Clean Air London (UK)

Mission-oriented R&I policies: In-depth case studies

Neil Bird, Andreas Tuerk February 2018

Case Study Report: Clean Air London (UK)

European Commission Directorate-General for Research and Innovation Directorate A — Policy Development and Coordination Unit A.6 — Open Data Policy and Science Cloud Contact Arnold Weiszenbacher E-mail [email protected] [email protected] [email protected] European Commission B-1049 Brussels

Manuscript completed in February 2018. This document has been prepared for the European Commission however it reflects the views only of the authors, and the Commission cannot be held responsible for any use which may be made of the information contained therein.

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Luxembourg: Publications Office of the European Union, 2018

PDF ISBN 978-92-79-80157-0 doi: 10.2777/009082 KI-01-18-147-EN-N

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EUROPEAN COMMISSION

Mission-oriented R&I policies: In-depth case studies

Case Study Report

Clean Air London (UK)

Neil Bird

Andreas Tuerk

A Study coordinated by the Joint Institute for Innovation Policy

February 2018 Directorate-General for Research and Innovation

Table of Contents 1 Summary of the case study ...... 3 2 Context and objectives of the initiative ...... 4 2.1 Contextual factors and origins of initiative ...... 4 2.2 Strategic and operative objectives and milestones of the initiative ...... 6 2.3 Engagement of business ...... 7 3 Resources and management ...... 8 3.1 Governance and management model ...... 8 3.2 Financing model ...... 8 3.3 Key actors involved in the initiative ...... 9 3.4 Monitoring system and evaluation of the initiative ...... 9 3.5 Level and type of citizen engagement in the initiative ...... 9 4 Policy instruments and wider policy-mix used for implementing the initiative ...... 10 4.1 Description of the R&I policy instruments used for implementing of the initiative ...... 10 4.2 Connections with other policies ...... 10 4.3 Key turning points of the initiative and policy adaptation measures. Include a brief introductory text prior the table...... 10 5 Realised or expected outputs, outcomes and impacts ...... 12 5.1 Outputs and new instruments ...... 12 5.2 Outcomes ...... 12 5.3 Impacts ...... 12 5.4 Summary of the key indicators...... 12 6 Conclusions and lessons learned ...... 12 6.1 Identification and assessment of key strengths and weaknesses of the initiative 12 6.2 Lessons learned and key messages for European R&I policy ...... 13

1 Summary of the case study

Summary fiche

Title: Clean Air London Country: United Kingdom (England) Thematic area: Multiple (Air pollution, Climate Change, Transport, Health) Objective(s): The overall aim of the policy is to reduce air pollution and protect the health of the population. There is a range of specific measures and targets such as start the phasing out of older diesel buses, introduction of low emission zones, having all new registered taxies being zero- emission capable and introduction of a Toxicity Charge (T-Charge) Main governing body: Greater London Authority (GLA) Timeline: 1999 – present The Greater London Act 1999 set an obligation for the Mayor of London to develop an Air Quality Strategy and since then there has been a strategy in London. Budget: 2016-2022 GBP 875 M (circa EUR 1000 M) Pre-2016 GBP 425 M (circa EUR 500 M) as committed for the same period. Brief description of the The Greater London Act 1999 sets an obligation for the Mayor of London case (250 words) to develop an Air Quality Strategy.1 In 2010, the Mayor’s Air Quality Strategy: Cleaning the Air was published seeking to meet the requirements of the 2010 Regulations on Air Quality Standards (the regulations transposing EU Directive 2008/50/EC) and conform to the assessment criteria set out in them. The strategy includes diverse measures targeting construction, traffic, urban planning issues. Since then, the new mayor in 2016 has doubled the funds for fighting air pollution and has introduced “tough measures to reduce London's deadly air pollution”2. The new mayor has committed GBP 875 M (circa EUR 1000 M) to ‘be invested in action to improve the quality of the London’s air through to 2021/22’3. The overall aim of all the policies, measures, and strategies is to reduce pollution and ensure public health. The focus will be on the following six measures4:  Toxicity Charge (T-Charge) introduced (from October 2017);  Ultra-Low Emission Zone (from April 2019);  Cleaning the bus fleet by transitioning to a ‘cleaner’, less polluting buses (from 2018);  Introduction of the Clean Vehicle Checker (from October 2017);  Introducing air quality audits at schools in the most polluted areas; and  Having all new registered taxis to be zero emission capable (from 2018). Implementation and Governance organisation (a brief The Mayor of London, as the GLA’s executive, is the primary decision description of the maker on the regional Greater London level, including on topics related governance and policy to air quality and some issues on transport. The London’s Assembly role instruments used) is to hold the Mayor to account and review his decisions5.

