Assessment of measures for improved air quality in Bergen. January 2015

Transcription

1 Assessment of measures for improved air quality in Bergen January 2015 With the City Council s decision of 26 January 2015

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4 Assessment of measures for improved air quality in Bergen January 2015 with the City Council s decision of 26 January 2015 ISBN Engelsk Tiltaksutredning luftkvalitet Bergen kommune-versjon Page 4 of 101

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6 Bergen City Council, decision of 26 January 2015, item no 7-15 Assessment of measures for improved air quality in Bergen 1. The revised ten-point programme as described in Part 2 of the Assessment of measures for improved air quality in Bergen constitutes the City of Bergen s Action Plan for Improved Air Quality. 2. The report was prepared in accordance with the requirements for content set out in Appendix 5 to Chapter 7 of the Pollution Regulations, and will be submitted to the Norwegian Environment Agency. 3. The measures to be implemented when poor air quality is forecast are described in Part 3 of the Assessment of measures for improved air quality in Bergen. They constitute the City of Bergen s contingency plan for episodes of poor air quality. The City Council wishes to encourage more use of carpooling. The City Council requests the City Government to consider granting exemption from road tolls for passenger cars used for carpooling with an approved app or electronic registration. A percentage exemption can be considered that varies with the number of passengers in the car. 4. The City of Bergen specifies that, based on environmental considerations, ships must be denied entry to the inner harbour on days when the air quality is poor. 5. The City Council wishes to encourage both lower local emissions (nitrogen oxides and particulate matter) and lower greenhouse gas emissions (carbon dioxide). The City Council therefore requests the City Government to present a proposal for zero-emission zones. 6. The City Council requests the City Government to consider issuing warnings of poor air quality via text messages and automatic phone alerts based on the same model as used in connection with warnings about water quality. 7. The City Council makes reference to Section 27 second paragraph of the Road Act, which provides for the use of temporary time-differentiated road tolls on days when there is a risk of harmful air. The City Council requests the City Government to present an item that clarifies prices and the practical arrangements relating to this measure so that the toll rates can be increased when air pollution is high. The rates must be set at a level that will deter driving with a view to protecting the population from exceedances of the limit values set out in the Pollution Regulations. This measure must be incorporated in the City of Bergen s Action Plan for Improved Air Quality, and the City Council believes that in many cases it will be more effective than a system whereby people are only permitted to drive on alternate days. The City Council requests the City Government to ensure that any additional revenues from the use of such increased rates can be used for local public transport measures. Engelsk Tiltaksutredning luftkvalitet Bergen kommune-versjon Page 6 of 101

7 8. The City Council wishes to encourage more use of carpooling. The City Council requests the City Government to consider granting exemption from road tolls for vehicles used for carpooling with an approved app or corresponding electronic registration. Comment 1 The City Council makes reference to the municipal sector plan for Bergen inner harbour, which states the following in the section on the Nøstet/Dokken/Jekteviken area under the heading Further development of the area : In the long term, activities not related to the port shall be moved out of the port. Furthermore, the following is stated under the heading Land use : The area shall only be used as a port and for port-related activities. Existing railway tracks shall be retained. In the City Council s view, these are measures that can reduce the noise and air pollution from heavy vehicles, and the City Council requests that it be included in the action plan. Comment 2 The City Council requests that the assessment of measures for improved air quality be seen in conjunction with the structure of kindergarten provision and kindergarten admission criteria. Neighbourhood kindergartens are important in order to reduce the need for transport and thereby emissions to air. Comment 3 The City Council asks the City Government to include new, active air quality monitoring stations, as adopted in connection with the City Council s budget deliberations, in the assessment of measures. Engelsk Tiltaksutredning luftkvalitet Bergen kommune-versjon Page 7 of 101

8 Preface The Action Plan for Cleaner Air in Bergen Revision of the Action Plan for 2004 was adopted by Bergen City Council on 26 May Bergen City Council receives annual status reports on air quality and information about the follow-up of measures in the action plan. It is a challenge for the City of Bergen to meet requirements intended to ensure that the local population has satisfactory air quality. This applies to nitrogen dioxide (NO 2 ). An important cause of this is a lack of local measures targeting the biggest source of emissions, namely diesel-powered road vehicles. In the Pollution Regulations, the municipalities are given chief responsibility for preparing an assessment of measures when measurements show that there is a risk of the limit values being exceeded more often than permitted. Pursuant to the Pollution Regulations, the Norwegian Environment Agency (NEA) has instructed the City of Bergen to submit, by 31 December 2014, an assessment report on NO 2 in accordance with the requirements of the Pollution Regulations. The assessment of measures and the action plan in this document meet the NEA s requirements. The work has been carried out by the Department of Urban Development, Climate and Environmental Affairs, represented by the Climate Section. Norconsult was hired as a consultant in connection with the work and it has been responsible for the design of the report and calculations of effects. A draft version of the report was submitted to the NEA and the City of Bergen for political consideration. The City Council s decision of 26 January 2015 has been included in the introduction to this version. The wording of the report has been revised in accordance with the City Council s decision, and the text has been proofread and updated where relevant. Bergen, 26 January 2015 Engelsk Tiltaksutredning luftkvalitet Bergen kommune-versjon Page 8 of 101

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10 Contents Bergen City Council, decision of 26 January 2015, item no 7-15 Assessment of measures for improved air quality in Bergen 6 Preface 8 Summary 12 1 Introduction Background Air pollution and health effects National targets for local air quality Air pollution in land use planning The municipality s role and organisation Plant owners Previous action plans in the City of Bergen Municipal measures not enough Relationship to other municipal plans Municipal plans The land use part of the municipal master plan Climate and Energy Action Plan for Bergen The Bergen Programme for transport, urban development and the environment The Reward Agreement in the Bergen Programme Public transport strategy for Bergen Cycling strategy for Bergen Action Plan against Noise Part 1 Mapping 29 2 Mapping General information about Bergen Weather conditions in Bergen The weather in the last few years The weather in Bergen in Air quality in Bergen Measuring air pollution Measuring methods Monitoring results Nitrogen dioxide dispersion Air pollution in sensitive land use areas Air quality in 2013 in relation to the Pollution Regulations Part 3 Chapter 7 Local air quality Emission sources Emissions from road traffic Distance with exceedances of NO 2 limits in Bergen in Bergen port 53 3 Measures Main focus on the causes of air pollution Measures against NO 2 and particulate matter Nitrogen dioxide from traffic represents the biggest challenge in relation to meeting the requirements of the Pollution Regulations 57 Engelsk Tiltaksutredning luftkvalitet Bergen kommune-versjon Page 10 of 101

