Effective Air Quality Strategy in Oxford

Roger Pitman BSc(Hons); M(Med)Sci

Oxford City Council

The Oxford Times Thursday 26th March 2009

Oxford set to be declared ‘Low Emission Zone’

Dirty Buses facing ban from centre

Oxford city centre will be declared a ‘Low Emission Zone’ on Wednesday in a radical plan to combat worsening air pollution problems in the city.

It will mean only buses meeting strict European standards will be able to operate in central Oxford, in a move to improve air quality….

….but the tough restrictions will only apply to buses and coaches –and not to lorries, vans or other vehicles as many people had hoped.

AQMA’s declared 2001, 2003, 2005

AQAP 2006

LEZ 2009 Declaration

The Oxford Tortoise got there eventually!!

Key factor:

Having the debate in public

Entrenched viewpoints?

“ I am becoming increasingly frustrated at organisations that spread scare stories about air quality. Let me make this clear, once and for all. There is no significant air pollution problem in Oxford”

Local media headlines26th February 1998

Oxford Transport Strategy: Holding our breath for the way ahead

Cornmarket pedestrian zone pre-OTS

Brief overview of some key stages in the processCity AQ Management Joint work County Transport Planning

1993-1999Oxford Transport StrategyImprove environment in city centre, by enhanced bus provision, extend park &ride

Stages 1-4 Review & Assessment 1998-2003

EMITS 1997-2003

Declare single AQMA’s 2001-2005 ? 2000-2005 OTS

• To achieve the environmental enhancement of the City Centre

• To reduce the number of car trips into and through the City centre

• The removal of all vehicles from certain shopping streets throughout working day

• Give higher priority to alternatives to the car

Aims of OTS

Oxford Transport Strategy – An opportunity for change

Central Oxford – the focus of the Oxford Transport Strategy measures

Key factor:

Understand the background to the local transport strategy

Impacts of OTS

The coloured 1km grid squares indicate whether traffic emissions increased or decreased after OTS

Key factor:

Establish a proven capability

Key factors:

Making strategic links to transport policy

Demonstrating that air quality assessment can provide key insights into the local transport debate

Understanding the local “climate”

Brief overview of some key stages in the processCity AQ Management Joint work County Transport Planning

1993-1999Oxford Transport StrategyImprove environment in city centre, by enhanced bus provision, extend park &ride

Stages 1-4 Review & Assessment 1998-2003

EMITS 1997-2003

City-County members Breath of Fresh Air Nov 2004

Declare single AQMA’s 2001-2005

2000-2005Oxford Transport StrategyCreate bus priority route, encourage modal shift to bus, pedestrianiseCornmarket, High St Bus Gate.

No further measures needed?

Local media headlines

Even Mr Bean has his say..

by Mark Templeton

BUNGLING BBC Staff may come back to Oxford for a THIRD time to film the city’stransport system in action after bosses admitted getting it wrong again.The maker’s of BBC2’s Top Gear were carpeted earlier in the year and ordered toreturn to Oxford to make another show after the first programme was branded unfairand innacurate by BBC bosses.

Some local headlines on the way…

17/6/2003 City’s air quality still poor

27/8/2004 Oxford tops UK Pollution league-The big smoke

Air quality management – no go area!

• Stage4 Review with revised AQMA (July 2003)

• D-Day October 2004• A breath of Fresh Air November 2004

Some more local headlines…..continued local differences of opinion

8/11/2004 Breath Away – “Buses hold key to pollution”

12/11/2004 Report highlights poor state of city centre air

8/12/2004 Stalemate on fumes menace. Where do we go from here? City’s pollution strategy comes to a halt after county stalls on 15-point plan it helped to draft

12/1/2005 Pollution confusion –fresh call for independent review into city’s exhaust fume levels

11/2/2005 “ I am becoming increasingly frustrated at organisations that spread scare stories about air quality. Let me make this clear, once and for all. There is no significant air pollution problem in Oxford”