Policy instruments The majority of the measures are targeting transport emissions and pollutants, and are connected to the Transport Strategies in London. However, measures tackling air quality are also mentioned in the new Environmental Strategy6. Other policies developed to tackle air quality include, the 2010 Air Quality Strategy, the “Mayor’s draft Replacement London Plan, Transport Strategy, the draft Climate Change Mitigation and Energy Strategy, the draft Climate Change Adaptation Strategy and the draft Municipal Waste Management Strategy as the Mayor’s other statutory strategies”7 In addition, the boroughs also add their local policies and measures. Observed / expected Observed (2008 to 2013)8: outputs, outcomes, and NOx levels have decreased by 25% impacts PM10 levels have decreased by 20% PM2.5 levels have decreased by 27%

In all cases the decrease is less that the target stated in the earlier strategy. Expected – To meet the EU’s air quality targets by 20259 Impacts: London will have the best air quality of any major world city by 2050, going beyond the legal requirements to protect human health and minimise inequalities10

Assessment of the main elements of mission-oriented R&I initiative*

Directionality (links to To a certain degree: Air pollution and transformation of the transport societal challenges, system are key societal challenges. To date, the announced measures industry transformation): have only targeted transportation and have not addressed air pollution from industry at all. Intentionality (specific, To a certain degree: Although Clean Air London has well-articulated well-articulated goals): goals with respect to transport, it is unclear whether they will produce the required outcomes (i.e. conform to the EU’s air quality targets) at this time. Clearly set timeline and Yes: A timeline for making London’s Public Transport Zero-emission by milestones: 2037 is clearly mapped. Mobilises public and To a certain degree: The GLA has pledged GBP 875 M (circa EUR 1000 private investments: M. In addition, there is funding form the communities and from business.

Focused on new No: The initiative is mainly aimed at transport options in the GLA. It knowledge creation aims at rolling out innovative technologies, such as electric cars, but (basic research, TRLs 1- doesn’t include basic research. 4): Focused on knowledge Yes, the focus is on rolling-out existing and emerging technologies. application (applied research, TRLs 5-9): Demand articulation To certain degree: The new Toxicity Charge (T-Charge) induces (involves instruments for automobile owners to choose a cleaner vehicle, but does not necessarily inducing demand): decrease the demand for the use of private instead of public vehicles. This is more controlled by the congestion charge introduced in 2008. Multi-disciplinary (inter- No: The focus is currently on transport disciplinary and/or trans- disciplinary): Joint coordination (multi- Yes: Clean Air London fits into the UK National Air Quality Strategy11 level and/or horizontal which provides the Government’s policy framework for air quality governance of management and assessment in the UK, while the boroughs must policies/finance): regularly review and assess air quality. Reflexivity (flexible policy Not known: However, The Mayor’s Air Quality Strategy states that the design, timely Mayor […] will make information about air quality in London available monitoring): to the public on the GLA website in a clear format. The Mayor will publish an annual Progress Report on his Air Quality Strategy and will revise the Strategy should changes be necessary to achieve national air quality policy objectives and relevant EU limit values.12 Openness (connected to Yes: The Mayor’s Environmental Strategy mentions a connection to the international agenda and Paris Agreement. In addition, the Mayor is the European representative networks): and Vice Chair of C40 and has an important role in helping to set the ambition, priorities and direction of cities globally. Through hosting global C40 events and working closely with other international networks such as the ICLEI London will continue to share its experience.13 Involvement of citizens: Yes: Citizens are not specifically involved in Clean Air London, but citizen groups (e.g. Clean Air in London14) are following the progress. Citizens have been engaged through different consultation rounds. In some of the measures local communities are involved by working with partners such as local businesses, schools, hospitals, the third sector and residents.

2 Context and objectives of the initiative

2.1 Contextual factors and origins of initiative

* Assessment: Yes, To certain degree, No or Not known. 4

Origins

Air pollution has been a recurring problem in London, with the largest and deadliest incident dating back to 1952, when Greater London was covered in polluted smog15. The Air Quality strategies are not new. The Greater London Act 1999 sets an obligation for the Mayor of London to develop an Air Quality Strategy16.