11 3.2.2 Particulate matter and emissions from households and traffic Action plan Ten-point action plan Time-differentiated road tolls combined with attractive public transport services Park-and-ride facilities and parking restrictions in the city centre Studded tyres fee combined with a deposit return scheme for old studded tyres A low-emission zone and promoting the use of low-emission vehicles Grants for the replacement of old wood-burning stoves in the city centre Street cleaning Good travel and driving habits Shoreside power and other environmental measures Warnings and information Municipal measures aimed at improving the air quality 73 Part 2 Politically adopted action plan 76 4 Action plan Bergen City Council s resolution on air quality Revised ten-point programme for improved air quality in Bergen Effects and costs Model based on traffic figures for Differentiated road tolls combined with attractive public transport services Building park-and-ride facilities combined with parking restrictions in the city centre Low-emission zone and promoting the use of low-emission vehicles Shoreside power for ships at berth Studded tyres fee and deposit return scheme for studded tyres Grants for households that replace old wood-burning stoves in the city centre Street cleaning Good travel and driving habits and change of mobility culture Warnings and information Municipal measures for improved air quality Immediate measures Summary of effects of the packages of measures 86 Part 3 Episodes of high air pollution 89 5 Contingency plan for episodes of high air pollution Division of responsibility in contingency situations Introduction Organisation Contingency Council Immediate measures Rejection of vessels that contribute extensively to local air pollution Measures to combat poor air quality 94 Annex 1 Content in relation to Appendix 5 to the Pollution Regulations 96 Sources 99 Engelsk Tiltaksutredning luftkvalitet Bergen kommune-versjon Page 11 of 101

12 Summary In the years 2010, 2012 and 2013, Bergen exceeded the limit value for annual mean emissions of nitrogen dioxide (NO 2 ), as prescribed in both the Pollution Regulations and the EU s Air Quality Directive. Based on Section 7-11 of the Pollution Regulations, the NEA has therefore instructed the City of Bergen to submit an assessment report on NO 2 by 31 December The City of Bergen has therefore updated its Action Plan for Improved Air Quality in line with the requirements set out in Section 7-9e of the Pollution Regulations. All in all, the municipal toolbox does not contain many measures that can be used to achieve the desired air quality. Through the assessment of measures, the City of Bergen has nonetheless considered, evaluated and reviewed the measures available to it and presented them in accordance with the NEA s requirements and Appendix 5 of the Pollution Regulations. The assessment, which is based on the action programme of 2008, includes a revised ten-point programme that consists of various packages of measures. The report is divided into three parts, as recommended in the NEA s guidelines: one part containing an expert report on and mapping of the pollution situation, one part presenting the action plan and one part dealing with contingency plans in connection with episodes of high air pollution. Annex 1 contains references to where the requirements for content set out in Appendix 5 are addressed in the report. The emissions largely depend on factors outside the municipality s control. This includes strong population growth due to people moving to urban areas, and growth in the Norwegian economy, which leads to increased activity and consumption, including increased travel. Emissions also depend on general economic policy and decisions made at the national level, for example decisions to levy taxes on the purchase and use of cars. Here, the tax system was changed to encourage people to switch to diesel-powered cars, which led to a deterioration in the local air quality in urban areas. There are nonetheless some measures that can lead to immediate and permanent changes as regards diesel vehicles, which are the biggest source of emissions locally. They are the introduction of low-emission zones and time-differentiated road tolls. On several occasions, the City of Bergen has applied for permission to implement such measures, which requires amendments to the regulations the first time as far back as in 1998 and on several other later occasions. The central government authorities have so far not granted such permission. The contents of the action plan are summarised on the following page. An overall assessment of the measures and their effect in relation to the necessary reduction of air pollution from NO 2 and PM 10 shows that it is possible to improve the air quality and meet the requirements of the Pollution Regulations. Gradually replacing existing cars with lower emission vehicles will help, but effective measures will also be necessary, and time-differentiated road tolls and the introduction of low-emission zones will have the greatest effect in this context. Engelsk Tiltaksutredning luftkvalitet Bergen kommune-versjon Page 12 of 101

13 Negative health effects are more related to the average air pollution level over time than to shortlived, acute episodes. Immediate measures to combat episodes of pollution are therefore assumed to have a limited effect on the health situation. It is nonetheless important to reduce pollution on days when the air pollution is particularly high, not least out of consideration for population groups that are vulnerable to poor air quality even for short periods of time. Even though immediate measures are not part of the main strategy, it will nonetheless be important to include measures targeting situations when the air quality is particularly poor. A new contingency plan has therefore been prepared that contains the following measures: Health advice Other information measures Moving ships from Bergen s inner harbour Road surface measures to reduce the dispersion of particulate matter Driving on alternate days Time-differentiated road tolls TEN-POINT PACKAGES OF MEASURES FOR IMPROVED AIR QUALITY IN BERGEN Section in the assessment report Responsibility Schedule Costs Measures mainly targeting emissions of nitrogen dioxide 1. Differentiated road tolls combined with attractive public transport services Ministry of Transport and Communications Building park-and-ride facilities combined with parking restrictions in the city centre Hordaland County Authority, the City of Bergen Implemented Ongoing Between NOK 70 and 100 mill. 3. Introducing low-emission zones and promoting the use of low-emission vehicles Ministry of Transport and Communications Electric car measures under way 4. Shoreside power and other environmental measures Port of Bergen Start-up of pilot Jan NOK 7.5 mill. Measures mainly targeting emissions of particulate matter 5. Studded tyres fee and deposit return scheme for studded tyres The City of Bergen Implemented Ongoing NOK 25 mill., self-financing 6. Grant for households that replace old wood-burning stoves in the city centre City of Bergen fire service Street cleaning The Norwegian Public Roads Administration Ongoing NOK 100,000 Engelsk Tiltaksutredning luftkvalitet Bergen kommune-versjon Page 13 of 101

14 Awareness-raising campaigns and information 8. Good travel and driving habits and change of mobility culture The City of Bergen Implemented Ongoing One full-time equivalent 9. Warnings and information The City of Bergen Implemented Ongoing NOK 1.3 mill. 10. Municipal measures for improved air quality The City of Bergen Implemented Ongoing Engelsk Tiltaksutredning luftkvalitet Bergen kommune-versjon Page 14 of 101

