Restricted access to zones
Access regulation zones are frequently called low emission zones (LEZs) or environmental zones. An LEZ is a defined area that can be entered only by vehicles meeting certain emissions criteria or standards. Depending on the design and objective of the zone, vehicles that are prohibited are typically relatively more polluting vehicles. The main objective of such zones in urban areas is often the reduction of pollutant emissions, such as particulate matter (PM). LEZs should be adjusted over time to account for changes in road use/demand within the restricted zones.
Low-emission zones have been introduced in many European cities as well as in Tokyo (Japan) and Singapore. Frequently, such zones are introduced in combination with economic measures like congestion pricing, and are coupled with a zone that restricts the access of heavy-duty vehicles (HDVs) or freight transport. Examples of access restriction zones that have the primary objective of reducing CO2 emissions could not be identified.
In European cities, the criteria for LEZ entrance are based upon the Euro emission standard, the year of first registration as a proxy, or by means of the presence of retrofitted emission-control devices, usually a diesel particulate filter (DPF). Only HDVs are restricted in most European countries, but in Germany light-duty vehicles (LDVS) are included, as are cars in Athens (Greece), London (UK) and Lisbon (Portugal). The Italian LEZs also restrict two-wheeled vehicles. There are a large number of LEZs in Italy and Germany, and several in the United Kingdom, but other countries have been less enthusiastic.
Available studies on health impacts and local pollutants can be divided into two major groups: studies modelling hypothetical situations and monitoring studies measuring the impact of actual LEZs. In some cases, both observations and modelling techniques are applied. Studies that rely on modelling tend to overestimate the positive effect of LEZs on local pollutant concentrations.
The CO2-reduction benefits of access restriction zones may originate from mode shift – for example, to public transport or to more-fuel-efficient vehicles. If the criteria for access restrictions concern a large share of the available vehicle stock in a city or its surroundings, congestion can also decrease, especially in the first years after the introduction of the access restriction zone.
Literature and related case studies that assess the impact on CO2 emissions of access restriction zones for passenger vehicles could not be identified. Assessments typically focus on the impact of such zones on air pollutant emissions.
Estimates of the implementation costs for an access restriction zone for lorries in London range from GBP 3 million to GBP 10 million, depending on the type of enforcement system introduced and related technology needs. Lower estimates are for a manually-enforced scheme, whereas higher estimates are for an automatically-enforced scheme based on vehicle recognition by cameras. Estimates for annual operation costs range from GBP 4 million to GBP 7 million. Implementation and operation costs may be partly offset by revenues from fines, which are estimated to be in the range of GBP 1–4 million per year.
For a recommended scheme in London (UK) targeting HDVs, a study found that annual health benefits in London were estimated at GBP 100 million. Also, benefits outside London were expected, stemming from cleaner vehicles affected by the London LEZ travelling elsewhere. Overall, the study concluded that the benefits of the schemes were likely to be similar to the costs, if including the costs to vehicle operators for adapting their vehicle fleet. However, a comparison of studies modelling the benefits and ex-post evaluations shows that modelling studies tend to overestimate the benefits of LEZs.
Ex-post evaluations of European LEZs found the following air pollutant effects:
- PM10: On average, mean concentrations were reduced by 0–7%, with no effects observed in most LEZs.
- PM2.5: Concentrations were reduced in some cities, e.g. London and Munich, but not in Amsterdam.
- Carbonaceous particles: Black carbon reduced by about 16% in London and Berlin; elemental carbon reduced by 6-16% in Amsterdam, Berlin and Leipzig.
- NO2: No impact in 11 Dutch cities and London; a 7–10% reduction in Berlin; up to a 4% reduction in 17 German cities.
- NOx: In Dutch cities, no impact was detected, besides one street where traffic decreased significantly: for the 50% reduction in traffic NOx decreased by 36% more than in other locations.
The reduction is especially high in Germany, where LPVs were affected as well as HDVs, as in most of other European countries.
Low-emission zones may lead to drivers reorganising their trips to avoid the LEZ instead of replacing their vehicles or shifting transport modes. This may have adverse environmental effects on the areas outside the LEZ. Total travel times across the entire city can also increase.
LEZs are focusing on air pollutants but do not address CO2. Banning old Euro standards improves air pollutant effects but, especially in Germany, many end-users changed from diesel to petrol engines, resulting in overall higher CO2 emissions (especially for non-urban travel).
ITF (2021) Transport Climate Action Directory – Restricted access to zones
https://www.itf-oecd.org/policy/restricted-access-to-zones
Crainic (2004) Advanced freight transportation systems for congested urban areas, https://doi.org/10.1016/j.trc.2004.07.002
DG MOVE (2012) European Commission: Study on urban freight transport, https://ec.europa.eu/transport/sites/transport/files/themes/urban/studies/doc/2012-04-urban-freight-transport.pdf
DG MOVE; TOI (2012; 2018) European Commission: Study on urban freight transport; Low Emission Zones in Europe, https://www.toi.no/getfile.php?mmfileid=49204
Van Rooijen, T & Quak, H (2014) City Logistics in the European CIVITAS initiative.
Van Rooijen, T & Quak, H; CIVITAS (2014; 2012) City Logistics in the European CIVITAS initiative; Low emissions zone in Aalborg, https://civitas.eu/content/civitas-case-study-low-emission-zone-aalborg-denmark
Van Rooijen, T & Quak, H; CIVITAS (2014; 2013) City Logistics in the European CIVITAS initiative; Case study: taking a more sustainable approach to freight, https://civitas.eu/content/civitas-case-study-taking-more-sustainable-approach-freight-utrecht
TOI (2018) Low Emission Zones in Europe, https://www.toi.no/getfile.php?mmfileid=49204