Clean Air Zones: An Approach for Local Authorities · buses, taxis and Private Hire Vehicles (PHVs) through existing non charging routes, for example using licensing or working with

Clean Air Zones: An Approach for

Local Authorities

Investigation of Air Pollution Standing

Conference - 6th December 2016,

Birmingham.

Nigel Jenkins

Principal Consultant

2© Ricardo-AEA Ltd Ricardo Energy & Environment in Confidence

Clean Air Zones: An Approach for Local Authorities

Outline of presentation:

• Clean Air Zones for non-mandated authorities

• Local Authority approach for Clean Air Zones

• Preparing for a Clean Air Zone in Southampton

• Innovative options for establishing baseline emissions and monitoring compliance.

• CAZ’s and NICE



The CAZ framework set outs out the CAZ’s are expected to be:

• be in response to a clearly defined air quality problem;

• signs along major access routes to clearly delineate the zone;

• be identified in local strategies at the earliest opportunity;

• provide active support for ultra-low emission vehicle take up;

• include a programme of awareness raising and data

sharing;

• include local authorities taking a lead;

• support healthy, active travel.

• ensure bus, taxi and PHV emission standards are improved to

meet Clean Air Zone standards;



Charging Clean air Zones:

“Local authorities are already able to introduce a Clean Air Zone under powers within the

Transport Act 2000. Part III of the Act empowers local authorities (as “charging authorities”) to

make a local charging scheme in respect of the use or keeping of motor vehicles on roads.”

”Before introducing a Class A zone a local authority should explore reducing emissions from

buses, taxis and Private Hire Vehicles (PHVs) through existing non charging routes, for

example using licensing or working with bus operators through any of the new mechanisms

proposed in the Bus Services Bill to raise the emission standards of vehicles entering the

area.”



Non-charging Clean Air Zones.

Implementing CAZ measures through a variety of routes:

• Bus Quality Partnerships

• Bus services Bill*

• Partnership working and emissions standards compliance

• Potential LA franchising powers

• Taxi licencing

• Age of vehicle and emissions standards

• Discounts for reduced CO2 and ULEV/plug-ins

• Traffic Regulation Conditions (TRC):

• Access restrictions for buses based on emissions and anti-idling

• Traffic Regulation Orders (TRO):

• Restrict non-compliant HGVs and coaches from entering zones



Central Brighton (Bus) Low Emission Zone

The Transport Act 1985 gives the Traffic Commissioner authority to introduce

a Traffic Regulation Condition for various reasons, including “to reduce or limit

noise or air pollution”.

• Traffic Regulation Condition - limit bus emissions in Brighton.

• Emission standards (Euro V) and anti-idling (1 minute)

• ANPR and compliance surveys

Over 100 buses either retro-fitted or upgraded to Euro V and VI

supported by £1.25 million DfT Clean Bus Transport Fund for 85

Brighton bus retrofits.

• Taxis although not covered but drivers observing ‘no engine idling’

policies whilst stationary at taxi ranks. Also won £195K to design

low emission technology for minibus taxis. = 25 taxis retro-fits

https://www.brighton-

hove.gov.uk/content/parking-and-

travel/travel-transport-and-road-

safety/low-emission-zone

https://www.brighton-hove.gov.uk/content/parking-and-travel/travel-transport-and-road-safety/low-emission-zone



Local Authority approach for developing Clean Air Zones

The process for developing the CAZ

• Options appraisal “ to CAZ or not to CAZ”

• Determine if a CAZ or other type of strategy is best way forward.

• Core measures:

• Assessment of measures: viability, cost, health impacts, funding.

• Extent of CAZ: consider impacts on communities, stakeholders, delivery partners and

neighbouring authorities.

• Supporting measures:

• AQAP measures, policies (transport and

planning), local ULEV initiatives ….

• Road-map:

• Planning, implementation, operation and

monitoring.



Preparing for a Clean Air Zone in Southampton.

Figure 1: Southampton Air Quality

Management Areas

• 10 areas of concern in Southampton have been designated as AQMAs.

• Road transport emissions are the most significant source of elevated NO2 levels in the

AQMA, however, other sectors, including Port activities, are also important in a certain

AQMA.

• Link AQMAs under

combined AQAP

= City-wide

Low Emission Strategy

with Low Emission Zone(s)

Western Docks



Preparing for a Clean Air Zone in Southampton.