15 1 Introduction 1.1 Background The air quality in Bergen is good or satisfactory for most of the year. This is largely due to natural conditions, with heavy precipitation and wind. Bergen is susceptible to poor air quality, however. In 2010, 2012 and 2013, Bergen exceeded the limit value for annual mean emissions of nitrogen dioxide (NO 2 ). The deadline for meeting the limit value for NO 2 set out in Chapter 7 of the Pollution Regulations expired in 2010, and Bergen is thereby in breach of both the Pollution Regulations and the EU s Air Quality Directive. The limit values were exceeded by Oslo, Drammen, Bergen, Trondheim and Stavanger in The Norwegian Asthma and Allergy Association submitted a complaint to ESA (the EFTA Surveillance Authority) in 2011, on the grounds that several Norwegian towns and cities exceeded the limit values for ambient air quality. ESA has issued a letter of formal notice to Norway for noncompliance with Directive 2008/50/EC on air quality. In Section 7.4 of the Pollution Regulations, the municipalities are given chief responsibility for preparing an assessment of measures when monitoring shows that there is a risk of the limit values being exceeded more often than permitted; cf. Section 7-9. Pursuant to Section 7-11 third paragraph of the Pollution Regulations, the NEA instructed the City of Bergen, in a letter of 22 May 2014, to submit an assessment report on NO 2 in accordance with the requirements set out in Section 7-9 of the Pollution Regulations by 31 December 2014 (Miljødirektoratet 2014b). The assessment shall as a minimum meet the content requirements set out in Appendix 5 to Chapter 7 of the Pollution Regulations, and it shall be submitted to the NEA. This assessment report is divided into three parts in line with the NEA s guidelines (2014a). It contains an expert review, an action plan and a contingency plan. The assessment, which is based on the action programme from 2008, includes a revised ten-point programme that consists of a package of different measures. Plant owners have contributed input and information about their own emissions. 1.2 Air pollution and health effects The work on ensuring good air quality in Bergen is based on a desire to ensure good health conditions for the city s inhabitants. The air quality report for 2013 describes air pollution and health as follows: Many people experience health problems because of poor air quality. A large number of studies have looked at the connection between different types of air pollution and harmful health effects. Particulate matter is harmful to health at far lower levels than previously assumed. Engelsk Tiltaksutredning luftkvalitet Bergen kommune-versjon Page 15 of 101

16 Air pollution in the form of particulate matter (PM 10 and especially PM 2.5 ) has primarily been found to be associated with death and cardiovascular and respiratory diseases. Many studies indicate that exposure to particulate matter increases the risk of hospitalisation and death among patients with chronic obstructive pulmonary disease (COPD), cardiovascular disease and diabetes, and that it leads to a worsening of symptoms and results in an increased need for treatment among people with asthma, myocardial infarction, inflammation of the lungs, arteriosclerosis, respiratory infections and respiratory cancer. There are also indications of reduced pulmonary function, irritation and respiratory disease. A new study conducted in Oslo by the Institute of Public Health shows that temporary increases in the air pollution level may be a contributory factor to short-term increases in mortality in vulnerable groups. In this context, vulnerable groups means people with respiratory and cardiovascular diseases. The study is unable to say whether air pollution only brings forward the time of death in these groups. The findings from this study cannot be automatically applied to the situation in Bergen. The WHO has documented that an increase in the concentration of particulate matter (PM 10 ) in the range of 10 µg/m 3 for short-term exposure increases the risk of premature death by 0.6 per cent. In the case of long-term exposure, the risk appears to be substantially higher, especially for PM 2.5. A large-scale study of several cities in the USA found a 6 per cent increase in the risk of dying from all medical causes for every 10 µg/m 3 increase in the annual mean PM 2.5. In Norway, there is great uncertainty about the effects because the annual mean PM 2.5 is low compared with other countries, but the study by the Institute of Public Health (Oslo) indicates an increase in cardiovascular mortality of 1.5 per cent per 10 µg/m 3 increase in PM 2.5 in the age group. It is uncertain how much acute exposure to particulate matter affects the health risk in the population as a whole, but it will lead to a worsening of symptoms / increased morbidity in people with chronic lung diseases and allergies (and probably also cardiovascular diseases). Long-term exposure to increased levels of particulate matter seems to be associated with a 10 times higher risk of harm to health than short-term exposure (Report 2007: Helseeffekter av luftforurensing i byer og tettsteder i Norge ( Health effects of air pollution in towns, cities and periurban areas in Norway )). Healthy people (both children and adults) tolerate relatively high levels of short-term pollution from NO 2 without suffering any negative health effects, neither in the short nor in the long term. According to the new air quality criteria adopted by the Institute of Public Health and the NEA, NO 2 pollution of more than 1,880 µg/m 3 in the course of one hour will have an effect on the pulmonary function and cause increased coughing and irritation in healthy people. In vulnerable groups (asthmatics, patients suffering from COPD and cardiovascular disease), the inhalation of NO 2 can lead to increased coughing, bronchitis, reduced resistance to infections, stronger allergic reactions and increased morbidity. Asthmatics react with reduced pulmonary function even after short-term exposure to NO 2. Allergy sufferers may experience increased irritation of the mucous membranes. When the NO 2 concentration exceeds 100 µg/m 3, 95 per cent of the population will perceive the air as polluted. There is still great uncertainty attached to the health effects of long-term average Engelsk Tiltaksutredning luftkvalitet Bergen kommune-versjon Page 16 of 101

