Are low emission zones cleaning the air?

Publication date: 16 April 2008

Low Emission Zones have so far appeared in over 70 cities and towns in Europe where the most polluting vehicles are regulated. But are such zones effective? Or will they just be an added nuisance and cost, especially for foreign drivers?

The logic behind Low Emission Zones, or LEZs, is clear. These zones, where the access to vehicles is regulated according to their emissions, banned or charged, are intended to meet ever more stringent EU and national air quality standards. With air pollution, and its damage to human health, estimated at a cost to the European economy of between €427 and €790 billion annually, LEZs are seen as one of the most promising ways to comply to the limit values for certain traffic related pollutants such as fine particulate matter (PM10) and nitrogen dioxide (NO2)*.

Not surprisingly, the number of LEZs is growing and prominent newcomers include cities such as London (UK), Amsterdam, Rotterdam and Utrecht (Netherlands). Germany, though, has seen the greatest growth in the number of LEZs including major cities such as Berlin, Cologne, Dortmund, Hanover, Mannheim, and Stuttgart. Smaller German cities are following suit too. According to research by the FIA European Bureau, some 70 cities and towns in eight European countries have opted for LEZs. Six northern Italian provinces, including many prominent cities and towns, operate minimum environmental standards for all vehicles, including motorcycles, albeit for part of the day and only in winter.

Clubs back the drive to improve air quality. However, the major question facing them is whether LEZs will come to form a hurdle for car drivers, especially those entering from abroad. "It is doubtful that traffic restrictions or bans in small areas like city centres will have a significant effect," said Wil Botman, Director General of the FIA European Bureau. "Traffic restrictions or bans in larger areas like conurbations would strongly hamper public life and the economy and are therefore not realisable." Botman also doubts whether the introduction of environmental zones, together with traffic restrictions or bans for vehicles belonging to certain emission categories to enter such zones, is the most cost-effective and legitimate measure to attain compliance with Community air quality legislation. Olivier Lenz, from the FIA European Bureau, points to future difficulties for foreign drivers of getting LEZ permits before entering a city abroad. "Local traffic bans or restrictions should not discriminate among vehicles registered in different Member States," said Lenz.

A study by the Spanish club RACC, on the basis of statistics gathered by German club ADAC, casts doubts on any automatic air quality improvements if maximum speed limits are reduced. RACC's study even indicates that average nitrogen oxide emissions are lower at 120 km/h than at 80 km/h**. This points to variable speed limits as being more effective in reducing congestion and traffic emissions. Since January 2008, Barcelona has imposed a speed limit of 80 km/h along highways entering the city. Justifying the measure, the government cites the need to meet European air quality standards.

Despite growing interest in LEZs, especially in the capital city, Norway has yet to implement a full-blown LEZ. “In Oslo, though, we have reduced the speed limit during winter to 80 km to 60 km at certain major incoming roads and on the ring road,” said Egil Otter from Norwegian club NAF. The measure aims to reduce particle formation from asphalt with those 20% of cars still using studded tires forced to buy special permits. Otter told the FIA's European Bureau that such measures can be a little awkward, but are no major hindrance. Norway is currently considering a proposal, by the Norwegian Public Road Administration, for a heavy vehicle LEZ starting in 2009. Since 1996 also neighbouring Swedish capital Stockholm, together with Gothenburg, Malmö, and later Lund, have their heavy vehicle LEZs.

Although Austrian drivers do not – yet – face LEZs, lower speed limits or access restrictions for various types of vehicles, notably old lorries, have been established. “So far there has been no scientific evidence of significant improvements. The situation is even less transparent in urban areas due to the many exceptions for heavily polluting cars,” noted Mario Rohracher, Director of Public Policy and Consumer Protection at ÖAMTC. Rohracher predicts problems, especially for foreign drivers, faced with cities introducing different technical solutions. Rohracher also points to the investment costs if drivers want to upgrade their cars' environmental performance. “Added to this, these technical changes have to be approved.” Playing on the safe side, ÖAMTC, together with ADAC, will soon be able to offer Austrian drivers the correct German LEZ "Plakette" in advance.

Torben Michael Kudsk from Danish club FDM is positive about the LEZ for lorries and buses  that kicks off in Copenhagen from September 2008. He notes that especially heavy traffic causes problems with ultra fine diesel particles (PM). If LEZs for cars spread further, Kudsk would like to see greater EU harmonisation of rules and approval procedures. “FDM believes that LEZs can be a barrier to free movement in the EU,” Kudsk said. With the euro norm only shown on Danish registration documents from 2005, Danish cars that effectively fulfil environmental requirements for Germany's LEZs could be prevented access to Berlin.

Fiona Bewers from the UK's Caravan Club warns continental motor caravanners, even if their vehicles have Euro 4 engines, to pre-register with Transport for London to avoid the £100 daily charge. Bewers is worried about the practicalities of London's system with confusing signs, registration and vehicles from all over Europe having to demonstrate compliance. The Caravan Club argues it is “fundamentally unfair” to place certain motor caravans in a penalised vehicle type as their usage is low and for leisure. “They are not significant contributors to air quality deterioration,” said Bewers. She notes motor caravanners tend to drive into London's LEZ to stay at one of the Caravan Club’s London sites but then use the city's public transport.

* Council Directive 1999/30/EC made mandatory the limit values for PM10 from 2005 and, from 2010, for NO2.
** RACC hosted a FIA workshop in Barcelona on road pricing and traffic restrictions in early February 2008.

Clean Air for Europe
The Clean Air for Europe (CAFE) programme was launched by the European Union in March 2001. CAFE aims to develop a long-term, strategic and integrated policy to protect against air pollution setting targets for health and environment, critical amounts of exhaust gases and developing exhaust reduction scenarios. The following Commission's proposal for a CAFE Directive are to a) streamline provisions relating to ambient air quality, improve consistency and simplify reporting; b) established a legally binding “cap” for the annual average concentrations of particulate matter (PM) under 2.5 micrometers by 2015 replacing the limit values for PM 10. The current proposal, near final adoption, postpones, for three years, mandatory compliance to the air quality standards set in 1999. Caroline Ofoegbu, from the FIA European Bureau, sees a dichotomy between the forthcoming CAFE and the Clean Air Regulation. “Member states are racing to implement the Regulation on the one hand. But the CAFE Directive, once finally adopted, will introduce a moratorium on the implementation of LEZs,” said Ofoegbu.

For more information contact Olivier Lenz, o.lenz@fiabrussels.com

 
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