• The study concluded that a LEZ on the Western Approaches for heavy goods vehicles

(HGV) would displace vehicle emissions to other parts of the City as road freight looked

for ways around the LEZ.

Figure 2: Modelled NO2 on the Western

Approaches (2011 ).

• SCC undertook a Low

Emission Zone (LEZ)

Feasibility Study for the

Western Approaches . The

study showed that road

transport emissions

accounted for between a

1/3 and 2/3 of modelled

levels of NOx with port

activities contributed to 1/3

of levels at Millbrook.

NO2 2011

<30

30 - 35

35 - 40

40 - 45

45 - 50

50 - 55

55 - 60

60 - 70

>70

Western Docks



Options appraisal:

• Car 1: Low emission car and eco-driving

Car 2: ULEV infrastructure

• Car 3: ITS/traffic management

• HGV 1: Encourage low emission deliveries

• HGV 2: Improving HGV emissions for port

• HGV 3: Gas freight vehicle infrastructure

• HGV 4: Anti-idling campaign/enforcement

Bus 1: Retrofitting of buses

• Bus 2: Encourage investment in ULE buses

• Bus 3: Installation of ITS

• Bus 4: An anti-idling campaign and

enforcement hotline for buses



Options appraisal:

Ranking of measures by ease of

delivery and deliverability.

*Taxi added in (CAZ requirement)

ID Measure

Po

ten

tia

l qu

ick w

ins

Car 1.1 Low emission car and eco-driving messaging in the ‘MyJourney’ sustainable travel

campaign

Car 1.2 Eco-driving and driver feedback systems on all SCC vehicles

Car 2.1 Procurement of low emission vehicles in Council and partner fleets

Car 2.2 Low emission vehicle lease/salary sacrifice scheme

HGV 1.3 24 hr delivery for low emission trucks to encourage fewer peak time HGVs

HGV 1.4 HGV standards for deliveries in city centre

HGV 2.3 Voluntary Euro V standard for port access

HGV4 Anti-idling campaign/enforcement for HGVs

Bus 1 Retrofit for buses: SCRT for older buses, Thermal management for Euro 5

Bus 2 ULEV bus scheme – ULEV bus is Euro 6 plus 30% less CO2

Bus 4 Anti-idling campaign/enforcement for Buses

Taxi 1 Greater enforcement of, or tighter emission standards in taxi licence

Taxi 4 Low emission taxis promoted through procurement/contracts

Taxi 5 Anti-idling promotion for taxis

Me

diu

m to

lo

ng

te

rm m

ea

su

res

Car 2.3 Low emission parking areas

Car 2.4 Develop EV charging infrastructure, with a common approach to EV recharging

payment systems

Car 2.5 EV car clubs

HGV 1.1 Low emission vehicles used for final delivery from consolidation centre, and greater

use of SDC

HGV 1.2 Low Emission vehicles encouraged in DSP work

HGV 2.1 Port booking scheme used to encourage/incentivise low emission trucks

HGV 3.1 HGV gas refuelling scheme – linked to port and council depot

HGV 3.2 Council gas RCV fleet

Bus 3 ITS to improve bus journey times/bus priority

Taxi 2 Priority low emission taxi ranks

Taxi 3 Taxi EV charging points

Lo

w

pri

ori

ty

Car 3 ITS/traffic management to help manage traffic at key AQ hotspots.

HGV 2.2 Port booking system linked to ITS system to ease flow of trucks to port at key times

especially AM peak

Prioritisation of measures in short-list report



Options appraisal:

Impacts on air quality

-2.00%

0.00%

2.00%

4.00%

6.00%

8.00%

10.00%

-2000

0

2000

4000

6000

8000

10000

12000

14000

16000

18000

Car 1 HGV 2 Bus 2 Car 3 Bus 1 Bus 4 HGV 4 HGV 1 HGV 1a HGV 3 HGV 2a Bus 3 Car 2

NOx emissions savings and relative % savings

NOx emissions savings (kg) NOx emissions savings relative to baseline (%)



Options appraisal:

Aggregating costs and benefits

• Final ranking of measures (NVP)

• Societal costs

• Costs to SCC

Rank MeasureNPV

(central, £)

BCR

(central)

NOx

emissions

savings

(kg)

NOx emissions

savings relative

to baseline (%)