17 exposure to NO 2. There is even greater uncertainty attached to the health effects of PAH compounds, heavy metals etc. related to particles. Recent research shows that increased particle concentrations in the air not only represent a risk of acute or persisting lung damage, but that exposure to particles can also lead to an increased risk of cardiovascular disease and strokes. Persistent high values of inflammation signals in the blood can be one of the causes. Different population studies have shown that air pollution and diesel exhaust are associated with an increased risk of lung cancer and other pulmonary diseases. Recently, great interest has been shown in finding out why diesel exhaust particles can lead to such undesirable health effects. Diesel exhaust particles contain a large number of different compounds (including PAHs and Nitro- PAHs) that can damage the genetic material (DNA) in the cells and thereby lead to permanent damage (mutations). Respiratory cells that suffer such genetic damage can form the precursors of cancer cells. As well as possible damage to DNA, compounds found in diesel exhaust particles can also, together with the particle itself, have other pathogenic properties. Such properties can be the ability to kill cells and trigger inflammatory reactions. Studies suggest that many different particle components can trigger inflammatory reactions. It is very demanding to identify the most potent components of particulate matter, since its composition is so complex and variable. It is also unclear how the different compounds act in combination with other compounds. The Institute of Public Health is currently involved in a project that is studying the connection between particulate matter and increased morbidity and mortality from pulmonary and cardiovascular diseases. Preliminary data from the project indicate that particulate matter from both diesel and biodiesel exhaust, as well as wood burning, causes both the formation of cytokines (substances that activate inflammatory reactions) and death in lung cells. The results of the Institute of Public Health s research also indicate that the combustion of biodiesel creates particulate matter that can be more harmful to health than particulate matter from the use of ordinary diesel. 1.3 National targets for local air quality As early as in 1998, the Government adopted new national air quality targets that were to be reached by 2005 and The targets were reiterated in Report to the Storting No 26 ( ) The Government s Environmental Policy and the State of the Environment in Norway. These targets entail a significant raising of ambitions as regards the limit values for PM 10 and NO 2 as they are set out in the Regulations to the Pollution Control Act. On implementation of the Action Plan for Improved Air Quality in Bergen in 2004, a decision was made to use national air quality targets as the basis for the work of reducing air pollution in Bergen. The national targets are decided on the basis of an assessment of how far it is profitable to go, based on cost-benefit calculations, to achieve cleaner air. Achieving the national targets will require a much more stringent use of policy instruments that must be based on cooperation between the central government authorities, county authorities and municipalities. Table 1.1. Regulations and national targets for local air quality relating to NO 2 and PM 10 Engelsk Tiltaksutredning luftkvalitet Bergen kommune-versjon Page 17 of 101

18 Nitrogen dioxide (NO 2) Particulate matter (PM 10) Averaging period Regulations relating to local air quality Limit value Number of permitted exceedances Deadline Limit value National targets Number of permitted exceedances Deadline 1 hour 200 mg/m 3 18 hours/year mg/m 3 8 hours/year 2010 Calendar year 40 mg/m day 50 mg/m 3 35 days/year mg/m 3 25 days/year 2005 Calendar year 40 mg/m days/year 2010 mg/m 3 After having carried out a cost-benefit analysis, where the benefit is measured as the health gain for the population, the NEA, the NPRA, the Directorate of Health and the Institute of Public Health recommend lowering the limit values (Limit values for national targets, M129/2014). The limits will be lowered by restricting the permitted annual mean concentration of particular matter and by reducing the permitted number of days with high levels. The purpose of the Pollution Regulations of 2002 is to improve human health and wellbeing, and to protect vegetation and ecosystems by setting minimum requirements for air quality and ensuring that they are complied with. The Regulations are legally binding, and any failure to meet the minimum requirements triggers a requirement for action. 1.4 Air pollution in land use planning The guidelines for dealing with air quality in land use planning (T-1520) are central government recommendations on how air quality should be addressed in the municipalities land use planning. Planning pursuant to the Planning and Building Act is intended to ensure the best possible land use and building development for both individuals and society at large. Steps must be taken to facilitate good living environments and promote good public health. Local air pollution has negative health effects on the population. The purpose of the T-1520 guidelines is to prevent health effects of air pollution through good land use planning. The guidelines contain recommended air pollution limits to be used as the basis for planning new activities or building developments. It is recommended that the municipalities, in cooperation with plant owners, assess and categorise the air quality in relation to these limits into a red and a yellow zone. In the red zone, the main rule is that any new buildings that are sensitive in relation to air pollution should be avoided, while the yellow zone is an assessment zone in which any new buildings should meet certain minimum requirements. Because the prevention of air pollution takes place through long-term land use and transport planning, it is especially important to consider land use objectives in connection with overriding plans and at an early stage of zoning plans. The recommendations in these guidelines shall be used by municipalities, regional authorities and affected central government agencies in the planning and consideration of overriding plans and individual cases pursuant to the Planning and Building Act. Engelsk Tiltaksutredning luftkvalitet Bergen kommune-versjon Page 18 of 101

19 The guidelines are not deemed to be government guidelines pursuant to Section 6-2 of the Planning and Building Act. The recommendations in the guidelines are advisory, but material deviations from the recommendations may give grounds for objections to the plan on the part of public authorities. Table 1.2. Recommended air pollution limits and criteria for zonal divisions in connection with the planning of activities or buildings. All figures in µg/m³ (microgram/m 3 ) air. Component Air pollution zone *) Yellow zone Red zone PM µg/m 3 7 days/year 50 µg/m 3 7 days/year NO 2 40 µg/m 3 winter mean**) 40 µg/m 3 annual mean Health risk Persons suffering from serious respiratory or cardiovascular diseases have an increased risk of higher morbidity. Healthy persons will probably not experience health effects. *) The background concentration is included in the zone limits. **) Winter mean is defined as the period from 1 November to 30 April. Persons suffering from respiratory and cardiovascular diseases have an increased risk of health effects. Of this group, the most vulnerable are children with respiratory diseases and elderly people with respiratory and cardiovascular diseases. Engelsk Tiltaksutredning luftkvalitet Bergen kommune-versjon Page 19 of 101

20 1.5 The municipality s role and organisation The municipality is the pollution control authority for local air quality. This means, among other things, that the City of Bergen is responsible in relation to polluters, other authorities and the general public for ensuring compliance with requirements pursuant to Section 7-3 of the Pollution Regulations. As plant owners, the NPRA, the county authority, the port authority and the City of Bergen are directly responsible for implementing measures pursuant to Section 7-3 of the Pollution Regulations. The measures must ensure that the limit values are met within three years of the regulatory provision entering into force at the latest. The deadline can be further postponed on application from the municipality, i.e. until 2015 for NO 2. The postponement must be approved by the EFTA Surveillance Authority (ESA). ESA requires Norway to present extensive documentation of where and when Norway can achieve NO 2 levels below the prescribed limit values and how Norway can manage to meet these limits in As the only zone in the country, Bergen was granted an extension until 1 January 2015 to implement the Air Quality Directive. In Bergen, it is the Commissioner for Urban Development, Climate and the Environment, represented by the Climate Section, that is the responsible pollution control authority. Together with the NPRA, the municipal Health Protection Agency is responsible for the operation and maintenance of two stationary monitoring stations and for annual reporting on the status of the air quality. The Health Protection Agency is also responsible for informing the public about the air quality and for drawing health warnings on days when the air quality is poor. The City of Bergen has adopted a contingency plan for poor air quality. During the winter months, the Meteorological Institute sends five-day air quality forecasts by to the Climate Section of the City of Bergen. If poor air quality is forecast, the Climate Section is responsible for notifying relevant plant owners that immediate measures may have to be implemented. The municipality emphasises that such measures must be implemented before the start of a prolonged period of poor air quality. 1.6 Plant owners The City of Bergen is the authority responsible for preparing and implementing the action plan. The following plant owners have provided information about their own emissions: Port of Bergen port activities NPRA, Western Region road traffic Hordaland County Authority, delegated to the NPRA road traffic. 1.7 Previous action plans in the City of Bergen The first action plan for improved air quality in Bergen was prepared in It was revised in 2004 and 2008, when a ten-point programme was adopted under item no Action Plan for Cleaner Air in Bergen 2008 to improve the local air quality. Engelsk Tiltaksutredning luftkvalitet Bergen kommune-versjon Page 20 of 101

