thoughts, group. Each phase (two or three should be sufcient) followed by the simple question, “What do you think about should have a fxed length of time, and the shortest phase this?” (Ipsos MORI 2008). For example, the outline should should not be less than 12 weeks, extended by any public explain if the scheme could change anything for the specifc holiday periods. stakeholder group with respect to its roles and responsibili- ties. The outline should also clearly explain the purpose of Feedback from the consultation process may require a the consultation process and how feedback will be used. revision to the outline scheme design, and sufcient time should be allowed for this before commencing the drafting Several studies have led to complementary conclusions of local regulations based on the design. Misconceptions (Odeck and Kjerkriet 2010); marketing the positive and misunderstandings should be addressed early, and benefts before implementation may help develop favorable surveys may be used to gauge the level of awareness and perceptions and therefore a positive attitude. This suggests understanding of stakeholders. that the consultation and public communication process should aim to provide increased (rather than reduced) Development and communication of relevant information levels of information to stakeholders.

An outline defnition of the scheme (potentially including In the context of the Stockholm CC scheme, the scheme alternatives) should be prepared that is relevant to each operator (IBM) stated in 2008 that, among the lessons stakeholder group and that has a sufcient level of detail, learned, one of the critical success factors in scheme noting that negative views are more often expressed by implementation “was [to ensure] an efective marketing/ individuals who claim that the information they received public information campaign.” In 2014, Sweden’s former was too little (Figure 4). Environment Minister Måns Lönnroth declared that four of the six conditions for success were “the [planning and As part of the preparation of the consultation process, one implementation] organization, clear objectives, extensive should put oneself in the shoes of the various stakeholders public communication, and the [potential for] adaptation” and ask, “What is in it for me?” This might lead to the devel- (Lönnroth 2014).

Figure 4 | Post-Implementation Survey on Adequacy of Information Provided

60 Negative view holders Positive view holders 50 50

40 36 32 30

22 21 20 15 % of positive and negative attitudes % of and negative positive 9 10 8 4 2 0 Very little Little Adequate Much Too much

10 | International Case Studies on Public Communication and Consultation Strategies for Low Emission Zones and Congestion Charging Schemes

Commmunication with relevant stakeholders On-street surveys will only be able to target shoppers ▪ or commuters in defned areas at specifc times of the Suggested stakeholders (i.e., organizations that are day; and most likely to be afected by the costs and benefts of the scheme) were described in Section 3.1. For some ▪ Internet surveys generally attract self-selected stakeholders, it would be most efective to establish respondents, often refecting polarized views. a one-on-one dialogue to ensure that their specifc perspectives are captured. According to the Department Management and coordination for Business, Enterprise and Regulatory Reform (2008, p10), “Consultation exercises should be designed to be An owner of the consultation process should be desig- accessible to, and clearly targeted at, those people the nated, as well as the sequence of consultation, aggregation exercise is intended to reach.” of responses, the target date to produce a summary of feedback, and, fnally, the target date for any revisions to Ideally, the sponsoring authority should periodically meet the outline scheme defnition. individual members of the public (e.g., a road show or pop-up kiosks in shopping malls) or organize workshops According to the Department for Business, Enterprise and to inform them of travel options and planned improve- Regulatory Reform (2008, p11), “Keeping the burden of ments. consultation to a minimum is essential if consultations are to be efective and if consultees’ buy-in to the process is to The asking of objective questions and the offer of mean- be obtained.” ingful options Facilitation of feedback Options should be presented objectively and may include the sequence of roll-out for the scheme, the parties Decide how the fndings of the consultation process should involved in a pilot scheme and the principle of basing a be relayed back to selected stakeholders. scheme on vehicle type determined by its Gross Vehicle Weight (GVW), its emission class (assuming that these are According to the Department for Business, Enterprise and acceptable to the implementing agency) or other metric. Regulatory Reform (2008, p12): “Consultation responses Note that the established vehicle taxation classes and the should be analyzed carefully, and clear feedback should be measurability of these with an automatic enforcement provided to participants following the consultation.” Note system will infuence the choice of vehicle types that are that some of the examples cited below highlighted limited described in the public communications. feedback (for example, Hong Kong, Milan, and Gothen- burg) although it is recommended that sufcient feedback Consultation for CC or LEZ is usually based on scenarios be provided to stakeholders as part of the consultation or stories that make the scheme more understandable and process to build legitimacy for the proposed policies. tangible to consultees. Sustainability It is generally good practice to make sure that there is During the operations phase, it is critical to have a con- a sufcient variety of communication channels so as to tinuous measurement of stakeholder satisfaction and com- ensure that stakeholders may express their views. Chan- munication of the performance of the scheme. Measure- nels may include Internet response forms, road shows, ment of satisfaction may suggest policy refnements, and and telephone call centers. Surveys may be conducted by periodic public communication that expected objectives phone (i.e., random selection), on street, or by Internet are being achieved serves to reassure stakeholders. although the responses for each must refect the fact that each is likely to have a selection bias: Although outside the scope of this study, the ongoing im- pact of the London CC scheme was reported in six annual ▪ Telephone surveys will only capture the views of indi- reports, confrming the degree to which policy objectives viduals with a telephone; were met and presenting other impacts (e.g., environ- Door-to-door surveys have the beneft of reaching a mental, social, business/retail, modal split, social costs, ▪ wide audience but will tend to refect district-level and benefts). Signifcant potential changes, such as the views; introduction of emissions-based charging and account-

WORKING PAPER | October 2017 | 11 based charging, triggered short-term consultations that some examples show an evolution of the schemes, each resulted in the rejection and adoption respectively of these one building on the lessons learned from earlier versions. policy refnements. The scheme sponsors in Italy and Swe- A broad geographic selection was made from large and den continue to publish periodic performance reports for small countries and from countries where there was schemes in their countries. only one scheme to countries where there were two or more. Finally, the examples include schemes that had In addition to periodic reporting, a successful CC or LEZ failed sometime during stakeholder consultation, mostly scheme is likely to continuously generate positive inde- during the consultation process due to lack of political or pendent news stories that reassure stakeholders and may public support. further reduce dissatisfaction among those who are op- posed, and increase satisfaction among those who are in In many of the examples studied, stakeholder consultation favor, for example, improvement of road safety and speed, and communication processes focused on a transportation reduced travel time and emissions, and perception of im- policy package that included a combination of entry proved air quality (Green et al. 2015). Certainly, every at- restrictions, complementary benefts, and other measures tempt should be made to publicize such good news stories. within a larger area in which a LEZ or CC scheme exists.

Table 1 below highlights the diversity of schemes short- 4. CASE STUDIES listed. The frst six international examples described exhibited success at some stages of the consultation and 4.1 Introduction implementation process. The last four cases highlighted The international examples described below were selected the lessons where LEZ/CC were not successfully from Europe, Asia, and the United States to highlight a implemented. variety of social, political, and environmental contexts that infuenced the planning and implementation of CC An introduction is provided for each project, and the or LEZ schemes. Also, since the success of any scheme related consultation process for all is described in Sections may be measured in part by the level of public acceptance, 4.2 to 4.11. Note that for some examples, complete

Table 1 | International Examples

Territory Region Scheme Type Urban Size (Large >5M, Medium 2-5M, Small <1M) Implemented

Germany Berlin LEZ Large Yes

Italy Milan LEZ (then CC) Large Yes

Singapore National ERP Large Yes

Stockholm CC Small Yes Sweden Gothenburg CC Small Yes

London CC and LEZ Large Yes

UK Manchester CC Medium No

Edinburgh CC Small No

US New York CC Medium Noa

China Hong Kong SAR ERP Large Noa

Other - Various Various In progress

Note: a Under consideration again.

12 | International Case Studies on Public Communication and Consultation Strategies for Low Emission Zones and Congestion Charging Schemes

Berlin LEZ

Source: http://www.stadtentwicklung.berlin.de/umwelt/luftqualitaet/umweltzone/en/gebiet.shtml

information was not available either through primary or German and foreign-registered vehicles are covered by secondary research. In some cases, this was compensated the regulations and are required to buy a windscreen for by interviewing individuals who had been involved label that confirms payment of the time-limited directly or indirectly in the scheme implementation. access fee and, by its color, the related emissions class according to the vehicle manufacturer’s declaration.1 4.2 Berlin Germany: Manual enforcement is used, which levies fines of Umweltzone (Environmental Zones) EUR 40 (USD 12) and one driving license penalty point for noncompliant vehicles identified within 4.2.1 Background the umweltzone. Each city that wishes to implement The Federal Government of Germany transposed the a scheme is required to develop a marketing and European Commission’s Air Quality Framework Directive education program to ensure that all road users into national law on September 11, 2002, through the understand how the scheme works and that sufficient 22 Bundesimmissionsschutzverordnung, known as incentives are put into place to encourage the use of the 22. BImSchV, which requires information on air public transportation, the purchase of low emission quality (measured by a national network of air quality vehicles or upgrades to existing vehicles. monitoring stations) to be disseminated to the public. Berlin has a population of 3.5 million and is Europe’s When these stations report PM10 concentration levels that exceed mandated levels on 35 or more days in a second most populous city (after London with 8.3 year, the relevant city must develop a short-term action million). The relatively long (2.5 years) planning and plan for the reduction of emissions, complying with a stakeholder consultation period of Berlin’s Air Quality national framework that defnes the emission classes and Plan ensured sufcient levels of acceptance, refected the rules by which any German city may defne its own the complexities of a larger metropolitan population, the local scheme. As of the frst quarter of 2015, almost 75 more complex regional jurisdictional structure,2 and some cities in Germany had chosen to implement a time- and delays in securing additional funding from the national emission-based umweltzone (environmental zone) in their government to subsidize the installation of particulate respective central business districts (CBDs). traps on diesel vehicles.

WORKING PAPER | October 2017 | 13 During the communication campaigns, it was found that legislation and consultation with each province (Lands). implementation was controversial because of the costs Thereafter, whenever each city is required to develop an imposed on vehicle owners, particularly commercial feets. action plan, the respective public communication is lined up Diesel vehicles can be retroftted with a particulate matter with stakeholder consultation and information dissemination (PM) reduction system to enable them to be classifed related to the action plan at the city level. in a more favorable (lower) emissions category. Costs range from EUR 2,000 to EUR 7,500 (USD 2,400 to USD PROGRAM TARGET DEFINING 9,000) plus ftting, depending on vehicle type. In one Despite the fact that the policy impact of an umweltzone online survey, 91 percent of respondents disapproved of is improved air quality, the difculty in establishing the LEZ due to perceived bureaucracy and little perceived a measurable target, given the multitude of variables efects on air quality: (e.g., meteorological conditions and other background contributors, etc.), means that the public communication If needed, retroftting requires the vehicle to be of the programs could not make any explicit claims other than ▪ road (i.e., incurring time-based costs to a business) attainment of EU limits on PM to avoid penalties (the during the installation of the particulate trap, and a 10 certifcate is needed to demonstrate compliance. All initial trigger for implementation) being imposed on the vehicles must apply for a green (or yellow) sticker3; city authority. So, to make it explicit, the target for LEZ in Germany is to achieve the EU air quality goals on PM10. The mean decrease in PM10 has been between 0 percent ▪ for small schemes of less than 10 km2 and 15 percent for large schemes (between 50 km2 and 207 km2). Among all NATIONAL-LEVEL PUBLIC CONSULTATION cities that implemented an umweltzone, a decrease of 9 In 2004 the Senate Department for Urban Development and the Environment published its draft Air Quality percent of PM10 was measured (Wolf 2013). Plan on the Internet and invited comments over a two- month period. Together with this, all responses and 4.2.2 Communication Process feedback from a public hearing were used to inform the The public communication campaigns for a LEZ in Germany development of the fnal plan before it was adopted by the generally have durations of about 18 months. The enabling local parliament. During this process, other government legislation and increasingly proven approach means that institutions, environmental nongovernmental organizations the period needed to defne the local policy is usually short. (NGOs), and business associations were consulted to As shown in Figure 5, the public communication process confrm feasibility, potential implementation costs, started with defning an explicit target for the program. This and socioeconomic impacts. The main variables were was then followed by the stakeholder consultation at the the boundaries of the area, timing of introduction, and national level, which included the preparation of the enabling emission requirements for compliant vehicles.

Figure 5 | Germany Umweltzone Public Communication Process

National Level Continuous Local Level Action Enabling Monitoring and Program Plan Development Legislation Public Outreach Target Defining and Information and Public for Program Dissemination Consultation Upgrade

14 | International Case Studies on Public Communication and Consultation Strategies for Low Emission Zones and Congestion Charging Schemes

LOCAL-LEVEL STAKEHOLDER CONSULTATION AND INFORMA- CONTINUOUS MONITORING AND PROGRAM UPGRADE TION DISSEMINATION Following initial consultation and implementation, the At a local level, in 2008 Berlin established a roundtable Berlin scheme commenced operation in 2008, followed by that included representatives from the following relevant a second phase in 2010 based on more stringent emission stakeholders: levels. The migration to the second phase was achieved by a continuous monitoring program and communication with Scientifc Advisory Council (specifcally established for stakeholders (particularly commercial feet operators) that ▪ the umweltzone policy and development of its operat- informed a tightening of regulations to the Euro 4 Emission ing strategy); Standard for all light and heavy diesel vehicles. The natural ▪ Local government parliamentary parties; replacement rate of vehicles and resulting migration toward Local district public works departments; the Euro 6 Emission Standard and beyond meant that ▪ tighter emissions targets could be progressively introduced Chambers of commerce, haulage companies, and that required continued monitoring of the mix of the local ▪ trade associations; vehicle population to determine the timing of changes to ▪ Transportation operators; the regulations. Trade unions, automobile associations, eco-lobby ▪ groups, and other NGOs; and 4.2.3 Highlights from Berlin’s LEZ Urban development and modern education lobby groups. Enabling legislation, a framework for phased public ▪ communications and consultation, proven implementation Based on the baseline air quality plan, the consultation timetables, and increasing national public acceptance informed the development of the fnal plan and introduced have all contributed to the rapid adoption of umweltzone concessions such as the use of temporary exemptions4 for throughout Germany. Many cities adopted Berlin’s commercial feet operators that were able to demonstrate roundtable approach, supplemented with marketing potential severe economic harm from the implementation activities as just described. However, cities that have of an umweltzone. Overall, the scope of the concessions implemented an umweltzone appear to be regionally was limited because each one granted could have made clustered, and the authors of this working paper hypothesize enforcement more complex and would have set a prec- that this may be due to the diferent rates of development in edent that could have hindered consultation for umwelt- the critical mass of political will in each region. zone in other German cities. In Berlin, the integration of the marketing and the Web Public communication was based on marketing (e.g., resources showing the emissions data provides an efective extensive use of fyers, newspaper articles, advertisements, means to illustrate the beneft of LEZ schemes to the public, and a comprehensive Web-based Internet resource) which allows for an informative evaluation process. Moreover, coupled with seeking feedback (e.g., ad-hoc surveys, meet- the integration ofers informed feedback from the public, ings with businesses and truck operator associations) to which promotes the process of ongoing monitoring and the inform the development of Berlin’s umweltzone. continuous measurement of public attitudes, which in turn allows for the refnement and update of the LEZ scheme. As an example of best practice in Germany, Berlin had developed (and currently maintains) a comprehensive 4.3 Milan Italy: Environmental Zone and Web resource (COWI 2013) showing measured emission Congestion Charging levels at the individual street level, baseline data fles in Excel, a selection of future scenarios that refer to 4.3.1 Background achievable targets, draft plans to further improve The heavily industrialized Commune di Milano (Milan) air quality for transportation (including improved (pop. 5.2 million) sufers from some of the highest vehicle trafc management, speed limits, tax incentives, etc.), and motorcycle ownership rates in the world and faced the and reduction in harmful emissions from other non- visible problems of worsening congestion and transporta- transportation sources. The Web resource was used as tion-related air quality. Milan had acquired the reputation part of the marketing of the Air Quality Plan and provided as Europe’s most polluted city: the environmental stan- the means to obtain feedback, as well as contact details for dard for PM10 was being exceeded on 150 days when the the sponsoring agency. limit was 35 days per year.