In 2010, the Mayor’s Air Quality Strategy: Cleaning the Air was published, seeking to meet the requirements of the 2010 Regulations on Air Quality Standards (the regulations transposing EU Directive 2008/50/EC) and conform to the assessment criteria set out in them. The overall objective of the strategy was to “reduce air pollution in London so that the health of Londoners is improved”17. According to the 2010 Strategy paper, the most effective way of reaching this objective is by complying with EU regulations and air quality limits in the quickest possible manner. The measures in the strategy included both transport and non-transport measures, ranging from encouraging smart travelling, encouraging behaviour change and cycling, promotion of clean vehicles through green procurement standards, Electric Vehicle Delivery Plan and London Hydrogen Action Plan, targeted actions to reduce pollution in most affected areas, introducing hydrogen fuel cell buses, age limits for the taxies, low emission zones, encouraging people to work closer to home, etc.

In 2016 the new Mayor, Sadiq Khan, doubled the funds for fighting air pollution18 and has introduced “tough measures to reduce London's deadly air pollution”19. Prior to announcing the Transport for London Business Plan in 2016, the Mayor has committed GBP 875 M to ‘be invested in action to improve the quality of the Capital’s air through to 2021/22’. Some of these measures are also part of London’s new Environment Strategy. The new Environment Strategy is led by the Mayor and has been put out for public consultation. The public consultation closed on 17 November 2017 and the final strategy is expected to be published in 201820. In mid-2017 Khan also announced to make London the leading Smart City. “The potential for cutting-edge technology to tackle a host of social, economic and environmental challenges is immeasurable. From air pollution and climate change to housing and transport, new technologies and data science will be at the heart of the long-term solutions to urban challenges.” As part of this drive, Khan announced the launch of a GBP 1.6-million clean tech incubator, Better Futures, which will help 100 London-based small and medium-sized businesses deliver low-carbon and clean-tech products that can help tackle the causes and effects of climate change.

The London government emphasised in the context of the new clean air measures that London has a global reputation for cutting-edge policy implementation and an unparalleled track record of delivering ambitious programmes on time and to budget.

Initiators

The main initiators and key actors for the clean air initiatives in London are the mayors. In 2010, the Greater London Authority with the then Mayor Boris Johnson published a strategy outlining 14 policies and monitoring mechanism to work towards better air quality on London. These included transport and non-transport measures. Since his election in 2016, the new Mayor, Sadiq Khan, has committed to strongly expand efforts and to introduce tough measures to reduce London's deadly air pollution21.

Drivers Barriers

Political  The European and national  None environmental performance standards and indicators22.  The aim to make London the leading Smart City. Economic  Local job creation  Too limited public funding before 2016, too limited private funding

Societal  Negative health impacts of air  Acceptance of new pollution and the increased technologies, behavioural attention of the public toward change health and environmental issues23 24 25 26 27. Technological  The aim for market innovation,  Several new transport early and fast roll out of new technologies, such as electric technologies. cars face barriers in Using the potential for cutting-edge implementation that are aimed technology to tackle a host of to be reduced. social, economic and environmental challenges.

Legal  The European and national environmental performance standards and indicators28 29.

2.2 Strategic and operative objectives and milestones of the initiative

Strategic and operative objectives

The overall aim of the policy is to reduce air pollution and protect the health of the population. The 2010 Strategy Paper introduced 14 policy transport and non-transport policy measures with the overall aim to reduce air pollution and thus contribute to Londoners’ health. The newly proposed Environmental Strategy calls for “London to have the best air quality of any major world city by 2050, going beyond the legal requirements to protect human health and minimise inequalities”. This overall aim will be tacked through a number of measures, including measures targeting the transport system (introducing zero emission bus fleet by 2037, the introduction of the Ultra-Low Emission Zone by 2019, having all new taxies to be zero emission capable, installing charging and refuelling infrastructure, etc.), measures reducing exposure of students in at least 50 schools to pollutants, use planning system to reduce the expose of those most affected, consider Air Quality positive standard, information campaigns, and tighter long-term air quality standards. As the measures to improve the air quality and general environment for Londoners are numerous, here we focus on main activities30. These are:

Toxicity Charge (T-Charge) – a charge applicable to older vehicles in central London. The T-Charge was introduced in October 2017. People driving older, more polluting petrol and diesel vehicles will be liable for the GBP 10 T-charge, on top of the congestion charge of GBP 11.50, which has been in place since 2003. The minimum emissions standards are EUR 4/IV for both petrol and diesel vehicles and EUR 3 for motorised tricycles and quadricycles.