21 1.8 Municipal measures not enough As is clear from the above overview, it is challenging to ensure that the level of pollution in Bergen stays below the limit values prescribed in the Pollution Regulations. Responsibility for ensuring good air quality primarily rests with the municipality. ESA granted the City of Bergen s application for an extension of the deadline for meeting the limit values for NO2until 1 January From this date, the City of Bergen must meet the limit values for NO2. Most of the policy instruments at the City of Bergen s disposal will primarily affect the more long-term development, among other things through land use policy. The effects of these measures will not be seen within the deadline. ESA s requirements of the Norwegian authorities are the triggering cause of the assessment reports. In its instructions to the municipalities, the NEA has presented relatively ambitious contents for the assessment report given that the data basis is scant and that few appropriate method and model tools are available. Among other things, work on the national tool for calculating the prevalence of pollution, projections, breakdown by source and the effects of measures has only just started and is not expected to be completed until two to three years from now. There are many proposals for short-term immediate measures to relieve an acute situation. Experience of the effect of immediate measures varies, however, and they have limited effect on the annual average values. Research shows that negative health effects are more closely related to the average air pollution level over a prolonged period. Immediate measures to combat episodes of pollution are therefore assumed to have a limited effect on the health situation. Measures to reduce negative health effects should therefore focus on long-term structural measures. The City of Bergen s contingency plan for acute situations, like the one we had in 2010, is described in section 5. The emissions largely depend on factors outside the municipality s control, for example strong population growth due to people moving to urban areas. Growth in the Norwegian economy leads to increased activity and consumption, including increased travel. General economic policy and decisions made at the national level, for example decisions to levy taxes on the purchase and use of cars, where the tax system was changed to encourage people to switch to diesel-powered cars, led to a deterioration of the local air quality in urban areas. There are nonetheless some measures that can lead to immediate and permanent changes as regards diesel vehicles, which are the biggest source of emissions locally. This concerns the introduction of low-emission zones and environmentally differentiated road tolls. On several occasions, the City of Bergen has applied for permission to implement such measures, which requires amendments to the regulations the first time as far back as in 1998 and on several other later occasions. The central government authorities have so far not granted such permission. This is described in more detail in section on page 63. All in all, the municipal toolbox does not contain many measures that can be used to achieve the desired air quality. Through the assessment of measures, Bergen will nonetheless consider, evaluate and review the measures at our disposal and present them in line with the requirement from the NEA to prepare an updated assessment report that meets the requirements set out in Appendix 5 to the Pollution Regulations. Engelsk Tiltaksutredning luftkvalitet Bergen kommune-versjon Page 21 of 101

22 1.9 Relationship to other municipal plans Municipal plans In addition to the action plan against local air pollution of 2008, a number of plans exist that contain goals and strategies that are directly or indirectly related to local air pollution and the air quality in Bergen. The most important are: The land use part of the municipal master plan The Climate and Energy Action Plan for Bergen The Bergen Programme for transport, urban development and the environment The Reward Agreement between the Ministry of Transport and Communications and Hordaland County Authority and the City of Bergen on improved public transport services and less use of cars Public transport strategy for Bergen Cycling strategy for Bergen Action Plan against Noise Several land use and transportrelated plans Below is a brief description of each of the plans. The last point includes a number of local plans The land use part of the municipal master plan The City of Bergen reviews the land use part of the municipal master plan every four years. The overriding goals of the municipal master plan are: The municipal master plan shall coordinate important protection and development needs with the goals of land use and transport policies. The following goals form the basis for the work on the plan: Bergen shall provide good living conditions for all its inhabitants, within the Figure 1.1. Zones requiring special consideration in the land use part of the municipal master plan. Engelsk Tiltaksutredning luftkvalitet Bergen kommune-versjon Page 22 of 101

23 framework of environmentally friendly development. The main strategies set out in the land use part of the municipal master plan are: To reduce urban sprawl A land use policy that facilitates better public transport solutions In 2014, a joint planning programme was prepared for implementation of the social and land use part of the municipal master plan. It has been proposed that the main strategies be included in the land use part. The consultation paper for the planning programme proposes that the social part of the municipal master plan formulate goals and strategies for the following focus areas: Value creation and knowledge development Housing and good living environments Good conditions for children and young people to grow up in Living conditions, public health and prevention Bergen as regional capital Innovation, cooperation and coordination in the municipality The current municipal master plan sets out a land use policy that will reduce the need for transport in the long term. The plan also gives priority to environmentally friendly solutions that contribute to reducing emissions to air. Reduced traffic growth is an important element in the municipality s overriding transport strategy. The land use part of the municipal master plan defines several areas, or zones requiring special consideration, that may have a bearing on the population s exposure to air pollution. They are described in brief below. Zone requiring special consideration and danger area for air pollution Based on the T-1520 guidelines for air quality in land use planning, the City of Bergen has chosen to incorporate the special consideration zone Danger zones for air pollution. The special consideration zone is based on measurements carried out in the periods and , an inversion map and meteorological assessments. Based on the precautionary principle, the municipality has chosen to include these special consideration zones despite the fact that we do not have measurements that cover the whole municipality. (The zone delimitation in the municipal master plan is based on an NO 2 map from 2006 and not the map showing the situation in 2010, which was an exceptional year with weather conditions that led to a prolonged period of pollution. The NO 2 map for the 2010 situation is shown in Figure 2.21 and Figure 2.22.) Engelsk Tiltaksutredning luftkvalitet Bergen kommune-versjon Page 23 of 101

