Senate Department for Urban Development Abatement programs in urban areas and their interlinkage to European strategies Martin Lutz Senate Department for Urban Development Berlin situation sources solutions challenges Issues for discussion

Considering urban air areas in a European LRTAP strategy  why ? Aim is peoples’ health – most people live in urban areas (e.g. in Sweden 7.5 of 9 Mio) large-scale pollution background contributes also to exposure of urban population more than half of premature mortality in Swedish cities due to regional PM background Emissions of urban areas contribute to large-scale background and large-scale effects Emissions density is high in urban areas implementation of any strategy is to focus on urban areas cities are “binding grids”

Current situation  example Paris 2003 Annual mean NO2 levels Limit Value: 40g/m3 Roadside Urban Suburban Rural Margin of Tolerance, 2003: 53g/m3 And more in Dominique’s talk Source: D. Gombert, AIRPARIF

Current situation  example Germany 2003 NO2 PM10 limit value limit value Source: A. Graff, UBA

Current situation  example Regione Lombardia 2003 Milan – 2003 – “via Messina” (urban background station – city centre – gravimetric method) PM10 Rural Background Source: C. M. Marino, ARPA, 2004

Current situation  interim conclusion Many cities within the EU will have trouble meeting the EU Limit Values Mainly PM10 an NO2 Benzene still a problem in southern Europe EU in 2001: PM10 Limit Values exceeded 34% of >700 sites, and in 180 cities with 20 Mio inhabitants eg. 70 - 120 urban areas in Germany expect to exceed 2005 PM10 Limit Values Survey among EU cities by Stockholm: 16 of 25 cities anticipate problems with PM and NO2 Martin on numbers of cities with problems EU/Germany-wide

Source analysis  Simplified schematic of the PM pollution Urban areas countryside 10 15 20 30 25 35 40 Traffic, local sources PM [µg/m³] urban background regional background hemisspheric/natural background

Source analysis  speciation and origin of PM10 in Berlin Die Abbildung zeigt die Zusammensetzung des PM10 in einer städtischen Hauptverkehrsstraße, dargestellt nach räumlicher Herkunft. Knapp die Hälfte des PM10 stammt aus Quellen außerhalb des Ballungsraumes und überwiegend aus sekundär gebildeten Feinstaubpartikeln. Die andere Hälfte stammt aus Quellen in der Stadt, die sich wiederum hälftig aus dem Beitrag des lokalen Verkehrs in der Hauptverkehrsstraße und dem Einfluss anderer städtischer Quellen (einschließlich des Verkehrs in anderen Straßen) zusammensetzt. Im lokalen Verkehrsanteil ist der kohlenstoffhaltige Beitrag am höchsten. Auch der überwiegend der Aufwirbelung von Straßenstaub zuortbare Teil des „Rest“-Staubes ist beträchtlich.

Attributing PM10 sources  Sectors contributing to total PM10 at a busy traffic spot in Berlin.... #based on values recorded at the top of a radio tower 324m above ground Institut für Energie- und Umwelttechnik e.V.  new data of 2002

source analysis  interim conclusion Motor traffic is the predominant source of PM pollution in many cities; can be different in industrialized areas also 20% of regional PM10 background can be attributed to traffic exhaust emissions, but the bulk is secondary PM from industry&cumbustion more than half of traffic related PM10 stems from road&tire abrasion and resuspension of road dust regional PM10 background is between 30-60% of kerbside levels HDV & LDV emissions of particular importance NO2 regional background usually less than 20 % Zusammenfassung unserer vorläufigen Analyse der Quellbeiträge zu PM10 - Staub aus Bautätigkeit trägt zu 5% zum urbanen PM10-Hintergrund bei - 70% des durch Berliner Quellen verursachten PM10 (also ohne den nicht durch die Berliner Politik direkt beeinflussbaren Beitrag von außerhalb) ist dem Verkehr zuzurechnen - mehr als die Hälfte des verkehrsbzogenen PM10 Anteils in einer Straßenschlucht ist Reifen/Straßenabrieb und Aufwirbelung - der mit der Verkehrsstärke korreliert ist Fazit: Es müssen die motorspezifische Emissionen und die nicht aus dem Auspuff stammenden PM10-Emissionen des Verkehrs reduziert werden

CLE Scenario  multi-scale modelling ~30x30 km2 4x4 km2 Street canyon 1x1 km2 Expected E-reduction 2000-2010: NOx: -27% PM10: -9%

Likely trend of regional PM10 & urban NO2 background  impact of a CurrentLEgislation- scenario in & around Berlin  by 2010: we might get ~ 20% reduction of urban NO2 but we need > 25%  by 2010: we might get < 15% reduction of regional PM, but we need ~ 20% by 2005 Source: Stern, et al., 2004

CLE/Baseline scenario  interim conclusion  Expected improvement of PM10 and NO2 pollution insufficient  Further action needed