Ultra-Low Emission Zone – a measure which is intended to supersede the T-Charge and introduce emission standard for diesel vehicles. Following the second round of public consultation, the initiative is to start on 8 April 2019. The ULEZ will operate 24 hours a day, 7 days a week within the same area as the current Congestion Charging Zone (CCZ). The ULEZ standards are in addition to the Congestion Charge and the Low Emission Zone requirements. The vehicles affected by ULEZ include motorcycles, mopeds, motorised tricycles, quadricycles, cars, small vans, large vans, 4X4 light utility vehicles, motorised horseboxes, pickups, ambulances, motor caravans, minibuses, lorries, breakdown & recovery vehicles, snow ploughs, gritters, refuse collection vehicles, road sweepers, concrete mixers, fire engines, tippers, removals lorries, buses and coaches.

The London government emphasised that London “is the UK’s truly global city and therefore the only UK market of sufficient influence to inspire market innovation and ensure the whole of the UK benefits from the economic potential offered by ULEVs”.

Clean bus fleet

Cleaning the bus fleet by transitioning to a ‘cleaner’, less polluting buses – measures include retrofitting, phasing out of double decker buses starting from 2018, and establishing 12 Low Emission Bus Zones. The proposed Environmental Strategy also sets the target that all buses will be zero emitting by 2037, with all new single-deck buses being zero emission vehicles by 2020 and all double-deck buses in central London to be compliant with Euro VI standards and hybrid by 2019. The public sector has an important role to play in demonstrating the value of ULEVs in fleets and showing that London is a suitable environment for these vehicles. London’s public-sector fleets are already rising to this challenge: London’s world leading “green bus” programme will see a trial of the world’s first purpose-built electric double deck bus this year and three bus routes operated entirely by electric buses in 2016.

Introducing the Clean Vehicle Checker – a system to estimate the NOx emissions of new vehicles and help citizens choose less polluting vehicles. The system was made operational and accessible in October 2017.

Introducing air quality audits for schools in the most polluted areas accompanied by suggestions for lowing emissions and limiting exposure of the children.

Zero emissions taxis London aims to establish the greenest taxi fleet in the world. From 1 January 2018, no more new diesel taxis are licensed in London and all newly registered taxis are Zero Emission Capable. London plans to implement a rapid charging network to enable drivers to maximise fuel savings and operate mostly in zero emission mode, with locations dedicated to the trade to GBP 5000 will be available to drivers who choose no longer to license their vehicle in London, with the exact amount depending on the age of the vehicle. Furthermore, it is planned to reward drivers who pioneer green technology by offering exclusive access to certain facilities, for example, ‘zero emission’ ranks31.

Neighbourhoods of the Future and ULEVs The Mayor of London and Transport for London (TfL) have in early 2017 announced GBP 1.4m funding for six innovative ‘Neighbourhoods of the Future’, that will combine innovative green technology and other initiatives to tackle London’s air quality emergency directly at a local level. The funding will be matched by GBP 1.1m from the London boroughs involved and Heathrow airport, and shows the ongoing commitment of the Mayor, TfL and London Councils to work closely with local communities to improve the quality of London’s air32.

The ‘Neighbourhoods of the Future’ will help to break down the barriers preventing people from buying Ultra-Low emission vehicles (ULEVs) and ease the transition for communities wanting to move to greener lifestyles. The schemes include a zero-emission zone, ‘electric streets’ that have a high concentration of electric vehicle charge points, and the trial of game-changing technology like an ultra-low emission HGV33.

Council powers are planned to be used to take ambitious steps and make difficult decisions, such as parking restrictions, preferential access and changes to loading and servicing to create a favourable atmosphere for ULEV owners34. The planning system will also be used to build in and prioritise supporting charging infrastructure, involving the local community by working with partners such as local businesses, schools, hospitals, the third sector and residents. NoFs will build confidence that ULEVs are suited to a variety of uses and will explain the community-wide benefits of ULEV uptake. Businesses such as car manufacturers/suppliers, potential sponsors and grid distribution companies will be engaged to make the NoF a reality. NoFs will be supported to test new ideas so they can come to market sooner. London will develop a new public-sector partnership responsible for council-led charging infrastructure in neighbourhood settings, such as residential streets or in communal parking areas in estates.

2.3 Engagement of business

Through the CityAir business engagement programme, the City Corporation has been raising awareness of air pollution with City workers. A number of business events have 7

been supported. A range of city businesses have been taking action to reduce their impact on local air pollution and raise awareness amongst their staff. Businesses have been improving the management of their buildings, incorporating air quality into procurement decisions and encouraging staff to move around the City either by foot or by bike. In March 2014, eighteen businesses were awarded Air Quality Champion status for their efforts in taking action to improve local air quality35.