24 The special consideration zones show danger areas based on air quality: They are linked to the limit values in the T-1520 Red zone, which indicates an area that, based on high levels of air pollution, is not suitable for buildings whose intended use is sensitive to air pollution, such as health institutions, kindergartens, schools, housing, playgrounds, recreation areas and outdoor sports facilities. The yellow zone is an assessment zone where caution should be exercised with respect to permitting buildings that are sensitive to air pollution. Special consideration zone, noise In line with the noise guidelines T-1442, red and yellow noise zones have been introduced for traffic noise, air traffic noise, noise from shooting ranges, motor sports facilities and big industrial enterprises. The last time the plan was reviewed, noise calculations were lacking for railway terminals and ports. Noise is shown as special consideration zones in the plan map with pertaining provisions. Areas exposed to air pollution are often also exposed to road traffic noise. Measures to combat noise will also have a bearing on local air pollution, even though noise emissions have a different dispersal pattern from air pollution. Licence area for district heating A special consideration zone has been incorporated that shows the current licence area for district heating, where connection is mandatory. Rules apply to the special consideration zone Climate and Energy Action Plan for Bergen The City of Bergen s Climate and Energy Action Plan was adopted by the City Council on 20 September The main goal of the plan is to reduce the overall greenhouse gas emissions from transport, stationary energy, consumption and waste by 50 per cent in the period 1991 to The plan contains measures aimed at achieving this goal. During the process, it was also considered what it would take for Bergen to be carbon neutral by The plan requires both projects that have been and projects that will be initiated in the municipality to be seen in conjunction with climate policy, and that the Climate and Energy Action Plan should be consistent with other municipal plans relating to land use. Figure 1.2. Licence area for district heating in Bergen Engelsk Tiltaksutredning luftkvalitet Bergen kommune-versjon Page 24 of 101

25 The plan is being revised and is scheduled for completion in This work is being carried out in close collaboration with the municipality s work on preparing an air quality assessment report. Strategies will be developed to reduce emissions of greenhouse gases and address future climate changes The Bergen Programme for transport, urban development and the environment The Bergen Programme 1 for transport, urban development and the environment is linked to the road toll scheme in Bergen in that it part-finances many measures relating to both transport and communication investments and environmental initiatives. As transport investments and urban development are of great importance to how traffic develops and to exposure to air pollution, the Bergen Programme forms an important basis for many of the measures in the air quality action plan. The goals of the Bergen Programme are: to reduce growth in traffic; to achieve urban development that entails less need for transport; to ensure that public transport accounts for a larger part of traffic growth; to utilise the investments in the road network better; to reduce the environmental impact of traffic; to protect the city centre from undesirable traffic pressure; to establish a coherent network of pedestrian and cycling lanes; to reduce the number of road accidents; to establish a sufficient funding basis for measures The Reward Agreement in the Bergen Programme Through the Reward Agreement between the State, Hordaland County Authority and the City of Bergen for the period , the parties have entered into a binding agreement with the following main goals: The total amount of traffic in the road toll ring in Bergen shall not increase during the agreement period even if the population or the number of workplaces increases. Traffic into Bergen city centre, during periods when a large proportion of travel is workrelated, shall be reduced by five per cent during the four-year period. Some of the specific measures that were set out in the agreement are reproduced below: Group of measures 1: Measures to reduce private motoring An expansion of the Bergen Programme that primarily finances the development of Bergen Light Rail and entails a large increase in road toll rates combined with a reduction in discounts. Average road tolls nearly doubled. 1 Engelsk Tiltaksutredning luftkvalitet Bergen kommune-versjon Page 25 of 101

26 Adopted by the City Council and the County Council in winter 2012, but the decision by the Storting was not made until June Increase in road toll rates introduced from 1 July Group of measures 2: Measures to make public transport more attractive Continue measures relating to fares, further develop public transport services, increased accessibility for buses, stage 3 of the Bergen Light Rail development. Group of measures 3: Measures to achieve more sustainable land use and transport planning The land use part of the municipal master plan states that at least 80 per cent of future house building shall take place in the form of densification along the Bergen Light Rail corridor, in suburban centres and local centres. A regional land use and transport plan has been initiated Group of measures 4: Measures to contribute to more cycling and walking Follow-up through the bicycle strategy In autumn 2014, the City of Bergen and Hordaland County Authority will apply for a new agreement along the same lines Public transport strategy for Bergen Bergen City Council considered the item Strategy for Public Transport in Bergen (item no 12-07) at a meeting on 22 January 2007, and adopted the following resolution: 1. The draft Strategy for Public Transport in Bergen dated 22 December 2005 is adopted as the basis for further work on the action programme, based on the following overriding vision: Environmentally friendly and efficient public transport services that are easy to use for all user groups, and that provide passengers with fast, predictable and comfortable travel to all important destinations, both during and outside rush hours. The ambition for 2020 is: - A 50 per cent increase in the number of journeys by public transport, and - full accessibility on all main arteries (so that public transport is practically unaffected by other traffic, as is the case for Bergen Light Rail). We recognise that, without a targeted effort that includes both incentives and sanctions, the share of public transport will continue to decline. The proposed action programme, which will be presented in spring 2007, is being developed in close dialogue with relevant partners, and their consultation submissions are used as input in the work. 2. The City Council requests the Minister of Transport and Communications to reconsider the conclusion presented in its letter of 19 January 2007, in which the City of Bergen is notified that the trial project will be terminated on 31 December Bergen City Council refers to its decision of 11 December 2006 that the scheme be prolonged until 31 December Engelsk Tiltaksutredning luftkvalitet Bergen kommune-versjon Page 26 of 101

27 3. Bergen Light Rail must be the backbone of the future public transport system, and it is therefore crucial that land is now allocated to the future light rail network. Bergen Light Rail must be expanded to all urban districts, and extended to neighbouring municipalities, where Knarvik and Straume are the most relevant destinations. The planning of such a comprehensive light rail network to the urban districts and neighbouring municipalities must be speeded up. The City Council believes that a comprehensive light rail network, which extends to neighbouring municipalities, will be of great importance in relation to strengthening the overall public transport system in the Bergen area Cycling strategy for Bergen The Cycling Strategy for Bergen was adopted by the City Council on 26 April The four-year action plan specifies the strategic plan and the City Council s decision, and shows which projects must be implemented in order to achieve the adopted goals. Bergen City Council considered the action plan at a meeting on 24 January The city centre and the north-south axis between Åsane and Rådal will be given priority in the time ahead. A separate cycling project was initiated for the city centre, which quickly became a general road use project for the city centre that will look at all means of transport together. The main focus is on cycling and Bergen Light Rail / public transport, which means that traffic to and from the city centre must be rerouted. The project is coordinated with the planning of Bergen Light Rail. A zoning plan has been adopted for the missing section of the main bicycle route from southern Bergen to the city centre (Minde Allé Fabrikkgaten), and planning work is under way for crossing the Fjøsangerveien road at Fabrikkgaten. A new bicycle lane is also being built from Agnes Mowinckels gate to the City Park. It is demanding in terms of both time and resources to implement a satisfactory cycling strategy that is in line with the adopted strategic plan and action plan. The plans adopted by the City Council contribute to more targeted work in relation to the cycling strategy. A Chief Bicycle Coordinator was appointed in autumn Action Plan against Noise Pursuant to Chapter 5 of the Pollution Regulations on noise, the City of Bergen is required to prepare an action plan against noise with a view to reducing noise nuisance. The City Council adopted the new Action Plan against Noise for Bergen for the period on 26 January 2015 (item 5-15). The action plan is based on the noise mapping that was carried out in Bergen in 2012, and it sets out a noise policy for Bergen that forms the basis for the action plan. The main goals are that the City of Bergen shall be a pioneering municipality in its work on noise, and that noise shall be emphasised in connection with all land use planning. The City of Bergen shall: address noise at an early stage in connection with all new plans and projects; meet self-imposed and statutory requirements relating to noise; designate and protect quiet areas and facilitate public access to such areas; limit noise that affects the population s health and wellbeing; ensure that the municipality has the necessary expertise in relation to noise; coordinate action plans for noise from different sources and inform the city s inhabitants; endeavour to reduce noise exposure at particularly affected kindergartens and schools. Engelsk Tiltaksutredning luftkvalitet Bergen kommune-versjon Page 27 of 101