Action being taken by cities  transport sector (i) control of vehicle emissions through technical means and cleaner fuels Cleaning municipal vehicle fleets (e.g. Regione Lombardia: 2000 new LPG/CNG buses) Financial incentives for clean vehicles funding schemes for new clean vehicle technology and fuels ( e.g. CNG program for taxis, van, lorries in Berlin) Emission related City toll (Stockholm) or parking fees (who ?) Regulatory measures Smog regulations with ban of polluting vehicles (e.g. Regione Lombardia, Paris) Effect fairly limited on PM peaks and NO2 annual mean even in Milano average reduction of PM hourly values only 5% rising share of regional background PM during episodes (Berlin>70%) Low Emission Zones ( Rome, SW cities, London, Greenwich) London: lorries, buses taxes need EURO II & CRT: expected additional 9% PM-Emission-reduction in 2007 Licensing arrangement for public transport services (buses, taxes)

Enhanced large-scale PM transport during episodes Enhanced large-scale PM transport during episodes little effect of local short term measures Spatial distribution of potential source areas of secondary PM-10 imported into the Greater Berlin area sulphate nitrate Berlin Source: one year backward trajectory statistics by E. Reimer, 2004

Enhanced large-scale PM transport during episodes Enhanced large-scale PM transport during episodes little effect of local short term measures sources of polluted air in Illmitz (backward trajectories statistics), elevated levels in red Source: C. Nagl, UBA Vienna, 2004

Action being taken by cities  transport sector (i) control of vehicle emissions through technical means and cleaner fuels Cleaning municipal vehicle fleets (e.g. Regione Lombardia: 2000 new LPG/CNG buses) Financial incentives for clean vehicles funding schemes for new clean vehicle technology and fuels ( e.g. CNG program for taxis, van, lorries in Berlin) Emission related City toll (Stockholm) or parking fees (who ?) Regulatory measures Smog regulations with ban of polluting vehicles (e.g. Regione Lombardia, Paris) Effect fairly limited on PM peaks and NO2 annual mean even in Milano average reduction of PM hourly values only 5% rising share of regional background PM during episodes (Berlin>70%) Low Emission Zones ( Rome, SW cities, London, Greenwich) London: lorries, buses taxes need EURO II & CRT: expected additional 9% PM-Emission-reduction in 2007 Licensing arrangement for public transport services (buses, taxes)

Action being taken by cities  transport sector (i) control of vehicle emissions through technical means and cleaner fuels Cleaning municipal vehicle fleets (e.g. Regione Lombardia: 2000 new LPG/CNG buses) Financial incentives for clean vehicles funding schemes for new clean vehicle technology and fuels ( e.g. CNG program for taxis, van, lorries in Berlin) Emission related City toll (Stockholm) or parking fees (who ?) Regulatory measures Smog regulations with ban of polluting vehicles (e.g. Regione Lombardia, Paris) Effect fairly limited on PM peaks and NO2 annual mean even in Milano average reduction of PM hourly values only 5% rising share of regional background PM during episodes (Berlin>70%) Low Emission Zones ( Rome, SW cities, London, Greenwich) London: lorries, buses taxes need EURO II & CRT: expected additional 9% PM-Emission-reduction in 2007 Licensing arrangement for public transport services (buses, taxes)

Action being taken by cities  transport sector (ii) contain road traffic volume (growth) Congestion charging (e.g. London):  Effect: 12% less NOx und PM10 emissions  Extension planned Parking fees (e.g. Berlin), park & ride sustainable transport- and urban planning Investment in cleaner transport modes (public transport & cycling) Berlin: 10 bn € last decade still low car density (340 cars/1000 people) < 40% share of car traffic London: 10 bn £ next 5 years Regione Lombardia: 6 bn € next 12 years Bus lanes, priority at traffic signals for buses & trams Restrict parking capacities in new buildings  needs long time to take effect

Action being taken by cities  transport sector (iii) Optimised traffic management re-routeing through traffic in city centres on tangential roads  effect in large cities: ~ 10% reduction in Berlin’s centre rerouting HDV traffic in sensitive areas (Prague)  Field test in Berlin: -7% PM10, -20% NOx pollution bypass roads to calm traffic in sensitive areas No net reduction of emissions Better road maintenance to reduce abrasion Ban/charging use of studded tyres (Scandinavia) Speed limits big effect on noise little effect on air quality

Potential to calm traffic in Berlin‘s city centre 1998 2015

Traffic related measures to reduce PM10 Traffic related measures to reduce PM10  reduction potential in Austria Local action Source: Nagl/Hausberger (2004)

Action being taken by cities  other sectors Large installations: BAT, local controls on industry House heating/small combustion BAT for burners Fuel switch (Gas, ban of ‘dirty’ fuels) Structural changes (heat&power co-generation, district heating) Berlin: ~ 10% further reduction of PPM-emissions Promoting use of renewables (e.g. Lombardia, Berlin) Building sites (off-road vehicles Zürich) Public information and education

Action being taken by cities  Challenges (i) Decline of regional PM background too slow Local efforts cannot compensate Vehicle emission standards lag behind progress in control technology and in relation to ambition of PM and NO2- limit values  we could achieve more emission reduction earlier Little/no progress in NO2 - reduction Shift to diesel cars and vans Shift towards higher NO2/NOx emission ratio & rising oxidation capacity of the urban atmosphere Drop of real word emissions lag behind expectations (“test cycle beat”) Non-exhaust PM emissions significant and largely depending on traffic volume