3 Resources and management

3.1 Governance and management model

The London’s Mayor sets the air strategy and policies for greater London, which are then taken into account by the local (borough) authorities (e.g. City of London Corporation). The measures undertaken by the Mayor naturally should also be developed in the context of the national policies.

The programme is managed by the London government in close cooperation with the communities. For some measures, such as the Neighbourhoods of the Future the communities also provide matching funding.

3.2 Financing model

Budget

The new mayor has committed GBP 875 M (circa EUR 1000 M) to be invested in action to improve the quality of the London’s air through to 2021/2236. The announcement states that the full ULEZ package with all its associated measures, such as developing charging infrastructure, will benefit from GBP 610 M of investment overall. Incentives for taxis to adopt more emission-neutral technologies will also be provided as well as compensation for the de-commissioning of old vehicles. A GBP 65 M fund will be provided to help decommission taxis and stimulate early adoption. Funds are also dedicated to tackling emission hot spots in London and to develop low emission neighbourhoods, and for the update of the bus fleet. The introduction of the T-Charge is also expected to take about GBP 22 M of direct investment.

Air Quality Fund

The Mayor’s Air Quality Fund (MAQF) provides up to GBP 20 M over ten years to the boroughs to take targeted action to reduce local air pollution. The first round of funding (2013-2016) gave nearly GBP 6 M to 42 projects They include freight consolidation, green walls, low emission vehicles, reducing pollution from construction sites and digital signage to reduce engine idling. Around GBP 5 million were awarded across 28 boroughs. Projects started in April 2015 and include: establishing a green courier service in Waltham Forest providing a same day delivery service using cargo bikes and electric vehicles, a variety of infrastructure and communication projects to enhance walking and cycling, and reduce lorry movements. These projects will be completed by March 2019. In summer 2018, the third round of MAQF funding will open for applications.

Clean Air Better Business (CABB)37

The Clean Air Better Business programme is helping the Cross River Partnership (CRP)* central London businesses tackle London’s air quality challenge.

 With the support of the Mayor of London, CRP’s Clean Air Better Business (CABB) programme is helping our public and private sector partners and central London businesses to improve air quality by:

* the Cross River Partnership (CRP) is a public-private partnership that has been delivering regeneration projects in London since 1994. 8

 Making deliveries to businesses more efficient, reducing congestion and air pollution while saving time and money via the deliver BEST online tool and business support service;

 Addressing the air quality impact of online shopping and personal deliveries via the ‘Click. Collect. Clean Air’ behaviour change campaign;

 Developing and promoting ‘clean air walking routes’ and raising awareness of exposure mitigation;

 Delivering environmental improvements to mitigate air pollution and encourage active transport; and

 Communicating air quality messages with the business community.

CABB is supported with the maximum GBP 400 000 award from the Mayor’s Air Quality Fund (Round 2) and with public and private sector partner funding of GBP 480 000.

Public Private Partnerships

There are Public Private Partnerships, such as the Clean Air Better Business co-financing the programme. The London government aims for the contribution of business. In 2017, the Mayor wrote to three leading car manufacturers asking them to contribute to the Air Quality Fund.

3.3 Key actors involved in the initiative

Clean Air London is being driven by The Mayor of London. However, the initiative takes place in the Greater London Area (GLA) which means that each borough town council is also either directly through the Mayor’s Air Quality Fund or indirectly. A public-sector partnership (London government and local councils) is being developed for some measures, such as charging infrastructure in neighbourhood settings.

3.4 Monitoring system and evaluation of the initiative

Progress on the individual measures within Clean Air London will be monitored by various players. For example, “Cleaning the bus fleet” and registration of taxis will be initiated and monitored by Transport for London (TfL). The Toxicity Charge, as well as the congestion charge are monitored by the GLA.

However, the so-called, “proof in the pudding” is the air quality itself. This is monitored annually by the London Air Quality Network38. The Mayor has already stated that new measures will be added if the progress in air quality is not forthcoming.

A London Air Quality Steering Group was established to direct and influence strategic air quality policy across London. Members include London Boroughs, the Environment Agency, Greater London Authority, Transport for London and London Councils. The City Corporation provides the Chairman for this group. The City Corporation also works with seven neighbouring authorities as part of the Central London Air Quality Cluster Group39.