28 The Action Plan against Noise largely follows a template produced by the NEA. It will be considered by the City Council in 2014/15. Special consideration zones for noise are also included in the land use part of the municipal master plan. The travel habits survey in the Bergen Programme; a shift in the use of means of transport Under the auspices of the Bergen Programme, a travel habits survey for the Bergen area was carried out in 2013, the fourth such survey since Approximately 10,500 persons from 15 municipalities, aged 13 upwards, were asked about their travel habits. This was the first time the survey showed a change in the use of means of transport in a positive direction. Less use of private cars, more public transport Among Bergen s inhabitants, the proportion of motorists amounted to 46.4 per cent of all travellers. This is a decline from 50.9 per cent in The proportion using public transport increased by 2.7 percentage points in the same period, to 15.6 per cent in Bergen Light Rail has led to a trend shift in the use of means of transport. Bergen Light Rail meets a large part of the transport needs in Bergen city centre, and the proportion who use public transport in the urban districts covered by Bergen Light Rail has increased from 19 to 28 per cent, while the proportion of motorists has been reduced from 53.9 to 46.5 per cent since More walking, slight decline for cycling Seen together, the number of pedestrians and cyclists increased compared with Walking accounted for 25.3 per cent of all journeys in The proportion who cycle in Bergen has declined somewhat. Work-related cycling has remained at about the same level since 2008; it is cycling among the youngest age groups that has decreased in particular. Growth to the west The survey shows that each individual makes approximately 3.56 journeys a day. Four out of ten journeys are made to or from home, while travel for the purpose of shopping and services, work and recreational activities are the three most common types of journeys outside the home. For the area as a whole, the number of journeys per person and per day is the same as in Growth in overall travel activity has been strongest in the urban districts Bergenhus and Årstad, and between the City of Bergen and the neighbouring municipalities to the west. Engelsk Tiltaksutredning luftkvalitet Bergen kommune-versjon Page 28 of 101

29 Part 1 Mapping Engelsk Tiltaksutredning luftkvalitet Bergen kommune-versjon Page 29 of 101

30 Engelsk Tiltaksutredning luftkvalitet Bergen kommune-versjon Page 30 of 101

31 2 Mapping 2.1 General information about Bergen The air quality in Bergen is good or satisfactory for most of the year. This is largely due to natural conditions. Wind and rain help to replace polluted air and wash away polluted road dust and other polluting air particles. From time to time, however, the air in Bergen can be as polluted as in the big cities on the Continent. This normally happens on cold days between December and March, when cold air collects under a cap of warmer air (known as inversion) and forms what is referred to as the Bergen cap. The air becomes trapped under this cap, or layer, which causes concentrations of particulate matter from studded tyres and wood-burning stoves and exhaust gases from traffic to build up, resulting in an air quality that has negative health effects on a large proportion of the city s inhabitants. 2.2 Weather conditions in Bergen The weather in the last few years The weather is of decisive importance to the development of local air pollution. A period of calm, cold weather with inversion is required for serious air pollution to develop in Bergen. This type of weather arose in Bergen on unusually many days in the first two and last two months of To give an impression of the special January weather that resulted in extreme air quality values in 2010, an overview is included below of precipitation, temperature, wind and clear weather days in January for the past 13 years. Engelsk Tiltaksutredning luftkvalitet Bergen kommune-versjon Page 31 of 101

32 Figure 2.1: Precipitation and average temperature for the month of January in the period (Florida weather station) (Source: eklima, DNMI). In the 52 years that measurements have been taken at the Florida weather station in the southern part of Bergen city centre, there has never been a January with as little wind, as many clear weather days, as little precipitation or as low an average temperature as in January 2010 (eklima, DNMI). This suggests that the type of serious pollution episodes we saw in January 2010 will probably only occur very rarely in Bergen Middelvindhastighet Normal middelvindhastighet Normal klarværsdager Klarværsdager Average wind speed m/s Clear weather days 0 januar 2000 januar 2002 januar 2004 januar 2006 januar 2008 januar 2010 januar Figure 2.2: Average wind speed and clear weather days for the month of January in the period (Florida weather station) (Source: eklima, DNMI). A temperature inversion is a meteorological phenomenon in the atmosphere where the temperature increases with altitude instead of decreasing. Hours of inversion Figure 2.3: Number of hours of inversion per year ( ). Florida and Ulriken weather stations (Source: the Geophysical Institute, UiB). Engelsk Tiltaksutredning luftkvalitet Bergen kommune-versjon Page 32 of 101