1 Car 1 £389,000 3.2 - 0.00%

2 HGV 2 £284,000 4.73 4,251 2.00%

3 Bus 2 £278,000 2.24 9,828 4.70%

4 Car 3 £73,900 3.66 -220 -0.10%

5 Bus 1 £72,200 1.37 5,061 2.40%

6 Bus 4 £15,100 2.9 238 0.10%

7 HGV 4 £9,010 2.13 93 0.00%

8 HGV 1 -£52,500 0.94 14,493 7.00%

9 HGV 1a -£70,500 0.93 16,425 7.90%

10 HGV 3 -£154,000 0.8 12,012 5.80%

11 HGV 2a -£284,000 0.62 6,810 3.30%

12 Bus 3 -£374,000 0.4 1,058 0.50%

13 Car 2 -£2,170,000 0.46 12,533 6.00%



Upda

ted

ranki

ng

ID Measure Notes

Po

ten

tia

l q

uic

k w

ins

Car 1.1 Low emission car and eco-driving

messaging in the ‘MyJourney’

sustainable travel campaign

Impact of measure small but easy to implement

Likely to deliver significant net benefit

Car 1.2 Eco-driving and driver feedback

systems on all SCC vehicles

Impact of measure small but easy to implement

Likely to deliver significant net benefit

HGV 1.3 24 hr delivery for low emission trucks to

encourage fewer peak time HGVs

Easily achievable where aimed at Euro V

Likely to deliver net benefit when impacts outside Soton taken into account

HGV 1.4 HGV standards for deliveries in city

centre

Easily achievable where aimed at Euro V


HGV 2.3 Voluntary Euro V standard for port

access

Looks achievable and acceptable Estimated to deliver net benefit due to low upgrade

costs (Euro VI standard delivers net cost and hence would be medium term priority)

HGV4 Anti-idling campaign/enforcement for

HGVs

Potentially good measure with good public image

Delivers small net economic benefit

Bus 1 Retrofit for buses: SCRT for older

buses, Thermal management for Euro 5

Delivers significant emissions reduction and funding available

Could deliver overall net benefit

Bus 2 ULEV bus scheme – ULEV bus is Euro

6 plus 30% less CO2

Delivers significant emissions reduction and funding available

Could deliver overall net benefit

Bus 4 Anti-idling campaign/enforcement for

Buses

Potentially good measure with good public image

Delivers small net economic benefit

Taxi 1 Greater enforcement of, or tighter

emission standards in taxi licence

Good image but not popular with industry; could deliver large emissions savings

Could deliver net benefit where newer ICEV or hybrid vehicles are incentivised.

Incentivising EV’s could incur higher costs

Taxi 5 Anti-idling promotion for taxis Easy to implement; on basis of other anti-idling measures

On basis of other anti-idling measures, could deliver small net benefit

Taxi 4 Low emission taxis promoted through

procurement/contracts

Easy to do as part of wider procurement activities

Could deliver net benefit where newer ICEV or hybrid vehicles are incentivised.

Incentivising EV’s could incur higher costs



Updat

ed

rankin

g

ID Measure Notes

Med

ium

to

lo

ng

term

measu

res

HGV

1.1

Low emission vehicles used for final delivery

from consolidation centre, and greater use of

SDC

Large impact on emissions but challenging to deliver (elec / gas vehicles)


HGV

1.2

Low Emission vehicles encouraged in DSP work Large impact on emissions but challenging to deliver (elec / gas vehicles)


HGV

2.1

Port booking scheme used to

encourage/incentivise low emission trucks

Practical but risks shifting behaviour

Estimated to deliver net benefit due to low upgrade costs (Euro VI standard delivers net cost and

hence would be medium term priority)

HGV

3.1

HGV gas refuelling scheme – linked to port and

council depot

Scheme difficult to get up and running but could deliver large savings


HGV

3.2

Council gas RCV fleet Scheme difficult to get up and running but could deliver large savings


Car 2.1 Procurement of low emission vehicles in Council

and partner fleets

Impact of measure small but easy to implement and show leadership from SCC

Measure delivers significant net cost but could be important for overall balance of package

Car 2.2 Low emission vehicle lease/salary sacrifice

scheme

Impact of measure small but easy to implement and show leadership from SCC


Car 2.3 Low emission parking areas Larger impact but more time consuming


Car 2.4 Develop EV charging infrastructure, with a

common approach to EV recharging payment

systems

Larger impact but more time consuming


Car 2.5 EV car clubs Larger impact but more time consuming


Taxi 2 Priority/ low emission taxi ranks Difficult to do and enforce

On basis of Car 2 assessment, may incur large upfront costs

Taxi 3 Taxi EV charging points On basis of Car 2 assessment, may incur large upfront costs

Lo

w P

rio

rity

HGV

2.2

Port booking system linked to ITS system to

ease flow of trucks to port at key times especially

AM peak

Impact not necessarily clear and technically could be difficult

Assessed as potentially cost effective in wider HGV 2 grouping

Car 3 ITS/traffic management to help manage traffic at

key AQ hotspots.