3.5 Level and type of citizen engagement in the initiative

Citizens have been engaged through different consultation rounds. In some of the measures local communities are involved by working with partners such as local businesses, schools, hospitals, the third sector and residents. In 2013 for example, residents in the Barbican Estate began to monitor local levels of air pollution under a Citizen Science programme with Mapping for Change, University College London. One of the key aims was to enable residents to understand how pollution varies in an urban environment, both spatially and under different weather conditions. Over 70 households monitored nitrogen dioxide on the balconies of their flats, at street level and at podium level in the Barbican Estate.

4 Policy instruments and wider policy-mix used for implementing the initiative

4.1 Description of the R&I policy instruments used for implementing of the initiative

The majority of the measures are targeting transport emissions and pollutants, and are connected to the Transport Strategies in London. However, measures tackling air quality are also mentioned in the new Environmental Strategy40. Other policies developed to tackle air quality include the 2010 Air Quality Strategy, the “Mayor’s draft Replacement London Plan, Transport Strategy, the draft Climate Change Mitigation and Energy Strategy, the draft Climate Change Adaptation Strategy and the draft Municipal Waste Management Strategy as the Mayor’s other statutory strategies”41

The London government emphasises that London has world-leading transport and environmental policies. It is the only city to have both a congestion charge and low emission zone, and will introduce the world’s first Ultra Low Emission Zone in 2020.

4.2 Connections with other policies

On the national level, the UK National Air Quality Strategy provides the Government’s policy framework for air quality management and assessment in the UK, while the boroughs must regularly review and assess air quality. The Mayor has powers to ensure London boroughs meet their statutory Local Air Quality Management requirements. The EU Air Quality Directive also has an impact as it sets pollutant limits. The Directive has been transposed in UK law.

Some of the measures have also been adopted in other countries. An example is the Clean Vehicle Checker which is also expected to be introduced in Paris (in Paris’ own version but still with the same concept).

The initiative can contribute both to Goal 11 of the UN Sustainable Development Goals: Make cities inclusive, safe, resilient and sustainable (through addressing impact of and on air quality) and Goal 13: Climate Action (as in general the measures target air pollutants and aim to achieve also zero-emission transport).

4.3 Key turning points of the initiative and policy adaptation measures. Include a brief introductory text prior the table.

Mitigating Air Pollution has been of high importance in London since 1999 however with moderate success. European legislation, health issues and emerging new technologies gave momentum to strongly accelerate the effort.

Major changes / turning points of Description of the flexibility mechanism / policy the initiative adaptation measures

The observed decrease of air Accelerating the efforts from 2016 on not only will faster pollutants from 2008 to 2013 was less reduce health impacts but also make London a frontrunner that the target stated in the earlier in new low emission technologies. It is seen as a basis to strategy. At the same time new make London a leading smart city that identifies the technologies were available that not potential for cutting-edge technologies that were not yet see a wide rollout such as electric available a couple of years ago to tackle a host of social, vehicles. The more ambitious Clean economic and environmental challenges. Also, data science Air Programme since 2016 is that will be in the centre of long-term solutions to urban supported by the emergence of smart sustainability challenges. city concepts with new concepts for technological and social innovation The portfolio of measures became broader over time and emerging. do not only include technical solutions but also behavioural change. The more ambitious Clean Air Programme since 2016 is supported by the emergence of smart city concepts with new concepts for

technological and social innovation emerging.

5 Realised or expected outputs, outcomes and impacts

5.1 Outputs and new instruments

Realised outputs: an observed improvement in air quality since 2008. NOx levels have decreased by 25%; PM10 levels have decreased by 20%, and PM2.5 levels have decreased by 27%. However, for all pollutants the decrease is less that the target stated in the earlier strategy.

5.2 Outcomes

To meet the EU’s air quality targets by 2025. Positioning London as frontrunner regarding air pollution mitigation and more broadly as the leading smart city.

5.3 Impacts

Stated goal: London will have the best air quality of any major world city by 2050, going beyond the legal requirements to protect human health and minimise inequalities.

Also, job creation in London but also other parts of the country are mentioned as impacts. Investment in London benefits other parts of the UK.

5.4 Summary of the key indicators.

Key indicators

Timeline: 2016-2022

Objective and targets: Reduce air pollution and protect the health of the population.

Total budget: GBP 875 M (circa EUR 1000 M)

Annual budget: No annual budgets stated

Share of budget, public 100% funding:

Share of budget, private 0% investment:

Leverage effect (additional A public-sector partnership (London government and local public/private investments the councils) is being developed for some measures. The Clean Air initiative has triggered): Better Business programme is supported by the Mayor’s Air Quality Fund and with other public and private sector partner funding.