Long-term trend of PM10 and EC in Berlin

Action being taken by cities  Challenges (i) Decline of regional PM background too slow Local efforts cannot compensate Vehicle emission standards lag behind progress in control technology and in relation to ambition of PM and NO2- limit values  we could achieve more emission reduction earlier Little/no progress in NO2 - reduction Shift to diesel cars and vans Shift towards higher NO2/NOx emission ratio & rising oxidation capacity of the urban atmosphere Drop of real word emissions lag behind expectations (“test cycle beat”) Non-exhaust PM emissions significant and largely depending on traffic volume

PM Emission Standards for HDV Engines in g/kWh Source: Stefan Rodt, UBA Berlin, 2003

NOx Emission Standards for HDV Engines in g/kWh Source: Stefan Rodt, UBA Berlin, 2003

Action being taken by cities  Challenges (i) Decline of regional PM background too slow Local efforts cannot compensate Vehicle emission standards lag behind progress in control technology and in relation to ambition of PM and NO2- limit values  we could achieve more emission reduction earlier Little/no progress in NO2 - reduction Shift to diesel cars and vans Shift towards higher NO2/NOx emission ratio & rising oxidation capacity of the urban atmosphere Drop of real word emissions lag behind expectations (“test cycle beat”)

Long-term trend of NO2 and NO in Berlin

Higher HDV NOx-emissions in Germany 100,000 200,000 300,000 400,000 500,000 600,000 700,000 1995 1996 1997 1998 1999 2000 2001 2002 2003 2004 2005 2006 2007 2008 2009 2010 Year According to HBEFA 1.2 According to HBEFA 2.0 (provisional) Earlier Calculation New Calculation 2003 NOx Emissions from HDV in Germany According to HBEFA 1.2 and HBEFA 2.0

Action being taken by cities  Challenges (ii) Non-exhaust PM emissions significant and largely depending on traffic volume Lacking “integration” in EU transport&funding policy bias of investment into road infrastructure EU funds still award excessive built up of road capacities Unsustainable growth in freight transport and car motorisation

 Even pure local action needs EU support Local and European/national action on transport examples for interdependencies Local action needs national/European action Economic incentives for clean vehicles (proposal for) EURO V/VI/EEV  EU re-interpretation of state aid & internal market rules  EU tax incentives  nat/EU Low emission zone Alternative fuels/vehicles R&D, funding on a large scale, tax incentives  nat/EU tackle non-exhaust PM traffic emissions R&D in more efficient street cleaning  nat/EU metric/legal form of future PM standard  EU Contain traffic volumes Integration of environment into transport policy  nat/EU  Even pure local action needs EU support

One strategy for all scales  issues arising from an urban perspective (i) for policy …. in framing external factors, like (road) traffic volumes and energy efficiency stronger coordination with goals of other policy areas, like climate change, noise, road safety, energy In reviewing (sectoral) emission control objectives, e.g. vehicle emission standards, NECs ambitious enough to ensure compliance with ENV objectives especially in urban areas in setting/reviewing air quality objectives make sure, they can be achieved also in urban areas by cost-effective control measures  Cities are the binding grids in terms of exposure

One strategy for all scales  issues arising from an urban perspective (ii) for policy … in setting/reviewing of environmental objectives Certainty on the future type of PM objectives important Taking account of coarse fraction steers local action against non-exhaust emissions Focus on carbonaceous compounds would drive progress on European emissions standards and local action Switch to smaller fractions puts more weight on European vehicle standards and European action against secondary PM 24h PM standard puts burden on local short-term actions, which conflicts with their limited impact legally binding AQ standards desirable ? in order to drive progress in emission control technology and regulations In order to facilitate implementation of local measures

 Keep format of objectives in AQ legislation simple One strategy for all scales  issues arising from an urban perspective (iii) for policy … in setting/reviewing of environmental objectives require compliance also at hot spots ? for equality reasons so as to protect poor people too would drive progress in emission control technology and regulations, which generates benefits everywhere how to deal which large differences in exposure between and within cities, but make progress everywhere, unless AQ is below no-effect levels ? gap-closure objective, i.e. percentage improvement ? plus limit/target value for the worst areas ? how to deal with unforeseen difficulties flexibility in attainment period, like for benzene ?  Keep format of objectives in AQ legislation simple

Definition of environmental objectives used in the daughter directive and as basis for the NECs Cross section through EU ‘Current’ Level in each zone/grid cell Ozone level -X% Equal percentage of reduction (gap-closure) everywhere Interim level achieved by implementing the NECs Target Value Additional improvement in hot spot areas Long-term Environmental Objective (~WHO- guideline)

Nu kör vi !  sufficient fuel for discussions ….. One strategy for all scales  issues arising from an urban perspective (iv) for science…. tools and approach for strategy development to cover the urban scale as a minimum: dispersion models, emissions what about IAM, costs of local measures ? progress on the uncertainty of PM health impacts  sufficient fuel for discussions ….. Nu kör vi !