WORKING PAPER | October 2017 | 15 To address these air quality problems, the Commune di between 28 and 40 percent lower than in areas outside the Milano started a short-lived pre-Euro ban in 2007 in restricted zone. The average speed of public transportation a restricted zone. Then the city implemented EcoPass, had increased by 4 percent, and accidents were reduced its frst trafc pollution-charging scheme for vehicles by 52 percent. PM10 emissions were reduced by 19 traveling within a designated trafc restricted zone, in percent, compared with EcoPass levels, and by 61 percent, January 2008 (to coincide with new federal regulations) compared with 2008 (pre-EcoPass) levels (Martino 2011). with a clear aim to reduce PM10 by 30 percent. The EcoPass program was similar to a LEZ and diferentiated 4.3.2 Communication Process fnely between vehicle emission classes entering the Public communication of Milan’s Environmental Zone restricted zone, with fees set at EUR 2, EUR 5 and EUR and Congestion Charging evolved with the scheme 10. Payments and renewals were handled via the Internet, changes from trafc restrictions to EcoPass to Area C. The news agents, garages, and banks. conversion of a pollution charge to a congestion charge with the complexity of the varying objectives, targeted vehicles, However, the benefts of EcoPass were gradually ofset by and implementation geographies made it a very challenging the increasing number of exempted vehicles. The EcoPass process for public communication. As shown in Figure 6, program was replaced by the Area C program, a combined public communication involved consultation, negotiation, LEZ and CC program, in 2012. The EcoPass charged notifcations, surveys, and a referendum, which went vehicles based on their emission classes, while the Area C through a recurrent process due to policy changes. charges a fat rate for all vehicles and does not allow access for certain polluted vehicles. The number of exempted vehicles fell from 92 percent under EcoPass to 12 percent REGIONAL POLITICAL CONSULTATION under Area C, and the number of vehicles entering the Dialogue with the public and regional administration zone reduced by a further 34 percent from 2011 levels on environmental zones to address air pollution started due to the efect of the charge. In addition, PM reporting in 2006, and a steering committee was set up to assist was replaced with black carbon (BC) levels (WHO 2011), with the regional political consultation process. During confrming that BC (and PM) levels were somewhere the fourth quarter of 2006, the committee called

Milan Area C

Source: https://upload.wikimedia.org/wikipedia/commons/c/c5/Milan_Ecopass_area.png

16 | International Case Studies on Public Communication and Consultation Strategies for Low Emission Zones and Congestion Charging Schemes

Figure 6 | Public Consultation Process in Milan

EcoPass Scheme Extended Feb 2007, Pre-Euro Ban Feb 2008, EcoPass Jan 2012, Area C with Brief Suspension in Traffic Restriction Scheme Trial Scheme Implemented August 2009

Regional Political Political Negotiation Internal Consultation Formal Consultation Consultation and and Public and Public Consultation on Area C Scheme Public Outreach Consultation for Scheme Changing

for a conference of mayors, including the mayor of the region to the city), a residents’ discount, and a four- Milan, Letizia Moratti; the president of the region; the month delay in implementation. president of the province; and the mayors of 32 regional municipalities. The consensus from the mayors was that During this period, public consultation was based on any zone entry charges must be linked to improvements in a letter campaign to more than 750,000 residents in public transportation and other complementary measures. the urban region (about 10 times the population of the ZTL itself), a press campaign, and public hearings. However, in February 2007, faced with winter smog and Italy’s prime minister and the provincial (Lombardy) intense lobbying campaigns5 that were requesting the government provided additional political support to government to take action, the mayor took the unpopular the mayor. step of banning 170,000 cars and motorcycles manu- factured to pre-Euro requirements from being used in Public communication of EcoPass featured a clear a restricted area known as the Zona a Trafco Limitato aim: a 30 percent reduction in particulate matter. The (ZTL). A follow-up survey on the ZTL policy conducted communications program adopted the slogan “meno by the mayor’s ofce in late 2007 (and separately by trafco = aria più pulita” (less trafc equals cleaner air). 6 the media) showed a roughly even split of support and The advertising campaign during the trial period was opposition to the scheme with a majority agreeing that founded on the message that EcoPass was “[a] green something needed to be done to improve air quality. In light to non-polluting cars,” implying that vehicles of general though, there was a lack of information on the ZTL the Euro 3 Emission Standard (or better) were non- plans from the beginning, and the media became the main polluting. Overall, the campaign addressed the public’s channel for keeping the public informed. concern that the entry scheme would improve air quality for everyone, from road users to residents and business, POLITICAL NEGOTIATION AND PUBLIC CONSULTATION emphasized by the choice of EcoPass as the brand name While the political consultation was going on, the main of the scheme itself. opposition was to the initial 60 km2 scheme area, which covered 33 percent of the city area, afecting 77 percent It is worth mentioning that some ripples of discontent of resident population and 65 percent of nonresidents. were triggered due to operational failures in the scheme’s Those opposed, mainly from regional, nonmetropolitan implementation in the initial stage. Public and media administrations, claimed that they had not been included acceptance was undermined by system errors, call in the consultation process. In the fourth quarter of center overload, and an incorrect short message service 2007, the political negotiation that led to the fnal shape (SMS) notifcation of scheme suspension. In the frst of the LEZ (to be known as EcoPass) included a reduc- few days of operation 160,000 fnes were issued to road tion in area from the initial 60 km2 to 8.2 km2 (thereby users that were unaware of the new regulations, most of reducing the complexity of political negotiations from whom claimed poor marketing of the regulations by the

WORKING PAPER | October 2017 | 17 Commune di Milano. The Agenzia Mobilità Ambiente FORMAL CONSULTATION ON THE CONGESTION CHARGING e Territorio (City of Milan Mobility Agency )(AMAT) PROGRAM provided timely ways for the public to make their In 2010 the mayor formed the cross-party Commissione complaints and to ensure that the public’s feedback was EcoPass (EcoPass Commission) comprising members heard. At no time did the opponents of EcoPass question of the main political parties, PDL, Lega, and UdC. After the principle of restricting car use in the city center, a change of mayor in 2011, a formal consultation on a however. Therefore, among other start-up failures, the range of measures commenced, resulting in a fnancial overall the attitude toward EcoPass was very positive in package worth about EUR 30 billion (USD 36 billion) that the major local newspapers. included extensions to the metro lines, doubling of inner- city pedestrian areas, doubling of 30km/hour areas, new neighborhood bus services, nighttime subway services, CONTINUOUS PUBLIC CONSULTATION REGARDING SCHEME enhanced taxi services, subsidized car-sharing, a 300km CHANGES cycle network, and upgrades to district heating networks. The initial response to the new restrictions was favorable. An ad-hoc report7 unscientifcally claimed a 5 percent A petition led by the Milano si Muove (Milan gets reduction in hospital admissions for respiratory conditions, Moving) association led to a referendum on June 12, a reduction in road accidents and increases in public 2011, which asked the question, “Would you support the transportation usage. Alongside other ad-hoc reports from City of Milan’s plan to boost public transportation and other government agencies referenced above, the feedback mobility, clean alternative[s] to the car, through charging on the performance of EcoPass was the responsibility of the an access fee for all vehicles (excluding those with zero AMAT. To continuously monitor the program and collect emissions) in a zone that will be progressively enlarged data on public attitudes, the government ofered ways for up to the city metro’s circle line, with the goal of reducing the public to register complaints with AMAT and through trafc and pollution by 50 percent?” (translation). The their local political representatives. referendum revealed 95 percent support for the package and 79 percent support for the new trafc policies From the commencement of EcoPass in January 2008, the (Mattioli et al. 2012). following two-year period witnessed trafc congestion and harmful emissions returning from a 21 percent reduction in The replacement of EcoPass was known as Area C, and the 2008 to close to former levels (similar to the trend experienced new scheme commenced operation on January 16, 2012. in Gothenburg). A survey of 500 citizens in November 2009 Public communication for Area C was based on fyers; that was conducted by Legambiente (an Italian environmental letters to households; road signs; advertisements on radio, association) and II Sole 24 Ore (the most important Italian TV, and the Internet; and public information meetings. economic newspaper) showed that concern about trafc was Currently the Comune di Milano website (www.comun- seen as a problem (43 percent) more than environmental emilano.it) is the main medium for public communica- pollution (40 percent average) (Balducci et al. 2008). tions related to Area C.

Apart from a brief suspension in response to a protest that According to the media, the switch from PM reporting to occurred between August 1 and 21, 2009, increasing levels black carbon reporting remains an elusive measure of air of congestion and emissions were accompanied by an quality, and Area C is no more than CC dressed up as an increasing share of exempted vehicles from 50 percent in LEZ. Arguably, the focus on stakeholder communication 2007 to 75 percent in 2008 to 90 percent in 2010 (Mattioli on a widely acknowledged visible problem (air quality and et al. 2012), suggesting a gradual erosion of the benefts. its related adverse impacts on health) by AMAT on behalf As one commentator noted, “The EcoPass proved [to be] of the Commune di Milano city administration and the a placebo.” Notably, the proportion of vehicles subject to mayor’s ofce had helped secure support for CC mecha- exemptions granted in London and Stockholm during the nisms also. policy development stage had remained low (about 20 percent or less) and constant since their respective launch 4.3.3 Highlights from Milan’s Experience dates. Selective reporting by AMAT had been emphasiz- ing that air quality, rather than congestion, remained the Compared to other cities discussed in this report, the problem. However, public feedback led to a rethinking of public communication process and strategy in Milan were the EcoPass program. challenged by scheme changes. The continuous collection

18 | International Case Studies on Public Communication and Consultation Strategies for Low Emission Zones and Congestion Charging Schemes

of information about public attitudes and the persistent the ZTL and other social impacts. It became clear that attention to public feedback ensured a smooth transition performance reporting, which included various variables between the two schemes. in addition to road network performance and air quality needed to be integrated into the structured public EcoPass and Area C policies have diferent primary communication program. objectives. EcoPass focused on air pollution reduction, while Area C was targeted to reduce trafc with pollution 4.4 Singapore: Electronic Road Pricing reduction as a co-beneft. The brand name changes from EcoPass to Area C refected the shift in objectives. The 4.4.1 Background overall consultation process provided a way of informative Singapore (pop. 5.4 million) implemented an Area mutual communication where stakeholders’ views were Licensing Scheme (ALS) on June 2, 1975. This required recorded and policy-related messages were adapted to the vehicle owners to purchase a period-based paper license scheme design. to enter the Restricted Zone (RZ), otherwise known as the CBD. Electronic Road Pricing (ERP) replaced the The initial ripples in the implementation of Ecopass ALS scheme in 1998, and the Land Transport Authority implied that minor failures in the scheme operation (LTA) is currently developing its next generation system, could reduce public acceptance. System errors should known informally as ERP 2, which will enable more be avoided as much and as early as possible so as not to complex pricing measures and valued-added services. undermine the impact of a structured public communica- It is anticipated that ERP 2 will be implemented tion program. progressively from 2020 with an 18-month switchover period to transit from the current ERP system to the new There were arguments that the performance reports system. The user-pays ERP regime complements other of EcoPass and Area C were strictly limited to restrictive vehicle ownership policies, including a vehicle improvements in air quality and reduction in trafc quota scheme, a high frst registration tax, and a high fows, and public communication made no reference annual usage tax. The LTA also regulates the public bus to the other benefts, such as reduced accident rates network (recently partly renationalized) and taxis and nor the increased speed of public transportation within wholly owns the mass railway transit organization.

Singapore ERP

Source: Traffic Smart, https://www.onemotoring.com.sg/content/onemotoring/en/imap.html?param=redirect

WORKING PAPER | October 2017 | 19 Figure 7 | Public Communication Process in Singapore

Structured Continuous Integrating Political Consensus Communication Communication Communication and Legislation Starting with Trial to Increase Public Program into Endorsement Program Involvement Technical Tendering

4.4.2 Communication Process implementation schedule were deliverable. The one-year consultation period for ERP was managed simultaneously POLITICAL CONSENSUS AND LEGISLATION ENDORSEMENT with the on-road trials, and this led to some improvements The consultation process for the frst generation ERP in the scheme design (mainly relating to privacy protec- scheme was underpinned by political consensus that tion). Early on in the consultation, privacy concerns led to had already been developed during the operation of the the change in requirements to use an anonymous prepaid 23-year-old ALS. The ERP regime was aimed at function- smart card as the main form of payment. ally replacing ALS and to allow continued refnement and scalability (a disadvantage of the ALS scheme). The initial In addition, the main marketing messages were focused stage of internal consultation started with a high-level on improved trafc management (rather than revenue transportation panel led by First Deputy Prime Minister generation), reliability (proven during the trial period), Goh Chok Tong. The planning for ERP took 10 years, and fexibility (replacement of a fat charge with a usage- its implementation was led by the LTA as the primary related charge), and usability (no need to apply for authority and owner of the migration project, which was daily licenses). Brochures were sent to all motorists fully endorsed by the government. Legislation had been before system launch, and the system was switched enacted to charge for the use of road space, to enforce on weeks ahead of the planned start date to enable violations, to defne the appeals process, and to apply the motorists to familiarize themselves with the new roadside charging regime to foreign vehicles. infrastructure and the operation of the in-vehicle units. Advertisements were placed in the print media and on TV STRUCTURED COMMUNICATION STARTING WITH A TRIAL to raise awareness of the new ERP scheme. PROGRAM Initially, limited information was provided to the public The structured outreach program, led by the LTA, on plans for ERP. After an aborted procurement in 1991, a included visits to the trial site by schools and universities new tender ofer led to three consortia being short-listed plus other interested members of the public and busi- for trials on a closed road segment near Tuas, and these nesses. An education program was also set up in schools to trials were exploited as the centerpieces of the public teach children about transportation solutions and the ben- consultation program as well as reducing the risk of the efts of road pricing. The primary message was that ERP operational strategy for multi-lane free fow tolling, an would form part of “[the] management of the car popula- approach that had been commercialized by the 407 Elec- tion, and at the same time, optimize the use of [the] roads, tronic Toll Route in Toronto, Canada, only a few months through a judicious mix of ownership and usage manage- earlier in October 1997. ment” (LTA 2009). The marketing program was extended to all motorists entering Singapore from Malaysia. Throughout the design, implementation and operations of ERP, the LTA maintained close liaison with local members CONTINUOUS COMMUNICATION TO INCREASE PUBLIC of Parliament, residents (whether they were car owners INVOLVEMENT or not), road users, city councils, public transportation Following implementation of the ERP scheme, the LTA operators, the vehicle registrar, and infrastructure depart- confrmed its success by reporting several metrics that ments with the aim of ensuring that the aims of ERP and its matched the original policy expectations, including a

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15 percent reduction in trafc volumes on expressways the LTA reserved the right to appoint its own contractor at and in the RZ and an increase in average speeds from 35 a future date. Although the winning tenderer is required to km/h to 55 km/h. The complex tarif strategy with peri- own the delivery of the communications program, the LTA odic adjustments meant that the ERP scheme was able requires contractors to liaise closely with the LTA at all to maintain average trafc speeds at optimal levels (as stages from contract award through to the end of imple- specifed by an LTA study and trafc modeling), which mentation. The LTA may defne performance indicators was its central operational objective and widely reported to fne-tune the priorities placed by the contractor on the via the media during the early phases of implementation. communication objectives that are initially targeted at Throughout this period, the LTA also maintained hotline vehicle owners/road users rather than the general public. support and provided several customer service centers to further facilitate feedback from road users. Shortly 4.4.3 Highlights from Singapore’s Experience after the commencement of the ERP scheme, the back No big ripples occurred during the public communica- ofce contractor CSE Global Ltd. confrmed that one of tion process for congestion pricing in Singapore. The the critical success factors for ERP was the “publicity and history of ALS has prepared Singaporeans with adequate education program.” awareness of the policy and served as a positive “pro” campaign to allow plenty of time for people to absorb and Public acceptance was based on the fexibility of ERP accept the information. The upgrade from ALS to ERP to mitigate the potential for an increase in (the already basically involved changes in application geography and high) ownership charges by levying usage-related charges implementation technology. However, the public’s smooth instead, fairness (charging and enforcement accuracy was adaptation to the changes is attributable to the structured critical), privacy, demonstrable reductions in congestion, communication programs led by LTA. and the decision to charge only during congestion periods. In addition, vehicle owners received periodic rebates on The open of the trial site to the public and the integration their annual vehicle taxes, funded by ERP revenues. of delivery of a public communication plan into the ERP 2 technical tendering have made public involvement an inte- INTEGRATING THE COMMUNICATION PROGRAM INTO gral part of the design stages. In 2010, the LTA declared, TECHNICAL TENDERING “While a congestion pricing scheme may be justifed from As stated earlier, the LTA is currently developing ERP a technical perspective and can be rationally argued for, 2, which is planned to be operational progressively from utmost importance must be given to communicating the 2020. The new satellite-based scheme will provide an rationale of the scheme to road users and the communi- increased level of pricing complexity, potentially enabling ties including the businesses. There is […] never too much every road segment to be individually priced, although ini- communications and publicity when it comes to road tially (to aid public understanding) the current CBD and pricing schemes.” (Chin 2010). strategic route charging policy will be retained. A complex on-board unit (OBU) will also provide an application It is critical that public communication be carried out platform for value-added services that may form a part of as early as possible in the policy design process. Early the communications program. interactions with the relevant stakeholders and the public will beneft the scheme’s execution by providing fexibility As part of the ERP 2 tender, each of the three short-listed in adapting to feedback. The change in requirements to consortia was required to propose public communication/ use an anonymous prepaid smart card as the main form of marketing subcontractors who will develop a public com- payment is a successful example. munication strategy and manage its delivery (and related multilingual marketing collateral and digital media chan- 4.5 Stockholm Congestion Charging nels) for ERP 2. The scope of delivery does not include consultation on the policy itself. However, in the opinion 4.5.1 Stockholm Background of the authors of this document and based on the experi- Stockholm County (pop. 1.9 million) includes 26 ence from ERP, opinions will be sought from the public municipalities that in total contribute to 29 percent of on operational details, and on the usability of the newly Sweden’s GDP, the largest municipality being Stockholm introduced complex OBU. The LTA had not intended to City (pop 0.9 million). In 1992, a comprehensive road issue separate tenders for public communication although investment program known as the Dennis Plan (named