Key (official/public) indicators Key indicators are pollutants included in the EU’s air quality applied for monitoring the targets progress towards the targets:

Other key indicators (e.g. Job creation and investment in London (no quantitative targets) outputs/outcomes/impacts):

6 Conclusions and lessons learned

6.1 Identification and assessment of key strengths and weaknesses of the initiative

The topic is very close to the citizens’ mitigating effects of pollution on human health. Some of the measures have been adopted prior to previous deadlines which is justified via public

consultations and seems to have created a sense of urgency and increased importance of the measures.

One of the threats to the initiative is the current uncertainty regarding environmental and air policies and the upcoming Brexit. As the UK’s and London’s regulations regarding air pollution limits stem from EU regulations (transport CO2, NOx emissions limits), Brexit creates some uncertainty on future policies in this area.

Strengths Weaknesses

 Topic is very important to the public due to  Announced measures may not lead to the health concerns expected / required improvement in air quality  The topic seems to be high on the current Mayor’s agenda, which creates momentum  Still limited funding from the private and possibilities to justify more effort. sector

 Cooperation of City Council with local  Not sufficiently part of broader national councils policies

 Neighbourhoods of the Future are important cases for a holistic approach to implement emerging technologies.

6.2 Lessons learned and key messages for European R&I policy

A change in government from the “old” to the “new” has led to strong public support for the new Mayor, Sadiq Khan. In addition, his strong leadership can promote the measures and initiatives and create momentum. Keeping the public involved through public consultations provides legitimacy to the initiative, and specifically designing measures that everyone can support “Introducing air quality audits for schools in the most polluted areas accompanied by suggestions for lowering emissions and limiting exposure of the children” increase the public support for the initiative. London is accelerating the reduction of air pollutants, a societal problem, and uses it as starting point for broader innovation by moving to the aim of becoming a leading Smart City that identifies the potential for cutting- edge technology to tackle a host of social, economic and environmental challenges. This will not only require new technologies but also data science that will be at the centre of long-term solutions to urban sustainability challenges. The initiative also shows that so far it has not been easy to raise private funding. Broadening up the initiative to other urban challenges and stimulate wider innovation may lead to a broader private participation.

References

1 Art. 362, Greater London Authority Act 1999, available at https://www.legislation.gov.uk/ukpga/1999/29/section/362

2 https://www.london.gov.uk/what-we-do/environment/pollution-and-air-quality/how- were-cleaning-londons-air

3 https://www.london.gov.uk/press-releases/mayoral/mayor-doubles-funding-to-clean- up-londons-air

4 https://www.london.gov.uk/what-we-do/environment/pollution-and-air-quality/how - were-cleaning-londons-air

5 https://www.london.gov.uk/about-us/governance-and-spending/good- governance/decision-making

6 https://www.london.gov.uk/sites/default/files/draft_environment_strategy_- _executive_summary.pdf

7 Greater London Authority, Mayor of London (2010), “Clearing the air The Mayor’s Air Quality Strategy” https://www.london.gov.uk/sites/default/files/Air_Quality_Strategy_v3.pdf

8 https://www.london.gov.uk/sites/default/files/london_environment_strategy- _draft_for_public_consultation.pdf p. 47-49

9 https://www.theguardian.com/environment/2017/jan/06/london-breaches-toxic-air- pollution-limit-for-2017-in-just-five-days

10 https://www.london.gov.uk/sites/default/files/draft_environment_strategy_- _executive_summary.pdf p. 17

11 https://www.gov.uk/government/publications/the-air-quality-strategy-for-england- scotland-wales-and-northern-ireland-volume-2

12 Greater London Authority, Mayor of London (2010), “Clearing the air The Mayor’s Air Quality Strategy” https://www.london.gov.uk/sites/default/files/Air_Quality_Strategy_v3.pdf p. 164

13 https://www.london.gov.uk/sites/default/files/london_environment_strategy- _draft_for_public_consultation.pdf p. 236

14 https://cleanair.london/

15 Greater London Authority, Mayor of London, (2002), “50 Years on – the struggle for air quality in London since the great smog of 1952”, London

16 Art. 362, Greater London Authority Act 1999, available at https://www.legislation.gov.uk/ukpga/1999/29/section/362

17 Greater London Authority, Mayor of London (2010), “Clearing the air The Mayor’s Air Quality Strategy” https://www.london.gov.uk/sites/default/files/Air_Quality_Strategy_v3.pdf