8/7/2005 Unfulfilled vision (leader Oxford Times)

“A Breath of Fresh Air”

• Involved Local Politicians of City & County

• Assess the impact of current transport policies on air quality

• Consider the levels of integrated approach

KEY OUTCOME : Established the precedent for joint City-County working to develop measures outlined within the AQAP

“A Breath of Fresh Air”

Recommended that:• further action was required within the LTP

in order to improve air quality, over and above measures already determined

• LTP to have AQ targets

• Establish joint mechanism between City and County for developing further measures as outlined in AQAP

Key factor:

Ownership of the process by local politicians

Brief overview of some key stages in the processCity AQ Management Joint work County Transport Planning

1993-1999Oxford Transport StrategyImprove environment in city centre, by enhanced bus provision, extend park &ride

Stages 1-4 Review & Assessment 1998-2003

EMITS 1997-2003

City-County members Breath of Fresh Air Nov 2004

Declare single AQMA’s 2001-2005

2000-2005Oxford Transport StrategyCreate bus priority route, encourage modal shift to bus, pedestrianiseCornmarket, High St Bus Gate.

County

Media

City

2006-2011 LTPwith joint AQAP including air quality targets and objectives

City - County Officers develop AQAP 2006

April 2006 AQAP adopted LEZ Feasibility study agreed under City-County Steering Group 2011-2016 New LTP….??

Key factor

Integration means integration

2006 New beginning

AQAP fully integrated in LTP, with AQ targets

Joint City-County Steering Group established

Feasibility study programme outlined for theconsideration of a LEZ in central Oxford

AQ Targets within LTP

AQAP sets target for required reductions in traffic NOxemissions in order to meet AQ objectives for nitrogen dioxide

Traffic generated NOx emissions in the AQMA need to reduce by an average of 68% to meet the air quality objective for nitrogen dioxide

Targets derived from County Saturn Traffic Model highlighted differences between streets dominated by bus traffic and those which did not, highlighting the relative impact of buses.

The targets and methods of assessment agreed with County Transport Planning officers.

Key factor was to establish baselines and targets using existing traffic models, then estimate whether future transport plans can deliver the required emissions reductions.

AQ Targets within Oxford LTP 2006-2011

The NO2 AQ mean objective is 40ug/m3

LTP baseline for Air Quality:Annual mean NO2 at St Aldate’s is 64ug/m3 (avg 2000-5)

LTP Air Quality target for central AQMA:Predicted NO2 annual mean of 53ug/m3 to 2011

An 11ug/m3 reduction consists of:

A 20% reduction in traffic emissions from LTP measures, will result in 6ug/m3 reduction

Newer vehicles will result in a further 3ug/m3 reduction

Background will reduce by 2ug/m3

AQ Targets within Oxford LTP 2006-2011

The LTP measures for improving AQ to 2011 are based upon: • Bus gate enforcement• B Q Partnership - 80% of City buses and all HGV’s achievingEuro 3 engine standard by 2011

Baseline models allow for forward prediction of existing policies against established targets

It is estimated that these measures may result in a 20% reduction in NOxemissions in the AQMA

Thus additional measures are required to reduce traffic emissions in the AQMA to achieve the AQ objective

Background to the LEZ feasibility study

• Air Quality Target now established as a shared priority in Local Transport Plan (alongside congestion, road safety, accessibility, streetscape)

• Air Quality Action Plan highlighted need for further measures to improve air quality

• A Low Emission Zone was identified as the measure with the greatest potential to improve air quality

LEZ feasibility study Steering Group Members

County Council:Cabinet Member for TransportHead of TransportTransport Planning OfficersCity Council:Portfolio Holder for Cleaner CityHead of Environmental Health Air Quality Management OfficersConsultants by invitation: AEA Technology; TTR

LEZ feasibility study - Approach to Assessment

The impact of future measures requires a wider assessment than asingle pollutant

Government Policy supports an integrated system of impact assessment and appraisal tools, in support of sustainable development