AQ emission impacts are unclear

But delivers positive net benefit, even without considering congestion benefit

Bus 3 ITS to improve bus journey times/bus priority Impact could be small but useful as part of wider transport strategy

Under modelling assumptions (bus corridors) measure delivers large net cost



Core measures and road map for a Clean Air Zone

for Southampton

• Phase in CAZ promoting interim standards that can

be achieved quickly and additional measures

aimed at changing vehicle purchase and use

behaviour.

• Introduce a mandated CAZ in 2019 with

enforced emission standards for buses,

coaches, heavy goods vehicles (HGVs) and

taxis in line with National CAZ Framework.

Boundary of the proposed Southampton Clean Air Zone

(draft only – To be confirmed))



Supporting measures for a Clean Air Zone for

Southampton.

• Develop a Clean Air Partnership (CAP) in

conjunction with neighbouring authorities and key

stakeholders to develop common emission

reduction policies and measures.

• The CAP is to introduce a Clean Air

Recognition Scheme (CARS) to promote the

early uptake of cleaner fuels and

technologies.



Supporting measures for a Clean Air Zone for Southampton.

• The LES will be re-named as the Clean Air Strategy (CAS) and will include high

level messaging, health impact awareness and a programme of measures to

support the CAZ

• The CAZ, CAP and CAS will be supported and promoted through an effective

communication strategy working with partners such as Public Health.

• SCC will work with project partners to introduce mechanisms, including incentives,

that will encourage all key stakeholders to aim higher than the mandated CAZ

requirements (planning policies, parking)

• Additionally, SCC will continue to work with the ports to reduce emissions from

ships and other port activities.



CAZ baseline emissions and compliance monitoring.

CAZ authorities can establish and monitor emissions

from road-side real-world fleet emission studies:

• Establish baseline emissions and fleet mix (ANPR)

• Identify real-world pollution sources (target vehicles)

• Undertake compliance surveys (pre & post CAZ/LEZ)

We undertook tailpipe emission measurements of

>100,000 vehicles in London.

• This resulted in new insights into NOx and NO2

emissions showing high NO2 from recent diesel

vehicles*

*Carslaw, D.C. and Rhys-Tyler, G. (2013). New insights from comprehensive on-road measurements of NOx, NO2 and

NH3 from vehicle emission remote sensing in London, UK. Atmospheric Environment, Vol. 81 339-347.

0

1

2

3

4

5

1990 1995 2000 2005 2010 2015

year of manufacture

NO

2 (

g/k

g f

uel)

FUEL_TYPE

Diesel

Euro 6 diesel

Petrol

Petrol hybrid



Clean Air Zones and other NICE recommendations.

NICE draft guidance out for consultation - closes on 25 January 2017

Other recommendations in support of LA actions not focus on single

measure but combination of measures

• Planning, CAZs, public sector transport services and fleets,

smooth driving and speed reduction, modal shift, cleaner

routes for cycling, awareness raising

• Gaps in evidence:

• Effectiveness of development planning (incl. building design:

siting, layout and design), public transport routes, traffic

management and enforcement.

• Further research:

• effect of trees/vegetation, CAZ’s, air pollution alerts,,

telematics, exposure to air pollution using different modes of

transport. https://www.nice.org.uk/guidance/indevelopment/GID-PHG92/consultation/html-content

https://www.nice.org.uk/guidance/indevelopment/GID-PHG92/consultation/html-content

Nigel Jenkins

Principal Consultant

Ricardo Energy & Environment

30 Eastbourne Terrace, Paddington,

London W2 6LA

[email protected]

01235 753 107

ee.ricardo.com

Acknowledgments to:

Sam Rouse - Brighton and Hove City Council

Steve Guppy - Southampton City Council

mailto:[email protected]

http://ee.ricardo.com/

Documents

Clean Air Zones: An Approach for Local Authorities · buses, taxis and Private Hire Vehicles (PHVs) through existing non charging routes, for example using licensing or working with