WORKING PAPER | October 2017 | 21 Stockholm Congestion Charging Area

Source: Jonas Eliasson, 2014

Figure 8 | Public Communication Process in Stockholm

Communication Referendum Political Structured by Joint Public Trial to Make the - an Official Consensus Surveys to Sectors and Most Effective Public Building to Understand Private Service Communication Communication Market the Policy Public Reactions Providers Process

after its sponsor Bengt Dennis) was developed that Stockholm, a political consensus-building process resulted included a road-pricing component. After a period in an agreement between the Social Democrat government of political consultation, the plan was dropped in and their supporting parties (the Left Party and the Green 1997, although some of the planned investments in Party) to plan a congestion charging regime. The debates transportation infrastructure were made. The Stockholm among the parties were favorable to the marketing of the CC started with a seven-month trial to assess the costs and three policy objectives that were regarded as addressing benefts, followed by a public referendum, which led to the real problems: reducing congestion, improving air quality, scheme’s permanent implementation. and improving access to Stockholm’s CBD.

4.5.2 Stockholm Communication Process A political agreement was fnally reached in October 2002. This agreement was conditional on a seven-month POLITICAL CONSENSUS BUILDING TO MARKET THE POLICY congestion charging trial to assess the costs and benefts, In preparation for the September 2002 local elections in followed by a public referendum, centered mainly on

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residents in the Stockholm urban area. This agreement the residents with the charging system and to convince also provided the basis for developing enabling legislation them that the policy was achieving its goals. The residents’ for a congestion charging regime that was described as experiences in the trial served as the most efective way for an environmental tax that could be applied anywhere in them to witness the efects of the scheme. Sweden. To the public, environment and health issues are more important than trafc congestion. Therefore, public Throughout the pre-trial, trial, and post-trial period, support for the policy depended not only on the policy per the most important source of information was the se, but on its objectives. ofcial website of Stockholm City (http://international. stockholm.se) on which periodic reports were published (highlighting positive local, visible, and direct benefts) COMMUNICATION BY JOINT PUBLIC SECTORS AND PRIVATE and the Swedish broadcast media (mainly television, SERVICE PROVIDERS radio, and the press). Based on initial political will at the national and local level and with the support of an interagency project group, a provisional transportation package was developed and STRUCTURED SURVEYS TO UNDERSTAND PUBLIC REACTIONS communicated by a joint activity planned and executed The public consultation process also featured structured by Stockholm City Council, Vägverket8 (Swedish Roads surveys, including a longitudinal travel survey (based on Administration) and Stockholm Transport (SL) and involv- the principles of a panel survey) sponsored by the trial ing the public from mid-2005. The activity included fyers, operators and a smaller one-of longitudinal motorists posters, public meetings, advertising on buses and parking survey sponsored by the University of Groningen (Neth- meters, a letter campaign, awareness events (i.e., in shop- erlands) and the Swedish National Road and Transport ping centers), radio and TV commercials, and a telephone Research Institute: hotline. Stockholm City set up the website http://www. stockholmsforsoket.se to provide copies of the evaluation (a) Travel Survey10 (77,000 individuals): two 14-day periods reports and a comprehensive directory of supporting docu- in September to October 2004 and March 2006 ments. In addition, the three public-sector sponsors imple- mented a monthly reporting regime to illustrate congestion The travel survey was conducted to investigate how and air quality levels and to measure public attitudes. travel patterns had been afected by the congestion tax. From the county’s 1.5 million population, a stratifed IBM was selected as the main contractor and service sample of 77,000 individuals, ranging in age from 12 provider for the trial, and IBM was required to provide to 84, was drawn from eight diferent geographies in point-of-contact service providers for all users, including Stockholm County. Of the 77,000 individuals contacted news agents (PressByrån), convenience stores (7-Eleven), in the frst wave, 36,000 responded; of these, 24,000 a website and call center operations – all of which helped responded in the second wave (Becker 2008). The market the scheme. The service provider, as the scheme survey material included information on the purpose designer and implementer, knew all the details about the of the questionnaire and data protection provisions. scheme operations. The service provider’s involvement in Weights were applied to the samples from each region the communication process ensured that operation details to refect gender, age, and sociodemographic groups. were delivered to afected residents. The main body of the travel survey questionnaire was divided into two parts: TRIAL TO MAKE THE MOST EFFECTIVE COMMUNICATION Background questionnaire: (age of household Financed by the state and operated by the City of ▪ members, type of residence, driver licenses of Stockholm, Vägverket, and SL, the seven-month trial9 was household members, information about car avail- based on a cordon surrounding Stockholm’s CBD and was ability, parking capacity at the residence, public in operation from January 3 to July 31, 2006. Long before transportation ticket availability, household in- the congestion tax came into force, there were debates come, type of employment/working schedule, and over CC for Stockholm, and the best estimates of its actual parking options at the place of work) efects after implementation were only theoretical guesses. The CC trial in Stockholm, the frst in history, invited Travel diary questionnaire: (complete address of the public to actually experience the system. The main ▪ the origin, starting time, purpose of the trip, ad- purpose of the communication plan was to familiarize dress of destination, modes of transportation used

WORKING PAPER | October 2017 | 23 during the trip, arrival time, type of public trans- REFERENDUM—AN OFFICIAL PUBLIC COMMUNICATION PROCESS portation ticket (2004 only), use of local bypass, Again, a frst in history, the referendum held after the and congestion tax paid (2006 only) trial asked the question, “Should congestion charging be used in Stockholm?” The answers confrmed that 51 The questions were similar for the 2004 and 2006 percent of respondents were in favor of reinstating the CC scheme, and 49 percent opposed it (Schuitema 2010). waves of the survey. A small telephone survey was Referenda in Sweden are consultative (i.e., not binding), conducted after each wave and, in both cases, con- but the result provided sufcient justifcation to establish frmed that the diference between the response and the CC on a permanent basis. Following eight years of nonresponse group was not signifcant. Other efects continuous operation, according to a KTH Royal Institute such as weather, fuel prices, and economic well-being of Technology survey conducted in February 2015, 70 were not taken into account. percent of people living in Stockholm either liked the CC or had no problem with it. (b) Motorists Survey (1,000 individuals): December 2005 and August 2006 (Schuitema 2010) 4.5.3 Highlights from Stockholm’s Experience Of the sample of 1,000 individuals, 444 responded. It may be concluded that the 2006 trial was an important Holders of driving licenses resident in the city of component of the public consultation process and dem- Stockholm were randomly selected. Pre-trial ques- onstrated that, in the local social, political, and economic tions focused on the expectation of weekly charges, environment, CC was found to be acceptable enough modal split (i.e., car, motorized transportation except (based on achievement of the policy goals that had been for private cars, public transportation, non-motorized communicated) to be implemented on a permanent basis transportation, and other) and beliefs (based on open beginning in August 2007. Up to the time of writing, the questions requesting three negative and three positive benefts had been sustained (including an 18 percent expected consequences) and expectations of meeting reduction in congestion). With regard to the Stockholm the three policy objectives. scheme, the former Swedish State Secretary for Environ- ment claimed, “[the] public must be well-informed about These longitudinal panel surveys, as part of public con- the objectives and the practicalities [and] what is to be sultation program, revealed that users were pessimistic expected by the public” (Lönnroth 2014). Compared with that the intended benefts would be achieved and expected Helsinki and Lyon, the much higher support rate for CC in the costs to be higher; the CC had more favorable efects central Stockholm was due to the trial period (Hamilton (i.e., reduced congestion, reduced parking problems, and and Eliasson 2012). improved air quality) and fewer unfavorable efects (i.e., a reduced increase in travel costs) than expected. The The structured surveys in the Stockholm public number of vehicle trips reduced by 22 percent (16 percent communication process allowed for an informative during morning peak and 24 percent during evening peak). evaluation process for the trial program, which provided Other impacts included a 6 percent increase in ridership on a cost-efective means of gathering data on travel SL buses, a 2 percent increase on commuter trains, and a 14 patterns and preferences that, in turn, ofered the means percent increase in subway ridership. Harmful emissions to evaluate system performance and benefts. In addition, decreased by 3 to 5 percent in Stockholm City and 8 to 14 the data gathering also allowed for continuous public percent in the CBD (Eliasson et al. 2009). engagement and maintained the levels of public support by demonstrating positive system efectiveness. The surveys invited residents to think about how their travel behaviors changed and how the actual results 4.6 Gothenburg Congestion Charging were diferent from what they expected before the trial. In addition to experiencing the scheme individually, 4.6.1 Gothenburg Background residents were exposed to more overall impacts of the Following a local and national parliamentary decision in trial by participating in the surveys and getting know the May 2010, Gothenburg (pop. 540,000) implemented a CC results. The surveys not only assisted in monitoring of the scheme with the aim of reducing peak period congestion, trial operation, but also provided opportunities for better reducing harmful emissions, and cofnancing its 25-year public engagement. Västsvenska (West Sweden) infrastructure development

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Gothenburg Congestion Charging Area

Source: Johansson, 2014

plan (the transportation package) for new roads, bridges, of reducing the conviction that public opinion should tunnels, and an 8-km railway line, in total worth SEK 14 be sought as part of the planned consultation program billion (USD 1.7 billion). Unlike Stockholm, neither a trial initially in Gothenburg, thereby resisting calls for a nor a public referendum was planned prior to implement- referendum that had been used previously to secure ing the CC scheme. the legitimacy of the Stockholm CC scheme. Following informal consultation on development within the group The Gothenburg Region (GR) is a formal organization of governments and the GR between 2002 and 2008, that consists of 13 municipal councils that represent the GR focused on the development of the Västsvenska a regional planning authority founded on good transportation package itself. With the additional governance to achieve consensus and consistency participation of the City of Gothenburg, this provided in decision-making based on the common vision of sufcient political support for the implementation of the sustainable development, including integrated traffic transportation package. and land use planning. The national government, regional governments, and the GR were jointly The public consultation program presented CC as a tax- responsible for the development of regional and raising measure to partially fund the 25-year package, city development strategy documents, including the and included the new West Link rail line. The package Västsvenska package, partly funded by revenues from was presented online, via the broadcast media (television, a CC in Gothenburg. Short-term benefits included radio, and the press), leafets, and through public meetings additional park-and-ride facilities. and road shows. However, on November 16, 2012, in response to the unrelated European Commission’s 4.6.2 Gothenburg Public Communication Process consultation on the urban dimension of EU transportation policy, the government reafrmed the intention of the PUBLIC CONSULTATION FOCUSING ON REVENUE RAISING city to implement CC in Gothenburg, focusing on the After the successful implementation of a CC in congestion-reduction measure: “Congestion on the main Stockholm, the broad political coalition that had been arterial roads surrounding the city of Gothenburg is a established at the regional and city level had the efect major problem. Although the trafc fows in the city center

WORKING PAPER | October 2017 | 25 [have] decreased during the last decade, the trafc to and communication in increasing public support may have from the suburban regions and neighboring cities has been undermined for several reasons: increased signifcantly. Therefore, the City of Gothenburg is introducing congestion charges in early 2013.” This A public information campaign emphasizing that the focus on the revenue-raising potential at the initial stage ▪ role of congestion charging was to generate revenues of public consultation and the swing to the congestion- rather than more visible benefts, such as reduced reduction objective (although a very proactive objective congestion and improved air quality (as presented in for the public) caused confusion and undermined the Stockholm); environmental benefts that Stockholm’s communication Political decisiveness and the short consultation strategy had targeted. This made it more difcult to ▪ period prior to implementation, which did not fully market the policy and impaired the public confdence that capture public sentiment nor leave time for adoption had been built from the Stockholm case. of the scope and content of the transportation pack- age; and RESIDENTS DEMANDING A REFERENDUM A perceived lack of short-term benefts from the long- Seeing the success in Stockholm, Gothenburg’s city ▪ term infrastructure measures in the 25-year plan and council approved the CC in a vote in January 2010, and political disagreements on the economic rationality of the Swedish Parliament approved this shortly after. the new West Link rail line. The scheme commenced operation on January 1, 2013. Over the next 12 months, there was sufcient public opposition (mainly from a road users’ association, despite 4.7 London Congestion Charging and Low the fact that residents got a frst-hand experience of trafc reduction), to prompt a prominent local tabloid to Emission Zone arrange a petition requesting a public referendum on the The UK government publishes the Code of Practice on continuation of CC. Consultation, the most recent edition being in 2008 (Department for Business, Enterprise, and Regulatory The referendum was conducted in connection with Reform 2008). Although local authorities are not bound by elections to Parliament and local government on the code, they are encouraged to use it. For example, it would September 14, 2014. This non-binding referendum not apply to initial informal policy development or where resulted in 43 percent voting to keep the scheme and 57 the scope relates to highly specialized areas. Whenever a percent in favor of cancellation (Börjesson et al. 2016). government department explicitly adopts the code (as in the case of Manchester below), deviations are permitted. Overall, the sustainability of the Västsvenska package was not in doubt, but instead the economic rationality of The code states: “Ongoing dialogue between government and the new West Link rail line was questioned in terms of stakeholders is an important part of policymaking… [and]... its funding mechanism, which was underpinned by CC. [w]hen developing a new policy or considering a change It appeared that loss of public and political acceptance in to existing policies, processes or practices, it will often be the latter had degraded public acceptance of the former, desirable to carry out a formal, time-bound, public, written as confrmed by the referendum. However, in May 2015, consultation exercise. This kind of exercise should be open the city council in Gothenburg decided to keep the city’s to anyone to respond but should be designed to seek views CC, despite the result of the referendum, in order to from those who would be afected by, or those who have a protect funding for a new rail tunnel under the city center particular interest in, the new policy or change in policy.” (Transport and Environment News 2015). With the approach of the 2018 election, the rail line and the charge Enabling legislation adopted in England and Wales, and may be put on the agenda again. separately in Scotland gave powers for any local authority to include a road user charging scheme on roads for 4.6.3 Highlights from Gothenburg’s Experience which it is the trafc authority. In chronological order, Gothenburg was an exceptional case where the the UK examples presented here are London (CC and referendum was triggered after the ofcial initiation of LEZ), Edinburgh (CC), and Manchester (CC), all adopting CC, and a political decision overruled the referendum a highly structured multi-stage stakeholder consultation results and continued the CC. The efectiveness of public and public communication process.