18 https://www.london.gov.uk/press-releases/mayoral/mayor-doubles-funding-to-clean- up-londons-air

19 https://www.london.gov.uk/what-we-do/environment/pollution-and-air-quality/how- were-cleaning-londons-air

20 https://www.london.gov.uk/press-releases/mayoral/mayor-doubles-funding-to-clean- up-londons-air

21 Mayor of London, “How we're cleaning up London's air”, available at: https://www.london.gov.uk/what-we-do/environment/pollution-and-air-quality/how- were-cleaning-londons-air

22 See for example the reference to the EU limit values for NOx and PMs in the Greater London Authority, Mayor of London (2010), “Clearing the air The Mayor’s Air Quality Strategy” https://www.london.gov.uk/sites/default/files/Air_Quality_Strategy_v3.pdf

23 H. Walton, et al (2015), “Understanding the Health Impacts of Air Pollution in London”, available at https://www.london.gov.uk/sites/default/files/hiainlondon_kingsreport_14072015_final.p df

24 http://www.bbc.com/news/health-35629034

25 https://www.theguardian.com/environment/2017/may/17/air-pollution-kills-more- people-in-the-uk-than-in-sweden-us-and-mexico

26 https://www.theguardian.com/environment/2017/may/07/air-pollution-clientearth- james-thornton-court-victory

27 See for example the data related to early deaths related to poor air quality announced on the Mayor of London website, available here: https://www.london.gov.uk/what-we- do/environment/pollution-and-air-quality/how-were-cleaning-londons-air

28 See for example the reference to the EU limit values for NOx and PMs in the Greater London Authority, Mayor of London (2010), “Clearing the air The Mayor’s Air Quality Strategy” https://www.london.gov.uk/sites/default/files/Air_Quality_Strategy_v3.pdf

29 https://www.theguardian.com/environment/2017/apr/27/air-pollution-plan-election- campaign-bomb-court-government

30 https://www.london.gov.uk/what-we-do/environment/pollution-and-air-quality/how- were-cleaning-londons-air

31 http://content.tfl.gov.uk/taxi-and-private-hire-action-plan-2016.pdf

32 https://tfl.gov.uk/info-for/media/press-releases/2017/january/gla---new-funding-to- improve-air-quality-across-london

33https://tfl.gov.uk/info-for/media/press-releases/2017/january/gla---new-funding-to- improve-air-quality-across-london

34 London: The Ultra Low Emission Capital Go Ultra Low City Scheme Bid https://www.londoncouncils.gov.uk/node/27433

35 City of London Air Quality Strategy 2015 – 2020 https://www.cityoflondon.gov.uk/business/environmental-health/environmental- protection/air-quality/Documents/city-of-london-air-quality-strategy-2015.pdf

36 https://www.london.gov.uk/press-releases/mayoral/mayor-doubles-funding-to-clean- up-londons-air

37 https://crossriverpartnership.org/projects/clean-air-better-business/

38 https://www.londonair.org.uk/LondonAir/Default.aspx

39 City of London Air Quality Strategy 2015 – 2020, https://www.cityoflondon.gov.uk/business/environmental-health/environmental- protection/air-quality/Documents/city-of-london-air-quality-strategy-2015.pdf

40 https://www.london.gov.uk/sites/default/files/draft_environment_strategy_- _executive_summary.pdf

41 Greater London Authority, Mayor of London (2010), “Clearing the air The Mayor’s Air Quality Strategy” https://www.london.gov.uk/sites/default/files/Air_Quality_Strategy_v3.pdf

Getting in touch with the EU

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Mitigating air pollution has been of high importance in London since 1999 however prior to 2017, activities have had moderate success. European legislation, health issues and emerging new technologies have given momentum to strongly accelerate the effort.

In 2016 the newly elected mayor, Sadiq Khan, doubled the funds for fighting air pollution and committed £875 M (circa 1 000 M€) to ‘be invested in action to improve the quality of the London’s air through to 2021/22’. New measures include a Toxicity Charge, less polluting buses, zero emission taxis and ‘Neighbourhoods of the Future’ that will help to break down the barriers preventing people from buying Ultra-Low emission vehicles and ease the transition for communities wanting to move to greener lifestyles.

In addition, the initiative includes the Air Quality Fund which provides funding for specific measures to the boroughs and the Clean Air Better Business programme which provides incentives for central London businesses to tackle London’s air quality challenge. The initiative expects not only to reduce air pollution but also increase investments and provide new jobs in London.

Studies and reports