= pÉêîáÅÉ=Åçåíê~Åí=Ñçê=?ÉñJéçëí?= Éî~äì~íáçå=çÑ=ëÜçêíJíÉêã=~åÇ=äçÅ~ä= ãÉ~ëìêÉë=áå=íÜÉ=`^cb=ÅçåíÉñí A report produced for European Commission, DG Environment Gwyn Jones Steve Pye Paul Watkiss January 22 2005 = ^b^qLbaRNMVR=Ó=Ñáå~ä=êÉéçêí==fëëìÉ=O = pÉêîáÅÉ=Åçåíê~Åí=Ñçê=?ÉñJéçëí?= Éî~äì~íáçå=çÑ=ëÜçêíJíÉêã=~åÇ=äçÅ~ä= ãÉ~ëìêÉë=áå=íÜÉ=`^cb=ÅçåíÉñí A report produced for European Commission, DG Environment Gwyn Jones Steve Pye Paul Watkiss January 22 2005 = ^b^qLbaRNMVR=Ó=Ñáå~ä=êÉéçêí==fëëìÉ=O = Title Service Contract for "ex-post" Evaluation of short-term and Local Measures in the CAFE Context Customer European Commission, DG Environment Customer reference B4-3040/2003/366045/MAR/C1 Confidentiality, Copyright AEA Technology plc Year copyright and All rights reserved. reproduction Enquiries about copyright and reproduction should be addressed to the Commercial Manager, AEA Technology plc. File reference Report number AEAT/ED51095/ final report Report status Issue 2 ISBN number AEA Technology Environment 551 Harwell Didcot Oxfordshire OX11 0QJ UK Telephone +44 (0)870 190 6504 Facsimile +44 (0)870 190 6607 AEA Technology is the trading name of AEA Technology plc AEA Technology is certificated to BS EN ISO9001:(1994) Name Signature Date Author Gwyn Jones 22/1/05 Steve Pye Paul Watkiss Reviewed by Paul Watkiss 22/1/05 Approved by Paul Watkiss 22/1/05 = ^b^=qÉÅÜåçäçÖó= = áá= = = ^b^qLbaRNMVR=Ó=Ñáå~ä=êÉéçêí==fëëìÉ=O = bñÉÅìíáîÉ=pìãã~êó= This report presents the findings of the service contract on “Ex-post” evaluation of short-term and local measures in the CAFE context (DG Environment reference B4-3040/2003/366045/MAR/C1) . The study is focused on measures to address short-term pollution peaks i.e. very high peak concentrations for short periods of time (such as during pollution episodes), and also measures to address local (permanent) air quality hot-spots. As far as possible the study evaluates these measures ‘ex post’, i.e. after their introduction, to consider the effectiveness of measures, their costs and benefits, and what this might mean for future policy. The study has established a database of local or short-term emission reduction measures, by surveying completed or planned measures implemented by municipalities or regional authorities across Europe. This information has been reviewed and analysed to examine the potential for short-term or local measures. The study has then selected five schemes, which look of particular interest, and undertaken a more detailed analysis of their costs and benefits. Finally, the study has brought this information together to provide policy recommendations on the potential role of short-term and local measures for the thematic strategy. The database The study has collated information on short-term and local measures that address air pollution peaks and permanent hot-spots. Following an initial survey, more detailed survey work was undertaken to obtain data on measures. The database has been built within an Access framework to provide a resource for future studies that is searchable and accessible from the internet. The data can be browsed easily and has a variety of search functions that will allow users to undertake searches of the following themes, 1) a pollutant-based search, 2) a geography-based search and 3) a measure-based search. The database includes information on 91 different measures, from 22 different countries worldwide (mainly representative of urban areas), that have been used to address pollution peaks or hot spots. It covers a wide range of technical and non-technical measures, across most human activity sectors. An analysis has been made of the data. Key findings are that: • 76% of the information received represents permanent local measures while only 24% represents short-term measures. To some extent this reflects the lower potential for short- term actions to significantly influence pollution peaks in many locations (because pollution peaks are often the result of regional pollution episodes). • 76% of the measures focus on controlling road transport-based emissions. 18% of the responses focus on stationary sources. This demonstrates the extent to which road transport is generally the dominant source and sector to be controlled in the modern urban context. Site-specific issues determine whether other sectors such as domestic combustion of solid fuels are also significant contributors. = ^b^=qÉÅÜåçäçÖó= = =ááá= = = ^b^qLbaRNMVR=Ó=Ñáå~ä=êÉéçêí==fëëìÉ=O = • NO 2, O 3 and PM 10 account for 64% of all of the pollution issues reported. For half of all reported issues the problem is experienced year-round, while the share of winter and summer episodic problems are 26% and 29% respectively. European respondents highlight that problems with these pollutants may result in exceedences of the air quality framework and daughter directives limit values in their location. In many cases they also highlight the inability for locally implemented measures on their own to achieve compliance with short and long term limit values. • In 12% of cases, the pollution issue only affects a few streets of houses