26 | International Case Studies on Public Communication and Consultation Strategies for Low Emission Zones and Congestion Charging Schemes

Figure 9 | Milestones in the Public Communication Process in London

Livingstone’s GLA issued Mayor’s TfL made TfL made MoT commissioned successful election Transport Strategy: Scheme Order Scheme Order Smeed Report ensured the Draft for Public Variation Variation (No. 2&3) introduction of CC Consultation

1964 1999 2000.5 2000.7 2001.1 2001.7 2002.8 2002.9 2002.11 2003.2

• Livingstone • CC official • TfL was designated • Livingstone published Mayor’s implementation GOL commissioned for CC investigation confimed Variation Transport Strategy • Continued ROCOL report • GLA issued Hearing • TfL started massive • TfL made Scheme monitoring and London’s Views communication Order campaigns communication

Source: Johansson, 2014

London Congestion Charging Zone and Low Emission Zone

Source: www.tfl.gov.uk

4.7.1 London Background consultation and public outreach and finally came into London (pop. 8.3 million) is the most populous city in force in February 2003. Europe. With consistent public and business concerns over road traffic congestion due to a huge increase 4.7.2 Communication Process in car ownership after World War II, a CC policy Figure 9 illustrates the well-planned and implemented has been studied and considered for decades as a communication process for this controversial policy. possible solution for busy road networks in this capital city. Upon the establishment of the Greater London INFORMAL COMMUNICATION Authority (GLA) and the inauguration of London A wide range of research and publications has provided Mayor Ken Livingstone, who promised a package of technical analysis and socioeconomic examination of transportation solutions that included a CC scheme for London’s CC scheme. These studies, on the one hand, central London during the mayoral election, the scheme provided the future Mayor Livingstone and his team with officially went through a series of necessary stakeholder comprehensive understanding of public opinion on this issue

WORKING PAPER | October 2017 | 27 and also justifed the introduction of a CC scheme for central and consider representations. The notice was published in London. On the other, the studies served as an informal local infuential newspapers with large circulation and was consultation channel for some selected key stakeholders to displayed widely, such as in every street within and at the express their major concerns and their demands, which were outskirts of the proposed CC zone. TfL even considered the taken into consideration for fnal suggestions. length of the streets and ensured that there was one notice in place for every 250 meters of road. A rolling inspection program was carried out each week during the whole FORMAL STAKEHOLDER CONSULTATION duration of the consultation to replace damaged or missing Transport for London (TfL) was created in 2000 to street notices. The public could also access the complete investigate the implementation of a CC scheme for central information pack at the ofces of eight London boroughs that London. Meanwhile, the GLA issued a discussion paper, were wholly or partly within the proposed zone, at certain “Hearing London’s Views,” which aimed at seeking the TfL street management ofces, and at a public exhibition views of key stakeholders in terms of boundaries of the held in central London for the 10-week duration of the charging area, the level and structure of charges, the hours consultation. The whole process exemplifed a typical and of operation, exemptions and discounts, etc. comprehensive consultation — for the CC scheme for central London. The specifc time period spent on each step to shape A preliminary consultation was conducted by TfL in the policy before its launch is summarized in Table 2 below. June and July 2001 with key stakeholders. Fourteen consultation meetings were held afterwards, explaining In addition to the general public, key stakeholders were given additional details of the scheme, and providing a genuine special attention. An information pack was sent to 500 key opportunity for stakeholders to raise their concerns. stakeholders. A series of consultation meetings with key stakeholders was also held that included participants from Based on procedural advice and representations collected 33 London boroughs, the emergency services, motoring through preliminary consultation, TfL drafted The Greater organizations, groups representing the interests of disabled London (Central Zone) Congestion Charging Order 2001 persons, residents’ groups, the freight transportation (Scheme Order) on July 23, 2001, and made several industry, etc. These measures ensured that key stakeholders’ variations of that order afterwards by the launch of the voices were heard and carefully considered. scheme to slightly amend the confrmed Scheme Order with the aim of increasing the operational efectiveness of Other measures of communication were taken to increase the scheme. Multiple channels had been used to distribute public awareness of the scheme details as well. Advertising detailed and focused scheme information, and a well- was used to inform London residents of the consultation designed feedback mechanism was also employed to collect on the Scheme Order, such as four-page fyer distributed

Table 2 | Formal Consultations before CC Implementation

Document Issued date Issued by Consultation Report to Mayor

Mayor’s Transportation Strategy: January 11, 2001 GLA Jan. 11–March 30, 2001 July 2001 Draft for Public Consultation

1st round: July 23–Sept. 28, 2001 The Scheme Order July 23, 2001 TfL February 2002 2nd round: Dec. 10, 2001–Jan. 18, 2002

Variation Order 2002 August 5, 2002 TfL Aug. 5–30, 2002 September 2002

Variation Order (No. 2) November 7, 2002 TfL Nov. 7–28, 2002 December 2002

Variation Order (No. 3) November 20, 2002 TfL Nov. 20–Dec. 11, 2002 December 2002

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in Greater London and its outskirt regions. The notice in February 2003. This was to ensure that people knew was also broadcasted on the radio during peak drive- what they needed to do, how this scheme operated, when time periods. The TfL Congestion Charging Division held and where to pay, and where to fnd assistance upon a seven-week public exhibition at two central London implementation. Communication at this stage also aimed venues where detailed panels and information sheets were at neutralizing the media environment, which always had presented to the public. A form was also provided at the been hostile on this issue, and trying to encourage some exhibition to enable the public to express their views or ask stakeholders to talk positively about the scheme. questions that the exhibition staf were unable to answer. To keep track of the progress of people’s awareness as It is worth noting that, from the beginning, TfL considered the communication campaign continued, TfL conducted this consultation to be a two-way communication, not just regular samples of thousands of Londoners through large passing governmental decisions. Both the notice and the quantitative surveys every six to eight weeks, checking scheme information pack stated clearly how and where whether they sufciently understood the coming scheme. people who were interested could get further information When the surveys showed that people were confused and the channels they could use to express their concerns about the charging zone boundaries, TfL reframed the and suggestions, be it email addresses, free phone numbers, questionnaires to repeat the details relating to the boundaries details of public exhibition/public meetings, etc. The public of the charging zone in subsequent rounds of communication. information leafet was made available in multiple languages In other words, these surveys served as checkpoints for and had braille and audio cassette versions for disabled reviewing the actual performance before the communications residents. Online response forms were also made available work moved on and provided valuable suggestions on the and publicized via TfL’s Street Management website detailed implementation mechanism of the scheme. encouraging replies to be sent to its freepost address. Several measures were taken to cope with the ferce As responses often implied genuine interest in this opposition. First of all, TfL used its own media channel to issue, TfL deliberately followed up with those who had communicate its messages. According to Kevin Austin, C40 responded in previous consultations. For example, director of initiatives, regions, and events, who used to work during the second round of consultation on the Scheme in Mayor’s Ofce of London, TfL produced its own leafets, Order between December 2001 and January 2002, TfL held exhibitions, and published scheme information in the contacted the 2,000 stakeholders, other organizations, GLA-owned newspaper Londoner, a monthly publication, and individual members of the public who responded in 30 pages in length, with a circulation of 600,000 copies the frst-round consultation to seek their comments on the that was delivered to each household. modifcations to the Scheme Order by letter or email. TfL also managed to garner support from respected public However, a public referendum to share the decision-making fgures or organizations who supported the scheme and power with the public on whether to implement such CC encouraged them to make their opinions public. For instance, scheme was never held, as many of those in opposition TfL’s communications team took media editors out to lunch, demanded. Through consultation, Londoners were only together with a scheme leader, the head of the transportation expected to provide comments and raise concerns to shape authority, and a well-known fgure whom the media wanted the policy, and the mayor’s decision to push forward such to interview. After these meetings, TfL received very positive a scheme in London, as a political commitment during his responses from the media to the efect that the meetings election, has never been compromised. helped them understand the scheme clearer, and they began to perceive the scheme with a more positive attitude. PUBLIC OUTREACH AND MARKETING The policy went through a series of legal framework In addition, TfL set up a quick-response mechanism changes and several rounds of public and stakeholder to misleading and possible inquiries from the media. consultations before it could be ratifed. When the mayor Once stories of false information about the scheme were fnally made the decision in September 2002 through published, TfL actively contacted the media to explain the confrmation of the Variation Order, the advertising mistakes and provided concrete evidence and statistics, and other communication campaigns went out to public earning positive exposure in the media. Once when the from October right through to ofcial implementation media implied that there would be chaos on all roads

WORKING PAPER | October 2017 | 29 on the boundaries of the scheme on the frst day of According to a TfL quantitative survey on the reasons why implementation, TfL responded that it had done trafc people got fnes under the scheme, people found it hard modeling and would deliberately launch the scheme during to remember the hours of operation and had difculty a quiet period when schools were of term and people were recognizing the charge boundaries even with the C-signs. on holidays so as to signifcantly reduce the normal trafc Sometimes, people were not deliberately trying to avoid on the road. the charge; they just simply forgot to pay. Based on these fndings, TfL suggested a slight revision to the scheme to Last but not least, the communications team was very allow people to pay the following day after they had crossed careful on message positioning. On the one hand, they the zone. The original scheme required that the payment knew that public awareness must be built on the problems had to be paid before 10 o’clock in the evening of the brought by trafc, such as pollution and congestion. For day that people drove into the zone. After 10 o’clock, the example, TfL did a study to show that some of the roads charge would go up to GBP10 (USD 13); after 12 o’clock, in central London were as busy as motorways outside of the penalty would be GBP 80 (USD 108). But if one paid London. TfL communicated these fndings to people to help the fne within 14 days, that person could receive a 50 them understand the danger and social and economic cost percent discount and only needed to pay GBP 40 (USD of congestion. And it also communicated with the public 54). This policy was then replaced by the auto-pay policy on the use of revenues collected from congestion charging so that people no longer needed to worry about passing the and talked about the beneft of the scheme, transportation boundary of the charging zone without noticing it. improvements, etc. On the other hand, TfL deliberately chose a rational and factual tone, keeping the message The consultation work with key stakeholders did not stop very neutral and unemotional so as not to be perceived as either, with the largest round occurring between July overly persuasive. One example illustrates the situation: 21 and August 18, 2003, mainly on proposed revisions when CC revenue was generated, it was not used directly to the scheme such as a slight change on a boundary of to improve things for drivers. The bus network improved the charging zone, specifc expansion of the residents’ because people were likely to move to other transportation discount zone, extension of the SMS text messaging means. But the motorists or businesses who paid the charge facility, etc. About 120 organizations were consulted, were not pleased about having to pay something that did including London Boroughs and London Assembly not directly beneft them. Therefore, in order not to further members, business representative organizations, Blue infame already negative public opinion, TfL chose not to Badge authorities, freight transportation representative position the message as “the scheme is good for London.” organizations, the Association of London Government, Instead, TfL educated Londoners about how much worse etc. These organizations received a consultation pack the congestion was likely to become without the scheme. consisting of a cover letter, a copy of the Variation Order, a schedule of proposed variations, the consolidated It is worth noting that, along with public outreach, the Scheme Order, and a copy of the mayor’s guidance. The mayor and TfL devoted a great deal of efort before cover letter was tailored to the individual organization the implementation of CC to improving the public to bring its attention to the relevant variation, although transportation system inside and outside the charging area. the recipient organizations were given the opportunity to Improving public transportation services, particularly the respond to all the variations if they so wished. Residents in introduction of new bus routes and increased capacity and the areas of proposed extensions to the residents’ discount frequency on existing routes to provide alternative travel zone received a consultation pack specifcally tailored to modes to the public, was one of the key strategies that the that particular variation. mayor and TfL employed to communicate with the public and build credibility to win support. Eforts to improve Similar consultations went round after round to continue the public transportation system continued even after modifying the original scheme in terms of increasing implementation of the CC policy. penalty and enforcement charges, lowering the threshold for the CC feet schemes, diversifying payment channels, COMMUNICATION AFTER OFFICIAL IMPLEMENTATION revising the defnition of residents’ vehicles, etc. Such The communication work after implementation was mainly consultations often lasted for 5 to 12 weeks, mostly with to keep the scheme running smoothly. One task was to the consultation packet, and with full information on the constantly remind people about how the scheme worked. proposed variation order posted on the TfL website and

30 | International Case Studies on Public Communication and Consultation Strategies for Low Emission Zones and Congestion Charging Schemes

deposited at TfL’s ofces for public inspection. TfL analyzed A well-organized team and a smooth cooperation public, business, and other organization responses and mechanism among various departments was also considered those in the suggestions that were provided to important for efective communication. To avoid the mayor for his fnal confrmation. bureaucracy and the traditional mind-set of governmental ofcials who were generally considered as people who 4.7.3 Highlights from London’s Experience usually said “no” to new policies, the mayor appointed Almost all interviewees in our research emphasized the those that stand at the fnal frontier of on the ground decisive role of London Mayor Ken Livingstone from policy implementation to handle the policy, including the preparation through to successful implementation, and his communications team in TfL. That team was composed role was also crucial to the communications work. On the of press ofcers to handle media relations, stakeholder one hand, he provided strong and determined leadership. teams to deal with interest groups’ concerns, marketing He made it absolutely clear at all stages that there was no staf to manage advertising and information campaigns, doubt about introducing the CC, as this had been decided a data management team to keep quantitative track of by the voters when they elected him as mayor on the clear focus groups, below-the-line staf to develop leafets and understanding in his manifesto that he would introduce a handle road show activities, etc. A lot of communication CC. He pushed forward the preparation even with mounting expertise was supplemented by commercial consultancy media hostility reported to him on weekly basis. He resisted agencies, which provided professional assistance in media the demand from some London organizations and local monitoring and handling, story creation, stakeholder authorities to hold a public inquiry, which would take years, management, advertising campaigns, opinion research, not months, and thus could have signifcantly hindered etc. GLA representatives were deeply involved in the whole the policy’s implementation. As a welcomed public fgure, marketing and communications package. TfL had weekly the mayor was an active advocate of the scheme on phone meetings with GLA to discuss communication various occasions. His infuence on this issue was so huge strategies, advertising campaigns, and survey results. that many people called the scheme Ken’s Charge. This The mayor’s ofce played a key role in overseeing and determination from leadership was important for winning direction, as the mayor signed of on the scheme, and public support for the scheme. On the other hand, the primarily looked at things from political perspective. TfL mayor possessed sufcient fexibility on policy details and was mainly in charge of delivering the scheme, including was well-prepared to make concessions through long-term the communications work. and wide consultation, even to delay the implementation of the scheme to allow greater time for consultation. The 4.7.4 Communication for Low Emission Zone Policy concerns raised by diferent interest groups and the general As the largest LEZ in the world, the London LEZ public were well-considered and adopted in the fnal experienced a longer period of policy consultation scheme, as exemplifed by a greater number of exemptions, and the public communication campaign, compared discounts, slightly changed boundaries, and payment cuts, to the CC, even though both shared similar strategies. compared with the original plan. To deliver compliance with LEZ standards, businesses needed more time to upgrade their feet composition Meanwhile, TfL did a good job of restricting the target because of the purchase life cycle of new trucks or lorries. audience to a relatively small group, so as not to infame The communications campaign was more focused on the whole of London into opposing the government. To informing afected stakeholders about the charging area, achieve this goal, TfL made strenuous eforts to educate which would cover the whole London area, including Londoners about the scheme operation mechanism, the area covered by the CC scheme, and delivering especially the location of the boundaries. Considering that the message that paying the congestion fee would not the CC zone was a very small area compared with Greater necessarily mean compliance with LEZ. London, those unlikely to be afected would not be strongly motivated to express their disagreement. TfL also tried to As with the CC, TfL consulted the public and stakeholders communicate with key stakeholders on a small scale, such as on the LEZ schemes between January and June 2006. through roundtable meetings, to address their specifc needs As part of the public consultation process, TfL mailed and concerns. When agreements were reached with key information packages and questionnaires to 80,500 stakeholder groups, TfL would publicize them to better win transportation industry businesses across the UK and to public support. the afected road transportation users (TfL 2006). TfL