The final assessment of the Oxford LEZ will include:Feasibility and Cost benefit assessmentHealth & Environmental Impact AssessmentClimate change impacts

LEZ feasibility study

A detailed study carried out in distinct phases

• Inception & Scoping - Stage 1 (Feb 07)

• Detailed Assessment - Stage 2 (Dec 08)

• Final Assessment - Stage 3 (June 09)

Stage1- LEZ feasibility study

Considered:• Baseline traffic emissions• LEZ implementation

options• LEZ emission standards

Stage 1Using existing baseline data to:-• Define baseline emissions using existing models

• Consider LEZ implementation options: Voluntary / TRC/ TRO or other

• Potential emissions criteria for the zone that define an emission standard and compliance date

• The potential emissions benefits, scheme costs, operator costs and overall cost-effectiveness of achieving the emissions criteria by different strategies

Stage1- LEZ feasibility study

Concluded it is most feasible and cost-effective to :Set emission standards for buses and coaches

• A Euro 3 standard for all relevant vehicles by 2008• A Euro 4 standard for all relevant vehicles by 2011

Consider implementation options for a Traffic Regulation Condition (TRC)

Requires:

Consultations over future bus fleet renewal programmes

Development of detailed emissions inventories

Stage 1 Questions arising

•hat are the environmental objectives (standards and achievement dates) of the strategy?

•hat measures affecting which classes of vehicle are possible during this time?

•hat are the options for the geographical extent of measures?

•hat is the effectiveness of measures (including emissions reduction potential or trade off between pollutants – e.g. primary NO2 issues)?

•hat are the legal or regulatory options for implementing and enforcing the measures?

•hat are the set-up and operating costs?

•h t th lik l i l d i i t th l ff t d?

Outcomes of Oxford LEZ Stage 1 Consultations

Revisions to the fleet profiles shown in the Stage 1 report suggest:

•The majority of the Oxford commercial and tendered services could be ‘equivalent Euro V’ standard for PM10 during 2008

•Euro V standard vehicles are available now and, with few exceptions, these will replace existing vehicles from now onwards

Stage 2 of the LEZ feasibility study will involve:-

• Defining emission standards (Euro4, Euro5)• Define pollutant (Nitrogen Dioxide, Particulate Matter) – one of these or both?

• Considering London LEZ standards (inc application to wider vehicle classes at later dates)

• Defining classes of vehicle (3 main bus operators, all bus operators, all bus and coach operators, buses coaches and HGV’s, LGV’s, Taxis and Cars)?

• Defining timescales for introduction

• Consultation on voluntary approach (adoption of LEZ standards, to 3 main bus companies)

• Consideration of different approaches (applying an emission standard, in addition to Voluntary / TRC approach, including..)

- Quality Bus Partnership Agreement (QBPA)

- Quality Partnership Scheme (QPS)

- TRO-Traffic Regulation Order for other vehicle types

LEZ - Integrated Decision making

Final decisions were made both in the City Council and the County Council

City CouncilDeclare LEZ standard – (Achieve Euro5 by 31/12/2013)

Joint working with the County council on development of an integrated package of transport and bus

quality improvements in Oxford

County CouncilSupport LEZ standard as above

Proposals for LEZ to be are progressed as part of an integrated package of

transport and bus quality improvements in Oxford

Agree timetable for BQPS by 30/9/2009

Develop options for TRC to meet LEZ standards

TRC will be introduced unless a BQPS has been implemented first

Oxford LEZ - key lessons

Integrated approach

• AQAP targets into current LTP• Established joint steering group with both councils• Involved lead politicians and officers • Considered wide set of options for LEZ• Consulted main bus and coach operators• Implementation aided by new options for partnership

schemes under Local Transport Act• Flexible implementation approach involving option of

negotiated BQPS or TRC if required

Oxford LEZ

Discussions are ongoing with the busoperators, in relation to the implementationof the scheme

Full details of the scheme including feasibility study assessments cannot be released at this stage