while in 28% of cases the whole authority area suffers from the problem. Other cases experience problems somewhere between these extremes. Where the geographical scale of the issue is greater than a few streets the effectiveness of single hot-spot -specific measures is diminished and much more stringent and widespread implementation of measures may be necessary. • Most respondents and other data sources were unable to provide good quantitative data on the effectiveness and costs of the measures. This presents difficulties in evaluating local short term or permanent measures in comparison against those implemented at national or international scales. The final point is one of the more important conclusions from the study, and leads to one of the main research recommendations. It is extremely difficult to find reliable and consistent data on the ex post costs, and the ex post benefits (particularly in relation to emissions and air quality), of local measures. Moreover, where data does exist, it is not disaggregated sufficiently, and does not account for the baseline conditions i.e. with a counter-factual analysis to separate out the effect from the measure from other policies or changes. Further work is needed to investigate the full costs and benefits, and the role toward meeting EU limit values, for such measures. We highlight the creation of the database in this study as an important starting point, but recommend that further effort is needed to maintain and improve the database, and more emphasis given on the consistent collection of ex post data on schemes across Europe. Member State compliance with duties to report results of “plans and programmes” under the air quality framework directive and daughter directives would be an important contributor to this. This will beneficial to improve the understanding of which measures are successful and their potential transferability. Case Studies The study has undertaken more detailed analysis on a number of maJor proJects that have successfully managed short term or hot spot pollution problems. There is some evidence from the information collated for the database that local schemes that are directed at emissions improvements, such as low emission zones, motorway flow management, fuel bans, lead to the biggest emissions improvements, and have the largest air quality and health benefits, rather than broader transport or planning measures. The case studies were: • Controlled access by congestion charge – example: Sweden and London • Control access by designated low emission zone – example: London • Controlled traffic flow by speed cameras – example: Rotterdam = ^b^=qÉÅÜåçäçÖó= = =áî= = = ^b^qLbaRNMVR=Ó=Ñáå~ä=êÉéçêí==fëëìÉ=O = • Short-term incentive to switch travel modes – example: Strasbourg • Area ban on marketing and sale of a category of solid fuel used in the domestic sector – example: Dublin. The study has reviewed the emissions and air quality benefits of these schemes, including where possible their potential towards meeting local air quality limit values. It has also considered the wider benefits of these schemes, both environmental, and from wider sustainability obJectives. These are particularly important given the urban focus of these schemes. The analysis has also monetised the air quality benefits of scheme. Finally the study has assessed the costs of the measures, and compared these to the benefits. The case studies show that all five measures have been successful in reducing emissions, and in some cases have made significant progress towards meeting the EU limit values. The overall conclusion is that these schemes are considered cost-effective for improving air quality in relation to air quality limit values. When the benefits of the schemes are evaluated, using the methodology from the CAFE CBA proJect, they all have positive benefit to cost ratios that are similar to or better than for the introduction of Europe-wide air quality policies. This provides some initial support for these measures as an alternative to further European based legislation, both in relation to helping to address urban hot spots, and for achieving population weighted pollution reductions (and health benefits). However, the case study analyses also show that these local measures are often insufficient to meet the EU limit values on their own: they therefore complement further European wide air quality policy, rather than replacing it. Discussion in relation to the Thematic Strategy on Air Pollution A number of conclusions have been drawn together from the study. These are summarised below. Firstly, specifically targeted local measures do appear effective in terms of local emissions reductions, air quality improvement and progress towards legally binding air quality limit values, particularly when these schemes tend to be targeted at air quality hot spots. They also have good benefit to cost ratios, which are similar to or better than for the introduction of European level air quality policies. This provides some initial support for these measures as a complement to further European based legislation.