WORKING PAPER | October 2017 | 31 distributed information leafets and advertisements at The newly established Transport Initiatives Edinburgh freight ports, motorway service stations, transportation (renamed ‘tie’), a nonproft company wholly owned cafes, on buses and bus shelters, and in the press. As by the City of Edinburgh Council, had the objective to indicated by Mandy Courtney from TfL, the purpose of the consult on and manage the delivery of the integrated LEZ was not to charge noncompliant vehicles high fees; transportation initiative. The fnancial model for the CC rather, it was to encourage owners of afected vehicles to scheme was redistributive: net funds would be returned to upgrade or install emissions reduction devices. Unlike the authority of origin (the City of Edinburgh Council) to public communication of the CC, which was targeted improve urban and regional transportation links within a more to the general public, TfL mainly focused its LEZ 20-year time horizon. The plan included six park-and-ride public communication on dialogues with truck and lorry sites, new tram lines, public transportation interchange companies and afected stakeholders. facilities, city center environmental improvements, new and upgraded cycleways, and new 20 mph speed limit 4.8 Edinburgh Congestion Charging zones. Many improvements would be implemented by 2006. Edinburgh City Council declared that net revenue 4.8.1 Edinburgh Background from the proposed charge was forecast to be GBP 761 In 2002, Edinburgh (pop. 500,000) was sufering from million (USD 1,027 million) over 20 years, and the money worsening congestion and declining air quality. At that would be used to fund transportation improvements. time, it was estimated that air pollution was responsible for the deaths of 600 city residents every year, and it 4.8.2 Communication Process was forecast that safety limits on NO2 and particulates Public and political acceptance were regarded as being specifed by the European Commission would be breached critical from the early stages of planning, and this informed in six areas of the city when the related UK laws came into the stakeholder consultation and public communication efect in 2010. Congestion delays, fueled by the fastest program. In particular, the public consultation program growth in vehicle registrations in the UK, were forecast to was to be extensive, comprising market research, a public double by 2016. inquiry, scheme design refnement, a broad information campaign, and a referendum. The council had earlier In support of the City of Edinburgh’s objectives to reduce selected the University of Westminster as its consultation congestion and the environmental impact of travel, partner in 1999, and the university was retained throughout the council proposed a CC scheme as part of a package the six-stage process (Table 3), interleaved with a public of measures to improve public transportation (e.g., a inquiry and referendum. Operationally, tie led consultation new tram line) and other infrastructure improvements. phases IV onward with the university as the consultation

Table 3 | Edinburgh: Phases of Public Consultation and Communication

Phase/Event Activity Scope Timing

“Edinburgh’s Transport Choices” Consultation and market research I 1999 (local transportation strategy consultation) (excluding congestion charging scheme)

II Preparatory market research Market research 2000

III Regional market research Market research 2001

IV “Have Your Say” (strategic regional consultation) Consultation and market research 2002

V Detailed scheme design consultation Local consultation 2003

Public Inquiry 2004

Referendum 2005

VI Post implementation market research Market research 2006

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Proposed Charging Cordon in Edinburgh

Source: Saunders and Lewin 2005

planner and analyst. The total cost of the development and structured meetings with a range of stakeholders and stages, including the referendum, was forecast as GBP10 interest groups. The complementary market research process million (USD13.2 million) over fve years. involved 19,500 questionnaires mailed to residents of the city and surrounding areas from which 2,406 responses Several lobbying groups formed from 2003 onward, the were received. Overall, there was net opposition of about most prominent pro-package group being “Get Edinburgh 62 percent to the proposal: non-car users were in support, Moving” and the most vocal anti-charging groups being and car users were opposed. In response to the statement, “Edinburgh Communities against Tolls” and the “National “Trafc congestion on Edinburgh’s road network will Alliance Against Tolls.” get worse and it needs to be reduced,” there was clear majority support from both groups although CC ranked eighth as the preferred option, behind improved public DETAILS REVEALED IN MARKET RESEARCH transportation, more park-and-ride facilities, lower-cost Judging from 19,000 responses to a household survey public transportation, school buses, selected infrastructure in 1999, the Phase I consultation revealed 62 percent upgrades, improved cycling and walking facilities, and car in support of an integrated transportation package that sharing. There were also specifc objections to the existence included CC. When the prospect of some form of travel of the outer cordon, and many respondents did not see demand management was raised during Phase II, net public transportation as a viable alternative. Despite this, public support was about 30 percent. A double cordon tie concluded that a slightly revised CC scheme should be scheme was introduced as part of Phase III, during which carried forward, including the heavily criticized outer cordon. time public support had declined to 13 percent. Phase IV was based on the “Have Your Say” outreach program and a questionnaire that was distributed to 240,000 households LOW SUPPORT AND LIMITED UNDERSTANDING REVEALED IN in southeast Scotland. REFERENDUM The public inquiry was conducted by three independent The Phase V consultation in 2003 included a mailing reporters over a 10-week period based on the revised of 600,000 leafets to households in Edinburgh and scheme design. Despite 1,462 objections, these reports surrounding areas; distribution of leafets to local authorities, concluded that “None of the matters raised persuade us libraries, businesses, supermarkets, doctors’ surgeries, that any alternative approach to the charging scheme is and pubs; regional newspaper and radio advertising; realistic [and] we fnd the two-cordon basis of the scheme advertisements on buses and bus shelters; a dedicated to be soundly established.” Following this, the referendum website at www.ititime.com (no longer active); posting was held by postal ballot between February 7 and 21, 2005. of CC regulations at regional local government ofces; The referendum posed the question: “The leafet enclosed

WORKING PAPER | October 2017 | 33 with this ballot paper gives information on the Council’s Furthermore, people were not convinced that the scheme transport proposals for Edinburgh. The Council’s ‘preferred’ would achieve its objectives of reduced congestion and strategy includes CC and increased transport investment improved public transportation, even though 75 percent funded by it. Do you support the Council’s ‘preferred’ thought that congestion was a problem. The conclusion strategy?” Turnout was 62 percent (comparable to that of Allen et al. (2006) was that a simpler, more easily of national elections), split into 75 percent against and 25 communicated scheme (e.g., single cordon) was needed percent for, a ratio of 3:1. The planned investment in the to convince residents, particularly public transportation integrated transportation strategy, partially underpinned by users, of the benefts. In addition, measurement of revenues from CC, was abandoned. public perceptions and responses needed to be more sophisticated to properly anticipate trends and address Gaunt et al. (2007) conducted a postmortem study them as part of the package design. Furthermore, the showing that car use determined voting behavior: car results of the public enquiry had not resulted in any owners strongly opposed the scheme; non-car owners (i.e., substantive changes to the scheme design or consultation public transportation users who would have benefted process, given the scale of the rejection. Also, delegation from the scheme) only weakly supported it. of responsibilities to the council and tie to promote the package was matched by lack of Scottish ministerial Limited understanding of the scheme increased the support. There was no obvious champion nor a single opposing vote: implementing party.

The maximum charge was GBP 2 (USD 2.7), but 38 Almost exactly 10 years later, a report issued on March ▪ percent of respondents thought it could be higher; 24, 2015, by the independent Committee on Climate Twenty percent of respondents’ journeys would not Change recommended CC “to reduce greenhouse gas ▪ have been charged, but respondents thought they emissions” which received the support of the Scottish would be; and government’s climate change minister. As an indication of Edinburgh’s lack of readiness to reintroduce CC to ▪ Thirty-seven percent of respondents incorrectly the policy agenda, the Scottish government rejected the thought that outbound trafc would be charged. recommendation two days later in an ofcial declaration. The Freight Transport Association (FTA) agreed and 4.8.3 Lessons Learned from Edinburgh stated that “congestion charging is certainly the wrong Limited understanding and misunderstandings of scheme way to try and deal with carbon emissions—after all, it’s objectives have been claimed as the causes to the failure a congestion charge, not a carbon charge” (Meczes 2015). in introducing CC to Edinburgh, as Gaunt et al. (2007) The statement reveals ambiguity as to the type of scheme concluded: “Misconceptions over the applicability of the and its claimed objectives. charge had a greater efect on the referendum result than those concerning the level of the charge.” 4.9 Manchester Congestion Charging

The congestion charging scheme design was technically 4.9.1 Manchester Background robust, it was established that the public perceived that In 2005, the UK government, via the Department for congestion was a problem and that some plan to mitigate Transport (DfT) announced the creation of the Transport this was needed although surveyed support for CC (as the Innovation Fund (TIF) as an incentive for local authorities mitigation measure) at the time of the referendum was to bid for a share of GBP9.5 billion (USD 12.5 billion) at its lowest since consultation began. Shortly before the fund to reduce carbon and other emissions by improving referendum, the investment plan was clearly understood services and reducing road congestion. DfT administered (and communicated), but the public perceived the costs the TIF and looked for proposals that included the (to them) to be tangible but the benefts of reduced principles of travel demand management, improved congestion and improved public transportation were public transportation, improved trafc management, abstract possibilities. In addition, there was evidence that and schemes that could contribute to increased national people did not understand what was being proposed or productivity in general. why and voted against the package (which included CC) even though they would have benefted from it. The Association of Greater Manchester Authorities

34 | International Case Studies on Public Communication and Consultation Strategies for Low Emission Zones and Congestion Charging Schemes

Proposed Charging Area in Manchester

Source: https://en.wikipedia.org/wiki/Greater_Manchester_congestion_charge#/media/File:Manchester_Congestion_Charge.png

(AGMA) comprised 10 local authorities who acted in The CC component of the package was based on two coordination in a bid to DfT for a share of the TIF. In total, concentric cordons, the largest encompassing 200 km2 or AGMA had a combined population of 2.2 million, of which 15 percent of the Greater Manchester Area, compared with Manchester was the largest at 490,000. AGMA’s initial 20 km2 (1 percent), 28.5 km2 (7 percent), and 8.2 km2 (4.5 (informal) consultation included dialogue with members percent) in London (excluding the WEZ), Stockholm, and of AGMA, DfT, local businesses, and economists. In Milan respectively. Pricing was limited to peak periods parallel, a survey of 5,000 Greater Manchester residents only, initially for morning inbound trafc and evening and 1,000 local businesses showed a slim majority outbound trafc. in support of CC (residents being more in favor than businesses were). Overall, the results of the informal 4.9.2 Public Communication Process round gave sufcient support to AGMA for it to develop a The public communication process occurred as part of detailed integrated transportation strategy to be partially the TIF submissions to DfT, which required a formal funded by the TIF (about GBP1.5 billion, USD2.0 billion) consultation and a referendum before the bidding. and revenues from CC. EXTENSIVE FORMAL CONSULTATION ON CC AS The integrated transportation strategy was valued PART OF TIF APPLICATION at GBP2.8 billion (USD3.7 billion) and focused on improvement to public transportation, including increased The budget for consultation was GBP3 million (USD 4.0 frequency of buses by 10percent, 180 yellow school buses, million), about 0.1 percent of the package value, and an integrated ticketing scheme, additional rail carriages, a included a consultation brochure with a response form new local rail station, station improvements, an additional to 1.2 million households (in 11 languages), a mobile 2,000 park-and-ride spaces, 41 new stops on the MetroLink exhibition bus for each of the 10 authorities, public (regional light rail service), 1,440 additional parking spaces meetings, a telephone inquiry service, a Web inquiry at MetroLink stations, 200 km of cycleways, and general service, updates sent to 30,000 business, a curriculum improvements for pedestrian safety. pack for schools, 65 static exhibitions, and a website.

WORKING PAPER | October 2017 | 35 The stakeholders in the formal consultation included The referendum results showed that 79 percent of the 10 members of AGMA, each of whom was required eligible voters rejected the package with a turnout of to prepare a response (generally in support or not in 54 percent (BBC News 2008). Media coverage was support) of the package. A TIF consultation scrutiny panel almost universally focused on CC, rather than the TIF, was established (including the chief executives of the potentially demonstrating polarization against the four largest local authorities, the Manchester Chamber principles of CC, citing potential damage to the local of Commerce, and the Manchester Airports Group) to economy despite the signifcant investment in public report to AGMA on the process and the results of the transportation and related infrastructure. Economically, consultation. The process started on July 7, 2008, ran for the UK was in recession, and motorists were facing high 14 weeks, and achieved a high response rate. fuel prices. Further analysis revealed the perception that regional commuters would feel the costs (from the Over 50 percent of the budget was spent on advertising and outer CC cordon) while the benefts would be localized opinion polling (survey, transcoding responses, analysis, to Manchester’s CBD. Furthermore, a signifcant and presentation). Simultaneously, groups for and against minority of voters did not believe that the funding for the waged a massive publicity campaign, each having the transportation package would be withheld even if the TIF support of elected local and national politicians. The survey bid did not go ahead. (Ipsos MORI 2008) of the general public (and businesses) showed 15 percent (11 percent businesses) in favor, 30 Following the referendum, AGMA was unable to submit percent (47 percent businesses) opposed, and 55 percent its bid for TIF. Pending bids from other UK authorities, (42 percent businesses) undecided. According to Ipsos such as Durham, Reading, and Cambridgeshire, were not MORI (2008), “Most of those who expressed opposition to submitted; and in 2010 the DfT closed down the TIF. the proposals made it clear that their main objection was to the congestion charge,” including the level of the charge, Apart from the failure of the Manchester referendum, the perception that it was a new tax, and unfairness to low- the government was undoubtedly infuenced by the 1.8 income earners. The most frequently expressed concern million signatures on a petition against road pricing was the existence of the larger outer cordon. on the UK prime minister’s website in 2007. This, the largest petition ever, said, “The idea of tracking every vehicle at all times is sinister and wrong. Road pricing SCHEME CHANGES RESPONDING TO CONSULTATION is already here with the high level of taxation on fuel. AND REFERENDUM The more you travel—the more tax you pay. It will be Following the consultation, some variation was made to the original package. Regarding the CC component, an unfair tax on those who live apart from families, a low-income worker discount was introduced, a daily and poorer people who will not be able to aford the cap (limit) on charges was established, and additional high monthly costs. Please Mr. Blair—forget about road categories were added of users that would be exempt pricing and concentrate on improving our roads to reduce from charges: medical-related trips, recovery vehicles, congestion.” There were other small but vocal opposition registered disabled persons, motorcycles, and additional groups, such as the Drivers’ Alliance (founded by Peter categories of buses. A 50 percent discount was introduced Roberts, who initiated the petition just mentioned), and for vehicles traveling to Traford Park (Manchester’s main the Association of British Drivers. Other entities such as 11 have, in general, industrial and commercial area). the Royal Automobile Club Foundation been supportive of price-based demand measures. Requests to vary the position of the cordon and limit charges to trafc crossing both cordons in one trip were 4.9.3 Lessons Learned from Manchester rejected. It was accepted that the CC for operators of heavy Despite its extensive consultation process, it seems clear goods vehicles of 3.5 tonnes or over would be suspended that Manchester did not learn the lessons of the failed for 12 months, pending an assessment of revised freight scheme in Edinburgh, most particularly the advice to keep movements and the establishment of a local partnership to the scheme simple, at least initially. Manchester simply assess long-term plans for freight operators to help reduce consulted and provided information about the proposed congestion and harmful emissions. At this stage, AGMA scheme, but was not able, or did not feel able, to campaign declared that all of its criteria on the package delivering aggressively in favor of the scheme, a handicap from which economic, social, and environmental benefts would be met. its opponents did not sufer.

36 | International Case Studies on Public Communication and Consultation Strategies for Low Emission Zones and Congestion Charging Schemes

Other conclusions are that the consultation and education use by 25 agencies in 14 states in the Northeast United process should be a long-term afair as it takes time for States, with more than 26 million tags in use. people to understand and accept the arguments; that referenda should be avoided if possible; and that if they are In December 2006, Michael Bloomberg, the mayor held, it should be only after people have had the chance to of New York, announced his long-term goals for experience the benefts, as they did in Stockholm. sustainability of the city through 2030, embracing water, air, energy, land use and transportation while 4.10 New York Congestion Charging accommodating the expected infux of 1 million new residents over that period. The mayor’s plan was shaped 4.10.1 Background through internal informal consultation when the public New York City (pop. 8.3 million) is the most populous consultation process began in late 2006 (New York City city in the United States, covering 790 km2 and consisting 2007). Following this, in April 2007, PlaNYC (New York of fve boroughs within a metropolitan area with a total City 2007) was unveiled as a comprehensive 25-year population of 23.6 million. Most vehicle owners in the sustainability plan to create a “greener, greater New region have been familiar with paying tolls to use the York” through successive mayoral administrations. bridges since the frst was built in 1883 and for many constructed thereafter, even during the Great Depression Among the 100 proposals within PlaNYC, one initiative of the 1930s. New infrastructure and related bridge tolls attracted virtually all public attention: Initiative 10 in have continued to be the focus of political controversy, the Transportation Chapter that proposed to introduce at one stage resulting in the permanent removal of tolls a three-year congestion pricing pilot within Manhattan on the East River bridges. Since then, the region’s rapid and a variation of tolls on bridges and tunnels feeding transit system (the New York subway) and bus network Manhattan itself. The plan would have charged cars were expanded signifcantly, and in 2009 the modal share USD 8 and heavy goods vehicles USD 21 during of public transportation had reached 55 percent. Radio- weekdays between 6 a.m. and 6 p.m. within the area frequency identifcation (RFID)-based electronic toll having its northern boundary at 86th Street with the collection, branded as E-ZPass, was introduced in August aim to mitigate congestion and to fund a new urban 1993 following extensive competitive trials, leading to its transportation authority.

Proposed Congestion Charging Area in New York

Source: Schaller 2010

WORKING PAPER | October 2017 | 37 Figure 10 | Public Communication Process in New York

Internal Information Formal Consultation Extensive Surveys State Legislation Consultation on CC with Public to Increase Level of Failed Congestion as Part of PlaNYC Hearings, Outreach Support Charging Development and Education

4.10.2 Communication Process support of the scheme. The CC proposal was aimed at addressing the increasingly adverse efects of congestion, INTERNAL INFORMAL CONSULTATION ON CC AS PART OF air quality, and funded much-needed improvements to PLANYC DEVELOPMENT the city’s transportation network. The CC proposal was developed during internal consultations of the PlaNYC. Following the mayor’s FORMAL CONSULTATION WITH PUBLIC HEARINGS, announcement of sustainability development in OUTREACH, AND EDUCATION December 2006, the Mayor’s Ofce of Long-Term Formal consultation started with reviewing the detailed Planning and Sustainability (OLTPS), under the deputy measures in the PlaNYC. The consultation process mayor for economic development, conducted an included 11 well-attended public hearings held from extensive, four-month stakeholder consultation process. October 2007 to January 2008 to discuss the mayor’s OLTPS comprised architects, economists, engineers, plan (and its alternatives) and additionally considered lawyers, marketing and communications experts, urban truck restrictions, telecommuting, taxi surcharges, planners, policy analysts and advisors. Over the period, and license plate rationing. Although the public the consultation staf hearings allowed limited questions from the audience (ICLEI-Local Governments for Sustainability USA Presented a 10-point vision for New York’s future to and City of New York 2010), they were supported by a ▪ community leaders, public organizations, advocacy comprehensive public outreach and education campaign groups, and the city’s residents, seeking feedback and with strong advocacy from the civic community. ideas for implementing the vision; ▪ Met with more than 100 advocacy groups and orga- In July 2007, a 17-member Traffic Congestion nized a total of 11 town hall and neighborhood leader Mitigation Commission (TCMC) was established by meetings; state law. The commission, which included the state Received more than 3,000 e-mails with comments governor, the New York City mayor, heads of the ▪ and suggestions regarding the 10 objectives; and majority and minority conferences in each house of the legislature, and the city council speaker, undertook a Provided updates on progress and other announce- review and study of plans to reduce traffic congestion ▪ ments via the consultation website and social media and other related health and safety issues within the channels, including Twitter, Tumblr, and Flickr. urban area. Seven public hearings were scheduled from September 2007 to January 2008, and members The advocacy group of CC includes a business coalition of the public and press were invited to attend. The (The Partnership for New York City), university-based first meeting included an agenda item on the public research centers, elected ofcials, environmental groups, consultation process itself. Progressively over the and the editorial boards of all four major newspapers in course of successive meetings, different approaches

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to congestion mitigation were developed and refined full scope of the policy that would use funds raised by to meet the originally stated aims and were informed CC to prevent an increase in fares for buses, trains and throughout by consultation feedback. tolls. This revealed that support for CC had declined by 40 percent but, when used to mitigate increases On January 31, 2008, the TCMC released a report elsewhere, CC had become steadily more popular. (Trafc Congestion Mitigation Commission 2008) that CapitalNewYork.com explained this as, “The more you described two plans, both including an element of CC, explain congestion pricing, the less scary it becomes” with the claim that either would be easier to implement (Paybarah 2013). than the mayor’s original scheme: In its fnal poll (University of Quinnipiac 2008) from (a) an alternate congestion charging plan: a northern March 16 to 18, 2008, one month before planned border at 60th Street (not 86th Street as originally authorization for the CC element at the State Legislature, proposed), no intra-zonal fee (rather than a USD 8 the university conducted a survey of 1,528 New York charge), drivers going through the central business State registered voters on several topics that included district would be charged (rather than no charge); three questions related to CC (“congestion pricing”): and Q1. There is a proposal to use congestion pricing to (b) an alternate tolling plan: The East River and Harlem reduce trafc in New York City by charging a River Toll Plan would have bidirectional tolling all fee for vehicles that drive south of 60th Street day every day on the East River and Harlem River in Manhattan. Do you support or oppose this bridges. congestion pricing plan? In general, the alternatives were both aimed at Q2. Would you support congestion pricing if the money simplifcation in response to public comments on were used to improve mass transit in and around the plan’s complexity and fairness, in addition to New York City? improvements in equity, cost reduction, and targeted Q3. How likely do you think it is that the money from use of revenues. The commission also recommended congestion pricing would be used to improve mass a residential permit parking program to address transit in and around New York City? Very likely, potential parking impacts in areas adjacent to the CC somewhat likely, not too likely, or not likely at all? zone, a monitoring program, environmental review requirements, and privacy protection mechanisms. The results (Figure 11) showed that 58 percent of The intention was to rapidly respond to stakeholder voters would oppose congestion pricing (37 percent comments and demonstrate that changes had been made, would support), but 60 percent would support it if resulting in the two alternatives just outlined. “money from the plan [was] used to improve mass transit in and around the city.” In general, people in EXTENSIVE SURVEYS TO INCREASE LEVEL OF SUPPORT Manhattan were more supportive of the idea than The 12-month stakeholder consultation process people in the outer boroughs. The consultation process included large-scale direct mailing and fact sheets was not without its critics, one describing PlaNYC showing how the residents of each council and as “…a top-down bureaucratic initiative with little legislative district of New York would be affected community involvement and “buy-in” [that was] not by CC and by the proposed improvements to public well-integrated with the rest of city policy making” transportation. This was accompanied by weekly (Paul 2007). online polls hosted by OLTPS on different subjects relating to PlaNYC. In parallel, seven independent Regarding CC, the development of political consensus surveys were conducted by Quinnipiac University from reached in early 2008 included a reduction in the January 2007 to March 2008. Over this period, the charged area (from 86th to 60th Street as suggested by survey of New York City and New York state residents the TCMC), removal of zone exit charges, elimination reflected the expected response to an increasing of charges for cars traveling solely within the zone, an level of detail and an evolution in the wording of the additional allocation of revenues to the Metropolitan questions asked. In July 2007, the questions focused Transportation Authority (MTA), a nominal surcharge on less on establishing attitudes to CC and more on the taxis on trips that started and/or ended within the zone,

WORKING PAPER | October 2017 | 39 Figure 11 | Quinnipiac Survey of Public Opinion over Congestion Charging, March 2008

Q1. There is a proposal to use 60% Support congestion pricing to reduce 50% Oppose traffic in New York City by Don't know / NA charging a fee for vehicles 40% that drive south of 60th Street in Manhattan. Do 30% you support or oppose this congestion pricing plan? 20% 10% 0 NY City Q1 NY State Q1

Q2. Would you support 80% Support congestion pricing if 70% Oppose the money were used to 60% improve mass transit in and Don't know / NA around New York City? 50% 40% 30% 20% 10% 0 NY City Q2 NY State Q2

Q3. How likely do you think 40% Very Likely it is that the money from 35% Somewhat likely congestion pricing would be used to improve mass 30% Not too likely transit in and around New 25% Not likey at all York City? Very likely, Don't know / NA somewhat likely, not too 20% likely, or not likely at all? 25% 10% 5% 0 NY City Q3 NY State Q3 increased on-street parking meter rates and operational concerns). In Albany on April 7. 2008, after a closed- simplifcations, a monitoring program, environmental door meeting, the Democratic Conference of the State review requirements, and privacy protections. Without Assembly decided not to vote on the proposal: “...the the provision for use of the funds on public transit, opposition was so overwhelming ...that [Sheldon Silver] only 40 percent of New York City residents would have would not hold an open vote of the full Assembly.” supported CC, about the same level as when the mayor Because the proposal failed to be submitted to a vote, introduced the proposal. New York missed its deadline to apply for $354 million of funding from the U.S. Department of Transportation that would have underpinned funding to establish the FAILURE OF STATE LEGISLATION ON CC CC scheme. The CC component of PlaNYC was the only component that had to be approved by the New York State Legislature with financial support from the state. 4.10.3 Lessons Learned from New York However, despite broad-based public and political The publication of PlaNYC and the consultation support within New York, the enabling legislation that process served to highlight the need to discuss would have introduced CC failed to be adopted when transportation needs for New York, resulting in it was turned down by a few Democratic politicians in comprehensive support for sustainable transportation, the state legislature (primarily due to regional equity even among those who opposed CC proposals. In

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summary, the eventual rejection was due to a relatively on how funding would have been used to help increase small group of private car owners that perceived that the level of support of Manhattan residents. Surveys can CC was contrary to their self-interest. Surveys showed be used as critical tools in the public communications to that no more than 5 percent of employed New York City inform and educate the public in addition to measuring residents would have paid the congestion fee as part of the development of public opinion. Informed feedback their daily commute. from the surveys, in turn, provides a cost-effective means of data collection to highlight the focus on the Schaller (2010) concluded that, “for most people, scheme, which could help maintain a high level of congestion pricing needed to make sense on both public support. societal and individual levels to be seen as worthy of support”—i.e., although society might be better of, 4.11 Hong Kong SAR (China): Electronic individual drivers perceived that they would not. This Road Pricing is consistent with the need to align self-interest with policy aims through the consultation process itself. 4.11.1 Background Feedback measured during consultation revealed that Hong Kong SAR (pop. 7.2 million) has had three those in favor supported the views that CC would reduce rounds of electronic road pricing (ERP) proposals for congestion, support public transportation funding needs, the past 30 years. In the early 1980s, the first round and improve air quality and were consistent with stated of proposal on ERP was initiated with a pilot test. The sustainability objectives. Those opposed perceived that pilot test showed technological maturity. However, charges would hurt those least able to aford it, that the government shelved the proposal due to lack of transit was not a viable alternative, and that the value of support. In the 1990s, ERP was again put on the agenda time saved was less than the proposed USD 8 entry fee. with a competing proposal to build a bypass. The competing proposal was given a green light, leaving Even the proposal on piloting CC in Manhattan did ERP a stranded proposal for the second time. In 2014, a not get support in the state legislation process, but the third attempt started with a formal public consultation overall public communication featured a successful on a proposal allowing motorists to bypass the busiest process to win public support. Public surveys were downtown districts and to avoid paying the tolls if they synergized with structured questions to educate people have no business there.

Reference Charging Scenario in Hong Kong for 2015 Public Consultation

Source: Fred Brown, 2016

WORKING PAPER | October 2017 | 41 Figure 12 | Stages for Hong Kong ERP Proposals and Corresponding Communication Elements

First Attempt in Second Attempt in Third Attempt Starting 1980s with Only 1990s with Limited 2014 with Full-scale Internal Stakeholder Stakeholder Dialogue Public Consultation Consultation

• Trial test with positive • Lack of consultation • First-time extensitve results was not made with newly created public consultation public district boards • Focused on how ERP • Weak consultation • Limited dialogue with would be implemented, limited to 19 district political and public not whether it would be boards stakeholders implemented

• Public concerns on privacy were not well addressed

4.11.2 Public Communication Process Plate (ENP) read by 130 in-road inductive loop-based The frst two rounds of ERP proposals witnessed very roadside systems with camera enforcement. The trials limited public communication. Having learned the showed that ERP was highly efficient: it could be practices of other cities with successful implementation of constructed and operated at low cost, was technically CC and seeing the importance of public communication, feasible, and was 99 percent reliable. the third round of ERP proposal started with a strong and comprehensive public consultation process. Following the trial, the government commenced its frst formal consultation with the 19 district boards, which had been set up in the 1970s. Only 2 of the 19 district 1980S PROPOSAL WITH WEAK STAKEHOLDER CONSULTATION boards endorsed the use of ERP as a trafc restraint Hong Kong published its frst Comprehensive Transport measure. The trial results were released in 1985 and used Study in 1976, the contents of which were endorsed in a to support extended consultation with the district boards. government white paper in 1979. The plans included a At this point, the government had made no attempt to signifcant investment in transportation infrastructure, modify the policy objectives nor the operational strategy the development of a new subway system, and the use following its frst dialogue with the district boards, and of ERP to restrain the usage of private vehicles in favor this may have contributed to a more comprehensive of commercial freight and public transportation. Three rejection: nine boards were against, two were in favor, potential ERP schemes based on cordon charging (i.e., a and eight abstained (i.e., they were believed to be neutral scheme charging for crossing the designated boundary or opposed). The results of the trial were not made around a specifc area) were outlined and presented to public and “did not provide practical and understandable panels of road users to learn their relative preferences. illustrations of how much diferent types of travelers The key strategy was to charge private vehicles and not might beneft from the ERP scheme” (Gómez-Ibáñez and commercial vehicles or public-service vehicles. Small 1994).

On-road trials were conducted over a period of 21 The implementing authority (Transport Branch now months between July 1983 and March 1985, using known as the Transport Department), transportation government vehicles and volunteers (in total 2,500 experts, and academics regarded the consultation process vehicles) to assess usability, gain further feedback as weak. Despite visible benefts, including an increase from the public, and confirm technical feasibility. in average travel speeds from 20 km/h in 1978 to 28 Each vehicle was fitted with an Electronic Number km/h in 1984, the public perceived that the identifcation

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equipment installed within vehicles and the roadside In summary, the lack of acceptance for ERP was enforcement cameras were fallible (even though the trials infuenced by several factors: had proven otherwise) and could be used for tracking, feeling strong concerns about invasion of privacy. Less urgency to deal with congestion (road infrastruc- The government attempted to respond to the public’s ▪ ture expansion, the new MTR line, and recession had concerns on privacy by ofering to keep data confdential ameliorated the congestion problem); (and to destroy it in three months) and promised that the A lack of consultation with the newly created district location of charges would not be included on bills. Other ▪ boards; public concerns were focused on plans to charge private vehicles only. Public opposition to the advent of additional taxes and ▪ lack of trust that the government would reduce other A survey of vehicle usage at the proposed cordons, road-related taxes that had been promised; and conducted by one of Hong Kong’s largest car dealerships, Limited communication with public stakeholders on provided evidence that private car usage would have to ▪ the rationale for ERP and its fnancial viability, despite reduce signifcantly to meet trafc forecasts with ERP the strong evidence of its benefts. in place. This contributed to the perception by private vehicle owners that they were being targeted unfairly. Further studies on the potential for ERP were conducted At that time, Hong Kong had no environmental policy. in the 1990s. The Provisional Legislative Council (PLC) The public, whose confdence was at its lowest levels consulted with government departments (primarily (because of recent increased motoring taxes, a recession, relating to transportation and the environment) and and lack of consultation on ERP) perceived the trials as conducted a limited public consultation focused on no more than a technology test. Toward the end of the the use of ERP as a tool to reduce congestion. Stated consultation process, the government ofered a further preference surveys were conducted in May 1997, and concession to ofset annual license taxation to ensure these confrmed a potential shift in demand to public that ERP would be revenue-neutral although lack of trust transportation and a variation in timing of trips and the by the district boards and the public and criticism in apparent support for a range of potential ERP scenarios; the print media remained. Plans for ERP were dropped this provided sufcient confdence for a technical shortly afterwards. feasibility study that included a trial on the strategic road network and the disused Kai Tak Airport runway, to 1990S PROPOSAL WITH LIMITED STAKEHOLDER DIALOGUES be led by the Transport Department. However, a public The second Comprehensive Transport Study was consultation was not part of the initiative defned by the published in 1989 and included a proposed variation on PLC although the study also aimed to defne the scope of one of the three scheme options that had been presented any future consultation. in the 1985 consultation period. This study also suggested that more categories of vehicles should be charged. The RECENT PROPOSAL WITH OFFICIAL PUBLIC CONSULTATION results of the consultation were refected in a 1990 white PROCESS paper, including the use of smart cards to resolve privacy Even though Hong Kong started the technology fears, the most difcult objection that had been raised in tests with the intention to implement CC back in the 1985. The study did not result in a further consultation, 1980s, it has never succeeded in implementing CC and plans for ERP did not progress any further. as an on-the-ground policy. With growing concerns about traffic congestion and travel speed in recent According to Gómez-Ibáñez and Small (1994), “The years, the Hong Kong government decided to put CC most important lesson … is the need to anticipate and on the agenda for the third round. In response to resolve likely objections early in the planning process.” public consultation on Hong Kong’s Climate Strategy The consultation process lacked elements of dialogue and Action Agenda in August 2010, one professional with political and public stakeholders, and contemporary institution presented ERP as an option that should be reports show that the government’s communication of considered again alongside other potential initiatives, the intentions of ERP did not appear to be matched by such as new road infrastructure and compulsory use government eforts to understand public concerns nor of electronic toll collection for all vehicles on tolled resolve these in a timely manner. tunnels and routes.

WORKING PAPER | October 2017 | 43 In March 2014, the Secretary for Transport and Housing 4.11.3 Lessons from Hong Kong’s Practices invited the Transport Advisory Committee (TAC), an Hong Kong is a very special case in the efort to introduce advisory body to the government, to conduct a study a CC scheme. Despite the technological maturity and the to identify the factors that contribute to the trafc frst two rounds of proposals for ERP begun in the 1980s, congestion and to provide recommendations to tackle ERP had not been communicated publicly as a potential congestion. TAC proposed 12 short-, medium-, and long- congestion reduction tool until 2014. The two rounds term practicable measures following a three-pronged of proposals did not go further, largely because of weak approach of improving transportation infrastructure, stakeholder dialogues and limited public communication, expanding the public transportation system, and coupled with unresolved privacy and fairness concerns. managing road use. One of the proposed measures was to start planning for a CC pilot scheme. TAC especially Realizing the importance of public communication, the suggested that the government fully engage the public government began a new round of ERP proposals and as soon as possible to allow ample time for detailed made a recommendation to “start planning for a congestion planning. The government took TAC’s suggestion and charging pilot scheme by developing a conceptual plan for started a public engagement exercise to explain the ERP engagement with the public and relevant stakeholders” concept and listen to public views. (Hong Kong Transport Advisory Committee 2014).

In December 2015, the Transport Department ofcially 4.12 Summary kicked of a three-month public consultation on how to go about implementing the ERP in the central district and 4.12.1 Levels of Interaction and Minimum Requirements adjacent areas. Public consultation was to fgure out how to To varying degrees, each of the schemes described in the implement ERP, as clarifed by the Secretary for Transport case studies highlighted a visible problem: the need for and Housing (Transport and Housing Bureau 2014), not road infrastructure, investment in public transportation to fgure out whether to implement ERP. This gave a clear (or other complementary measures), increasing signal that the government had reached the stage where it congestion or worsening air quality or some combination was determined to implement a pilot scheme. of these, the willingness to change the scheme design in response to feedback, and (mostly) structured internal The public consultation, which had not been done in the dialogue followed by some form of interaction with the previous rounds, took various forms. The major means public. The structure and sequence of each phase, followed was to collect public feedbacks on the specifc pilot by all schemes presented above, started with internal scheme. Residents could send their feedbacks through (usually political consultation) and then progressively emails, fax, post, telephone, dedicated website or via intensifed interaction with the public to inform a detailed Transport Complaints Unit under the TAC and Public scheme design, which was often punctuated by further Afairs Forum of the Home Afairs Bureau. Particularly, internal dialogue to confrm and refne political support. the Government created a website www.erphk.hk to The context of the development of the scheme plans and introduce concept of ERP and disseminate consultation steps toward fulflling them is given in Appendix. materials. It should be highlighted that the website also included an interesting test on ERP knowledge that As a means of comparison, three distinct but non-mutually attracted a lot of attention. The other ways of public exclusive levels of interaction with stakeholders were referred outreaching included media reporting and commercials. to, as described by the Rodrigo and Amo (n.d.), although several similar descriptions exist, including consultation 12 Public consultation concluded in late March 2016. Proposals methods prepared by Fife Council (2015) and a resource kit 13 were submitted in terms of road charges, the level of for participation and social assessment. In particular, the charges, the period for imposing charges, the exact area, the Rodrigo and Amo list the following levels of interaction: mechanism for road pricing, or whether there should be some (a) Notifcation (one-way process of communication of exemptions in particular circumstances. Following public regulatory decisions to the public); consultation, the government plans to develop concrete proposals, commencing with a feasibility study that started in (b) Consultation (an exchange of information on a one- December 2017 relating to the application of ERP Central and of or continuing basis to facilitate the drafting of surrounding areas in anticipation of a pilot scheme. regulation); and

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Table 4 | Levels of Stakeholder Interaction

Level Location Notification Consultation Participation

Berlin ★★★★ ★★★ ★ Milan ★★★ ★★ ★★

Singapore ★★★ ★★ a ★

Stockholm ★★★★★ ★★★★ b ★★★ c

Gothenburg ★★★★ ★★★ ★★★ c London ★★★★★ ★★★★ ★★ Manchester ★★★★★ ★★★ ★

Edinburgh ★★★★★ ★★★★ ★★ c

New York ★★★★ ★★★★ ★★ d Hong Kong SAR e ★★ ★★ ★

Key: ★ low levels of intensity / effort to ★★★★★= high levels of intensity / effort Notes: a Trial used to confirm technical feasibility b Trial used as a core part of consultation c Consultative (non-binding) referendum d Vote required at state level to endorse NYC’s application for federal funding e Hong Kong’s consultation was aborted prematurely in 1984 and 1990 due to lack of political support.

(c) Participation (active involvement of interest groups in The minimum requirement for a successful consultation the formulation of regulatory objectives, policies, and is to achieve high levels of public awareness and a approaches or in the drafting of regulatory texts). consultation process that is designed to facilitate political and public acceptance. Political and public acceptance is Each of the cases studied show elements of all levels never the objective of the LEZ and CC policies; instead, it although weighted diferently, as shown in Table 4 above. is the outcome of such policies. Note that every case study included internal stakeholder engagement in drafting the necessary legislation (where it A secondary beneft to maximizing awareness is that did not already exist) and local regulations for the scheme it contributes to high levels of compliance when a and its enforcement. In three cases, public participation scheme is in operation as in London and Singapore. was refected in the use of public referenda. If not, misunderstandings will lead to noncompliance and dissatisfaction by road users who believe that The level of stakeholder interaction presented in Table 4 the schemes have been unfairly enforced, and these above ignores the acceptability of the scheme design and misunderstandings will introduce an element of risk, the social, economic, and environmental context in which as the experiences of Edinburgh, Manchester, and it was developed. Therefore, the scope and intensity of Gothenburg showed. stakeholder interaction is unlikely to be a good predictor of the likelihood that a scheme will be implemented or not. Overall, successful schemes, even those that faced public Stakeholder engagement is a necessary but not sufcient opposition to the use of CC or LEZ, depended on public prerequisite for political and public acceptance. communication that included comprehensive notifcation,

WORKING PAPER | October 2017 | 45 promotion, intensive monitoring of changes in public In general though, consultation on infrastructure projects attitudes and timely adjustment, willingness to change, in Asia tends to focus more on developing coherent and prudent decision-making. government policies and gaining the support from key ofcials and other key political stakeholders. Public 4.12.2 Differences and Similarities opinion on scheme design is emphasized less, and many Any analysis of successful schemes in Western projects lack any extensive dialogue. Instead, structured Europe, North America, and Asia would only lead to notifcation is the main form of public engagement. generalizations on the level of stakeholder engagement throughout the consultation process. The case studies In China, the engagement of scholars, Local Design from Europe (and the single example from the United Institutes (LDIs) and other experts in the development States) highlight two distinct styles: of intelligent transportation systems refect a dominant scientifc/professional approach, which has also been (a) A scientifc/professionally based approach as practiced shown to work in the development of policies toward in Germany and Sweden, where interaction with CC and LEZ in many of the case studies explored. Since 14 the public mostly involves notifcation plus limited 2001, China’s legal framework for consultation has consultation to refne the operational strategy; and been developing to the point where legal justifcation now exists to consult externally (i.e., with the public) (b) A consultative/political deal-making approach as through workshops, forums, and other meetings. At risk shown in the UK, Italy, and the United States, where of over-generalization, a process of non-confrontational, public interaction is used to short-list policy options, incremental development of new regulations for CC followed by increasing dialogue to defne operational or LEZ also appears to be dominant in China, and the details, potentially requiring signifcant changes to the case studies show that this is more closely aligned with original policy aims. the development of LEZ (compared to CC) and in the professional/scientifc approach, rather than by the To varying degrees, the case studies illustrate that political/consultation approach. Potentially, the frst such structured consultation processes in Europe and the United scheme in China could be based on enabling legislation States were used as an integral part of the development (applicable to other provinces and cities, such as that of informed public acceptance. Signifcant changes in used in Germany, Italy, and the UK) and regulations policy were exhibited in Milan; by comparison, a lack of that are locally applicable. Users should also be aware acceptance of the need for a change in policy was evident which regulations apply to them and must be helped to in Edinburgh (in particular the problematic outer cordon quickly gain this knowledge through efective marketing was retained). This demonstrates that the process of and structured dissemination (e.g., by leafets, informing consultation and its outcomes are equally important. A community leaders and through use of the Internet), focus on one but not the other could compromise the underpinned by a desire for increased transparency. The implementation of the CC or LEZ policy. alternative is not desirable, though: misunderstandings on the scope and charges for Edinburgh’s CC scheme However, there are few examples from Asia. In Hong contributed to signifcant public opposition, as revealed in Kong and Singapore, the process of scheme development its referendum and subsequent surveys. (including the trials) functioned as a type of outcome. Singapore’s consultation was mostly internal but did not As a guide to suitable analogies where local guidance is ignore the value of public feedback in its ERP scheme nonexistent, it should not be forgotten that CC and LEZ development during on-road trials to refne its operational schemes are often perceived to be complex, and their strategy. LTA is planning more extensive market efects may be far-reaching since the aim is to modify communication processes for its migration to ERP2. the travel behavior of nearly all local road users, often Consultation processes in pre-1997 Hong Kong were conficting with entrenched habits or well-defned plans. closer to the scientifc/professional method, although at that stage they lacked any meaningful public consultation Therefore, as the case studies show, the consultation mostly due to plans being abandoned because of lack process needs to be highly structured and wholly of initial political support. Up to this time, public integrated into the design of CC and LEZ schemes to consultation had been biased toward notifcation rather ensure high levels of awareness, understanding, and than encouraging structured dialogue. ultimately acceptance.

46 | International Case Studies on Public Communication and Consultation Strategies for Low Emission Zones and Congestion Charging Schemes

Parallels may be drawn between the development of the cited earlier emphasize the need to communicate Gothenburg and the (aborted) New York CC schemes. adequate information to ensure that public support or Both schemes were packaged within a comprehensive opposition is based on current and accurate information metropolitan-wide sustainability plan, both benefted to minimize misunderstandings and ensure that each from extensive public communication, and both packages affected party is able to understand the costs and secured broad political support. In both cases, the benefits for him or herself. intensive interests of smaller groups of stakeholders that were resistant to CC were able to overcome widespread public support for the sustainability packages. In the case 5. KEY FINDINGS of Gothenburg, the post-implementation referendum on TfL’s First Impacts Monitoring Report (2003) on the CC revealed poor public support (although the scheme London CC scheme summarized its approach to public continues in operation). In the meantime, the Gothenburg communication: “…direct marketing was used to reinforce authorities are studying alternative methods of demand the advertising messages and deliver greater detail, and management to see if they could be as efective as CC. to target discrete subgroups. Public relations were used to ensure the media coverage was accurate and informed, In relation to the (failed) New York scheme development, added depth to the understanding of the scheme, and a paper written by a member of the New York City provided highly targeted local advice through local media, Department of Transportation concluded that “… the or to specifc sub-groups…” [Also]…it was important process of public comment and modifcation of the that the necessary infrastructure was in place to receive proposal improved the plan and served to build greater enquiries from the public that would be prompted at support for the commission’s recommendations [but] various stages of the campaign.” that gaining approval [for] pricing [would] require changing how motorists view the efect of pricing on The process of stakeholder consultation is an integral part them personally … and not simply society at large,” thus, of the process of public communication for an LEZ or supporting the importance of addressing the self-interest CC scheme. With this in mind, the general methodology of stakeholders (Schaller 2010). and international experience suggest that a stakeholder consultation program should adhere to the following 4.12.3 The Relevance of a Champion principles, split into two parts: design then execution. The importance of a champion is often highlighted as a critical enabler of CC and LEZ. Examples from London, (a) Design Stockholm, New York, and Milan demonstrate the If not already defned, nominate a roundtable of ex- strength of elected mayors in promoting such policies on ▪ pertise that will either manage or advise on the whole a sustained basis. In each case, the mayor was supported consultation and policy design process, including by a single-purpose city authority that was able to conduct the consultation and implementation process. representation from all internal stakeholder groups, However, from the case studies, there is not enough including the scheme sponsor, the enforcement evidence to make any conclusions on whether a city authority, and local municipalities; authority itself can also perform the role of champion, if LDIs are used, assurance that they have adequate and it is likely that an implementing authority would technical capacity and knowledge of the end-to-end be limited in how much it can market CC or LEZ (a process, including IT systems architecture, billing, challenge faced in Manchester). Edinburgh’s lack of a and debt collection; and political champion was widely regarded as one of the reasons for declining lack of public support during the inclusion of international application experts/ consultation program and the ultimate failure of the practitioners as advisors on design-for- proposal, as refected in its referendum. implementation and related risks for the period from design through procurement, From the examples of Edinburgh and Manchester implementation, and operations. in particular, it is clear that any proponents of a CC scheme need to be proactive in publicizing its benefits Design the consultation process and state its objec- and educating those likely to be affected. The statistics ▪ tives (i.e., specifc levels of congestion reduction and

WORKING PAPER | October 2017 | 47 emissions) and outcomes (i.e., improved economic Decide which forms of interaction suit the stage of productivity and health), noting that focusing on the ▪ the process (e.g., mass market leafets, public visits to process to the detriment of the objectives or outcomes, on-road trial sites, community workshops, one-on-one or vice versa, could jeopardize public acceptance; dialogues with key opinion leaders, etc.) and assume Defne a range of feasible policy scenarios and related that, despite the risk from self-selected respondents, ▪ descriptions that are likely to meet the stated policy the Internet can provide a valuable communications objectives, including modeled trafc impacts, vehicle and feedback resource; entry restrictions/charges (as relevant), and qualita- Develop and test policy scenarios as part of tive statements on social and economic impacts, to be ▪ the internal stakeholder consultation process, used for internal consultation; emphasizing CC or LEZ, the size of the restricted areas, vehicle/user categorization, exemptions Develop public consultation procedures to ensure (ideally a limited quantity), complementary measures ▪ legitimacy for CC and/or LEZ policies and the devel- (e.g., new infrastructure, improvements to public opment of regulations that will afect other public transportation, etc.), and timing; and agencies, transportation service providers, businesses, road users, and residents. The implementation of CC Execute the consultation process itself, checking and/or LEZ could be regarded as a type of reform the ▪ achievements against key milestones, identifying impact of which is complex; public acceptance challenges, revising policy themes/ operational strategies and budgets while progressively Develop a consultation auditing process and use it to revealing more and more detail and, most importantly, ▪ audit all stakeholder interactions to ensure that the using surveys to check levels of understanding and defned processes have been followed with the connection acceptance to be fed back into the policy design process. between feedback and decisions clearly traceable; Design and implement surveys that measure the Based on observations from the development of ▪ development of attitudes among each stakeholder example international schemes, we make the following group at each stage in the process, ensuring statistical recommendations to help shape a public communication relevance and broader validity. Efciency means that strategy: relevant information must be gathered and analyzed as quickly as possible and include hard-to-reach stake- The development and delivery of public com- holders; and ▪ munication programs cannot be independent ▪ Market the external consultation process to all inter- of the context of the intended (or prevailing) nal stakeholders to develop internal understanding, scheme but must be integrated within it. set expectations for potential changes to the CC or Public communication implies interaction with rel- LEZ policy, and promote the value of public accep- evant stakeholders and the public. As various potential tance to ensure high levels of compliance with CC or scenarios for a CC or LEZ are developed, it is likely LEZ regulations. that policy objectives and operating strategies need to be refned, not only to demonstrate that the public communication process is meaningful but to resolve (b) Execution inconsistencies as early as possible and to develop and Explicitly identify the range of stakeholders with maintain political and public acceptance. ▪ whom the sponsor of a CC or LEZ scheme should It is important that public communication interact; if any stakeholders are difficult to reach, ▪ be carried out as early as possible in the then specific measures should be developed for feasibility study process or the policy design reaching them; process. Early start of public communication leaves Outline the multi-stage consultation process; more room for modifcation and can reduce the costs ▪ focusing initially on internal stakeholders, followed of remedying mistakes and scheme operations (since by progressive external roll-out of information a higher proportion of users would be noncompliant). in stages, initially to raise awareness and then to Migration from a simple dialogue through public progressively reveal more and more detail, adapting opinion-based decision-making to more complex to changes throughout; forms of public participation may not be applicable

48 | International Case Studies on Public Communication and Consultation Strategies for Low Emission Zones and Congestion Charging Schemes

in China’s political and cultural context. Instead, development of public opinion on the need for an LEZ early interactions with the relevant stakeholders or CC scheme and to set expectations on its respective and the public will beneft the scheme’s execution by objectives. Interactions with the stakeholders and the illustrating the potential benefts of public acceptance public provide a cost-efective means of gathering on scheme sustainability in providing fexibility for the data on travel patterns and preferences that provide scheme’s implementers to adapt to feedback gained the means to assess the public acceptance. Informed from the stakeholders and the public. feedback also allows operational strategies for potential CC or LEZ schemes to be refned before a scheme is Communicate the highest priority policy implemented and to maintain sufcient public support. ▪ objectives of the scheme, emphasizing that In addition, data gathering also allows for ongoing the primary aims are to improve air quality monitoring, which is required to measure levels of or to mitigate congestion. Other objectives may support and public attitudes. be mentioned as non-primary, such as the expected secondary beneft of improving air quality from CC. Ideally, the brand names used to communicate the scheme should refect its policy objectives and 6. FURTHER RESEARCH ensure that public communication messages are This working paper is part of the Low Emission Zone/ understandable and therefore more readily acceptable. Congestion Charging (LEZ/CC) Public Communication Public communication needs to be positive Strategies series that summarizes international best ▪ and proactive and should be used as an practices in public communication and consultation opportunity to inform and educate people. strategies that could contribute to the decision-making, Public communication is not just a process to present preparation, and implementation of LEZ and CC the public with a few facts and leave it at that. It really policies in the context of China. The series aims to ofer needs a positive “pro” campaign to allow plenty of a comprehensive package of public communication time (ideally years) for people to absorb and accept strategies to assist in the decision-making, preparation, the information, noting that more information is a and implementation of LEZ/CC policies in China and better than less. People also need to be convinced elsewhere in the world. The recommendations from the that a CC or LEZ scheme will reduce congestion and international cases examined in this paper may not be harmful emissions, rather than just divert trafc and directly applicable to China. The recommendations should emissions elsewhere. People should also be informed be built on the analysis of the political, legal, and social of alternatives to driving and other travel options that economic background; the government institutional setup; might exist when CC or LEZ is implemented. and the status of the urban development and transportation systems in China. In the next phase, we will further Opposition opinion-handling can be dealt investigate the communication strategies that ft into ▪ with through negotiation and the extension of China’s social, economic, and institutional framework. certain exemptions granted in the consultation process to give all stakeholders confdence Although it is not the focus of this working paper, it is that their views are being recorded and worth mentioning that equity concerns may always be potentially used to adapt the scheme’s design. raised among both the public and decision-makers, and As a consultation tool, granting an exemption for a this needs further study. Literature review shows that the specifc category of vehicle type, user category, or usage equity associated with CC has been discussed mainly from provides the opportunity for a concession to increase four perspectives: horizontal equity (members of the same support. However, exemptions make a scheme more group are treated the same); vertical equity (members of expensive to enforce as there are more variables that diferent groups are treated diferently); the cost principle need to be detected by the enforcement regime. Ideally, (those who contribute to a social cost pay for doing so); consideration should be given to balancing the cost of and the beneft principle (those who receive social benefts exemption and public support. pay for them) (Ecola and Light 2009). Depending on Public communication should be integrated whether the revenue benefts low-income individuals or all ▪ with data collection to allow for an informative individuals equally, CC could be progressive or regressive. evaluation process. Public communication requires No matter which type of CC is implemented, it is very likely surveys as critical tools to inform and measure the that some individuals will be worse of due to the location

WORKING PAPER | October 2017 | 49 International Case Studies on Public Communication and Consultation Strategies for Low Emission Zones and Congestion Charging Schemes of the charging area, distribution of housing and jobs, etc. APPENDIX Therefore, to promote equitable outcomes, decision-makers and planners should look at measuring and assessing equity Summary of Public Consultation and early in the planning process. In the scheme feasibility study process, they should conduct more sufcient public Communication Strategies for Studied Cases communication to residents and afected groups so as to The examples described in Section 4.2 to 4.11 are understand if low-income or disadvantaged groups are summarized below, including policy aims, operational disproportionately afected, and they should adjust the status, burden on road users, existence of enabling scheme accordingly. legislation, and each of the following dimensions in relation to the public consultation process: Apart from the equity issue, transportation governance also has a great impact on how efectively a transportation Scheme policy theme can be translated into practice. The Dimension Sweden, incl Stockholm UK, incl. London, implementation ability, whether with respect to CC Berlin, Germany Milan, Italy Singapore New York, US Hong Kong SAR (China) or LEZ policies, is associated with a well-structured and Gothenburg Manchester and Edinburgh institutional arrangement. Transportation policies Policy aims LEZ (urban) LEZ (then CC) ALS, RPS then ERP. ERP2 Congestion tax CC (urban) CC (urban) ERP like CC and LEZ involve many stakeholders, including being procured transportation authorities, environment authorities, other public authorities, transportation operators, Legal basis National framework National framework to National framework National tax framework to National framework to State laws within a national Not defined to support local support local deployment support local deployment support local deployment funding framework truck companies, road users, residents, visitors, etc. deployment The institutional arrangement defnes the key entity or agency that is responsible for public communications Status Extensive Extensive use, migrated Extensively used, expanding Implemented in Stockholm Extensively used in London, Sufficient local public and ERP aborted, bridge and such as delivering messages relating to set targets and implemented from LEZ to CC and scheduled for and Gothenburg only but aborted following adverse political stakeholder support; tunnel tolls introduced; CC policy details. A well-structured institutional arrangement throughout Germany replacement by ERP2 result from referenda in failed at state legislature currently being studied Manchester and Edinburgh makes the information communicated efective and ensures policy delivery. Diferent countries and cities Burden on road Colored license Various: DSRC ALS/RPS colored license DSRC tag (automatically DSRC, ANPR (automatically DSRC tag and ANPR OBU (later GNSS) have various hierarchies of institutional framework. As in users: additional disc/manually (automatically enforced) (manually enforced), ERP enforced) enforced) (automatically enforced) (automatically enforced) London, TfL integrates the authorities or responsibilities vehicle equipment enforced and paper license (automatically enforced) of policy scheme design, implementation, enforcement, needed / enforcement (manually enforced) management, monitoring, and public communication. In Revenue distribution Locally collected tax Locally collected, used to Income returned to Treasury, Dedicated to local Dedicated to funding local Dedicated (a lock box) Not defined China, these responsibilities are devolved to diferent public no hypothecation fund local complementary occasional rebate on annual transportation infrastructure transportation infrastructure to funding NY (and agencies with diferent powers. The institutional setup and measures license fees provision and public transportation outer boroughs) transit interagency collaboration necessary to ensure the delivery subsidy improvements of charging-related policies will be further studied in the Consultation City governments Local authorities (Milan: Singapore government (via Coalition of SNRA (national) Local authorities (TfL, AGMA Mayor’s office via city HK Government, Transport & next stage. authority(ies) the mayor’s office via the LTA) and local city administration and Transport Initiatives transportation authorities Housing Bureau and TD and main scheme AMAT) Edinburgh) (incl. MTA) sponsor(s)

Consultation phases National government Notification via gazette Internal/political, financial Internal state and city experts, Extensive multi-phased Extensive multi-phased Provisional legislative to develop and media adverts, limited mandate to LTA to develop multi-phased consultation, consultation, regional and consultation, regional council, district boards, trial, legislation and stakeholder consultation operations strategy, regional and local community local community consultation and local community limited public engagement (in Berlin) local structured multi-phased consultation consultation, state-level roundtable public notifications consultation

Public participation Stakeholder Stakeholder committee but Escorted visits to trial sites, Household surveys, Representation through Notification, representation Representation via district and feedback committee and limited limited consultation with community presentations, representation via political local political parties and via national political parties, boards, media opinion, mechanism(s) consultation with local local communities phased roll-out, surveys parties, media survey, stakeholders, surveys and surveys, intense media limited trial feedback communities feedback from trial referendum interest

Basis for negative Equity, cost of Perception that congestion ERP: privacy, payment Cost to outer borough Misunderstanding of Equity, cost to outer borough Privacy, distrust of feedback vehicle upgrade not a problem, exemptions options, OBU usability residents policy, equity, Manchester: residents, distrust that funds government (1985) complexity of double cordon would be spent as promised (transit upgrades)

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ENDNOTES Paybarah A. 2013. “The More You Explain Congestion Pricing, the Less Scary 1. The emission classes are based according to manufacturer-declared Euro It Becomes.” PoliticoNewYork, February 15. http://www.politico.com/states/ ratings or, if the vehicle is upgraded, its new emissions rating. new-york/albany/story/2013/02/the-more-you-explain-congestion-pricing- the-less-scary-it-becomes-000000. 2. Berlin is a city-state that has its own parliament. The state is divided into 12 boroughs (Bezirke) representing 96 localities (Ortsteile), each Rodrigo, D. and P.A. Amo. n.d. “Background Document on Public comprising several neighborhoods (Kiez). Consultation.” Working Paper. Paris, France: Organisation for Economic Co-operation and Development. https://www.oecd.org/mena/ 3. These are different colored emission stickers. There are three colors. A governance/36785341.pdf. green one certifies that a vehicle meets the highest environmental stan- dards. A yellow one is for less compliant vehicles (usually diesel or older Saunders, J., and K. Lewin. 2005. “Congestion Charging in Edinburgh—A gasoline-powered). A red one is for the lowest level. The yellow and red Gestation with Complications.” Paper presented at the PIARC Seminar on stickers are only temporary and will eventually be phased out. Road Pricing with Emphasis on Financing, Regulation and Equity, Cancun, Mexico, April 11-13. 4. According to the Berlin state government: “Euro 3 vehicles for which there is no suitable particulate filter for retrofitting and upgrading to a Schaller, Bruce. 2010. “New York City’s Congestion Pricing Experience and green sticker, and which therefore cannot be retrofitted, may be driven Implications for Road Pricing Acceptance in the United States.” Transport in the environmental zone with a yellow sticker provided a certificate to Policy 17: 266-273. this effect is obtained from a technical inspection agency and clearly displayed in the vehicle.” The exemption expired on December 31, 2014, Schuitema, G., L. Steg, and S. Forward. 2010. “Explaining Differences in after which time these Euro 3 vehicles may not enter Berlin’s umweltzone. Acceptability before and Acceptance after the Implementation of a Congestion Charge in Stockholm.” Transportation Research Part A: Policy and Practice 5. Led by pro-cycling, anti-pollution groups, outspoken doctors, and Italy’s 44(2): 99-109. Green party.

Traffic Congestion Mitigation Commission. 2008. “Commission 6. For example, in a poll conducted by the Corriere Della Sera newspaper in Recommendation.” January 31. 2006, a majority of citizens (53.9%) were opposed to the scheme.

Transport Advisory Committee (Hong Kong). 2014. Report on Study of Road 7. The report was published in July 2008 (independently of the mayor’s Traffic Congestion in Hong Kong. Hong Kong: Transport Advisory Committee. office) by Milan’s councilor for transportation, mobility, and environment and the councilor for health and correlated the launch of EcoPass with Transport and Environment News. 2015. “Rail Tunnel Financing a 5% reduction in admissions for five Milan hospitals for respiratory Saves Congestion Charge in Gothenburg.” May 4. https://www. conditions related to air pollution. transportenvironment.org/news/rail-tunnel-financing-saves-congestion- charge-gothenburg Accessed July 9, 2016. 8. Following a merger with the Banverket (Swedish Rail Administration), the combined agency is now known as Trafikverket (Swedish Transport Transport and Housing Bureau. 2014. “Recommendations for Electronic Administration). Road Charging and Increase in Fines by Director of Transport and Housing Bureau.” December 11. http://www.thb.gov.hk/tc/psp/pressreleases/transport/ 9. Practically, the trial was a pilot since the system was in full operation and land/2015/20151215b.htm Accessed July 9, 2016 the tax was levied on all road users and operated to meet all policy and operational objectives with the exception that users knew that the system TfL (Transport for London). 2006. Low Emission Zone Public Consultation, by would be switched off after seven months. Accent. Consultation report, London. http://content.tfl.gov.uk/lez-rtm-annex- a-accent.pdf. 10. Complementary smaller surveys were also conducted to provide ad- University of Quinnipiac. 2008. “State Voters Back NYC Traffic Fee 2-1, If ditional detail for the larger surveys. Funds to Transit, Quinnipiac University Poll Finds Voters Back Millionaire’s Tax 4-1.” March 24. 11. Notably, the RAC in the state of Victoria (Australia), known as the RACV continues to be a proponent of congestion fees. Wolff, H. 2013. “Keep Your Clunker in the Suburbs: Low Emission Zones and Adoption of Green Vehicles.” Economic Journal 124: 481-512. 12. Fife Council (Scotland) describes the levels as “informing,” “seeking views,” and “participation and partnership.” WHO (World Health Organization). 2011. Health Effects of Black Carbon. Bonn, Germany: Regional Office for Europe. 13. Four stages are identified: information sharing (one-way flow), consulta- tion (two-way flow), collaboration (increasing control over decision- making), and empowerment (transfer of control over decisions and resources).

14. Law on Legislation (July 1, 2000) and related bylaws.

WORKING PAPER | October 2017 | 53 ABOUT THE AUTHORS ABOUT WRI ROSS CENTER FOR Andrew Pickford, CEO, Transport Technology Consultants Ltd, Contact: SUSTAINABLE CITIES [email protected] WRI Ross Center for Sustainable Cities works to make urban sustainability a Ying Wang, Research Associate, WRI China Office, Contact: [email protected] reality. Global research and on-the-ground experience in Brazil, China, India, Mexico, Turkey and the United States combine to spur action that improves Fei Ye, Communications Officer, WRI China Office. Contact: [email protected] life for millions of people.

Shiyong Qiu, Research Analyst, WRI China Office. Contact: [email protected] Based on longstanding global and local experience in urban planning and mobility, WRI Sustainable Cities uses proven solutions and action-oriented Su Song, Research Associate, WRI China Office, Contact: [email protected] tools to increase building and energy e iciency, manage water risk, encourage efective governance and make the fast-growing urban environment more resilient to new challenges. ACKNOWLEDGMENTS Aiming to influence 200 cities with unique research and tools, WRI Sustainable Cities focuses on a deep cross-sector approach in four We are pleased to acknowledge our institutional strategic partners, who provide core megacities on two continents, and targeted assistance to 30 more urban funding to WRI: Netherlands Ministry of Foreign Affairs, Royal Danish Ministry of areas, bringing economic, environmental and social benefits to people in Foreign Affairs, and Swedish International Development Cooperation Agency. cities around the globe.

We would like to thank many organizations and experts for their support during preparation of this report. We would particularly like to extend our gratitude to Dr. Zhuang Guiyang of the China Academy of Social Sciences, and Dr. Li Lailai ABOUT WRI of the World Resources Institute for their insightful input to this report, and the World Resources Institute is a global research organization that turns big following experts and colleagues for their valuable comments and opinions: ideas into action at the nexus of environment, economic opportunity and human well-being. Baowen Li Beijing Jiaotong University Holger Balkmann Agora Verkehrswende John Walker The John Walker Consultancy ABOUT TRANSPORT TECHNOLOGY Shirley Rodriguez The Greater London Authority Tianyuan Feng Phoenix TV CONSULTANTS LIMITED Yamin Wang China Dialogue Transport Technology Consultants Limited (TTC Ltd) is a leading independent Yong Ge Institute of Environment and Development technical advisor, established in 1996 to deliver policy advisory; strategy Anjali Mahendra World Resources Institute development; interim management; and scheme design services in the field Daizong Liu World Resources Institute of Intelligent Transport Systems (ITS). Our clients include public and private Danieley Votto World Resources Institute sector organizations that wish to exploit ITS and road-user charging policies. Kim Lua World Resources Institute TTC has been providing services to clients globally for over 15 years and since We would also like to thank the following experts for sharing enlightening 2010 TTC has been headquartered in Hong Kong. experiences concerning LEZ and CC policies and public communications during interviews:

Dave Wetzel formerly with Transport for London Elliot Treharne The Greater London Authority Luke Blair formerly with Fishburn Hedges Maps are for illustrative purposes and do not imply the expression of any opinion on Mandy Courtney Transport for London the part of WRI, concerning the legal status of any country or territory or concerning Matthew Pencharz formerly with The Greater London Authority the delimitation of frontiers or boundaries.

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