33 2.2.2 The weather in Bergen in 2013 The weather in 2013 was largely typical for Bergen with regard to temperature and the total amount of precipitation. February and March were relatively dry, while there was more precipitation than normal in October, November and December. Precipitation (mm) Temperature ( C) Nedbør Normal nedbør Middeltemperatur Normal middeltemperatur Figure 2.4: Precipitation and temperature in Bergen (Florida) in 2013 compared with the norm (Source: eklima, DNMI). 2.3 Air quality in Bergen Measuring air pollution Since 1994, the City of Bergen and the NPRA have cooperated on measuring the air quality in Bergen, informing the public about the results and providing relevant health information. The Norwegian Meteorological Institute s Western Norway Division prepares pollution forecasts for the coming days, and they are published in the media and online ( In the eight-year period from 1994 to 2002, the air quality was only monitored during the winter (October April). In 2002, new regulations for local air quality entered into force, which have now been incorporated in the Pollution Regulations Chapter 7 Local air quality. In the Pollution Regulations Chapter 7 Local Air Quality (hereinafter called the Regulations ), limit values are largely related to calendar years, and the reporting period has therefore been changed correspondingly. Bergen has two air quality monitoring stations, which is in accordance with the new regulatory requirements in relation to the size of the city. The two monitoring stations are located at the town hall (Rådhuset) and at the Danmarks plass junction. See Figure 2.5. The Rådhuset monitoring station is a city-wide monitoring station that is the city s reference station and that shows the air quality for the inhabitants of central parts of Bergen. Engelsk Tiltaksutredning luftkvalitet Bergen kommune-versjon Page 33 of 101

34 The monitoring station at Danmarks plass is a traffic station that monitors the air quality in the area of Bergen with the heaviest traffic. It describes the air quality for people who live or work near the biggest traffic arteries. Danmarks plass monitoring station measures the assumed poorest air that the population is exposed to. Engelsk Tiltaksutredning luftkvalitet Bergen kommune-versjon Page 34 of 101

35 Rådhuset Monitoring station: Coordinates EU 89 UTM 32 East: North: Danmarks plass East: North: EU89 geographical coordinates Longitude: Latitude: Longitude: Latitude: Figure 2.5. Location of monitoring stations in Bergen (with coordinates) Measuring methods The Rådhuset monitoring station At Rådhuset, two different fractions of particulate matter are measured, PM 2.5 and PM 10, as well as NO 2, tropospheric ozone (O 3 ) and benzo(a)pyrene, which is included under PAHs polyaromatic hydrocarbons. The Rådhuset monitoring station is a continuous NO monitor of the monitor labs type. It produces hourly values for NO, NO x and NO 2. Two continuous ambient particular monitors of the Teom type are also installed. One measures PM 2.5 values and the other PM 10. An ozone monitor of the API type has also been installed. It produces hourly values for ozone. In addition, a passive NO 2 monitor is placed outside the monitoring station, which produces NO 2 data once a month. These data are analysed by the Norwegian Institute for Air Research (NILU). Engelsk Tiltaksutredning luftkvalitet Bergen kommune-versjon Page 35 of 101

36 The Danmarks plass monitoring station The monitoring station at Danmarks plass is a road station. A continuous NO monitor of the monitor labs or API type is installed there. It produces hourly values for NO, NO x and NO 2. It also measures volatile organic compounds (BTEX), of which benzene is the most important. In May 2008, the measurements of carbon monoxide (CO) ceased, as the values were well within the regulatory requirement. Two different fractions of particulate matter, PM 2.5 and PM 10, are also monitored at Danmarks plass Monitoring results In this chapter, the monitoring results for NO 2 and particulate matter are presented for the period in relation to regulatory requirements for the assessment of measures and national targets. Monitoring results for NO 2 The results for 2013 are shown in Table 2.1 and in the diagrams in Figure 2.6 to Figure Table 2.1: Monitoring results for NO 2 in 2013 in relation to the regulatory requirement for the assessment of measures. NO 2 Hourly value Annual mean Hourly value Averaging time 1 hour Calendar year 1 hour Regulatory requirement Measures > 200 µg/m 3 (2010) Max 18 hours exceedances per year Monitoring result Rådhuset 0 hours exceedance Monitoring result Danmarks plass 6 hours exceedance 40 µg/m 3 (2010) 32.3 µg/m µg/m 3 National target 150 µg/m 3 Max 8 hours exceedance 1 hour s exceedance 74 hours exceedance No exceedances of the hourly value (pollution episodes) at Rådhuset in Six exceedances of the hourly value (pollution episodes) at Danmarks plass in Engelsk Tiltaksutredning luftkvalitet Bergen kommune-versjon Page 36 of 101

37 Overskridelser pr. år Max overskridelser pr. år Number of exceedances above 200 µg/m Figure 2.6: NO 2 pollution episodes (hourly value > 200 µg/m 3 ) Rådhuset Overskridelser pr. år Max overskridelser pr. år Number of exceedances above 200 µg/m Figure 2.7: NO 2 pollution episodes (hourly value > 200 µg/m 3 ) Danmarks plass. Figure 2.8: NO 2 annual mean Rådhuset. Engelsk Tiltaksutredning luftkvalitet Bergen kommune-versjon Page 37 of 101

38 Figure 2.9: NO 2 annual mean Danmarks plass. Figure 2.10: Rådhuset Pollution episodes in relation to national targets (NO 2 shall not exceed 150 µg/m 3 for more than 8 hours per year). Figure 2.11: Danmarks plass Pollution episodes in relation to national targets (NO 2 shall not exceed 150 µg/m 3 for more than 8 hours per year). The regulatory requirements relating to nitrogen dioxide were tightened every year until 2010, when the limit for safeguarding people s health was set at 40 µg/m 3. At Rådhuset, the measured value is 32.3 µg/m 3, which is approximately 20 per cent below the regulatory requirement for implementing measures. Engelsk Tiltaksutredning luftkvalitet Bergen kommune-versjon Page 38 of 101

39 At Danmarks plass, the measured value is 40.8 µg/m 3, which is 2 per cent above the regulatory requirement for implementing measures. Monitoring results for particulate matter PM 10 Particulate matter is measured as the weight of the amount of particles in the air smaller than 10 micrometres in diameter PM 10. The measurement results for 2013 are shown in Table 2.2 and in Figure 2.12 to Figure Table 2.2: Monitoring results for PM 10 in 2012 in relation to the regulatory requirement for measures. PM 10 Averaging time Regulatory requirement Measure Monitoring result Rådhuset Monitoring result Danmarks plass Daily value 1 day >50 µg/m 3 (2005) Max 35 exceedances per year 1 day of exceedances 24 days of exceedances Annual mean Calendar year 40 µg/m 3 (2005) 15.7 µg/m µg/m 3 According to national targets, the daily mean concentration of particulate matter (PM 10 ) shall not exceed 50 µg/m 3 for more than seven days a year. Below is a graphic presentation of the monitoring results for PM 10 in the period in relation to the assessment of measures/regulatory requirements and national targets. Exceedances of the daily value at both Rådhuset and Danmarks plass were below the number permitted by the Regulations. The annual mean PM 10 concentration at both Rådhuset and Danmarks plass was also within the value permitted by the Regulations. The concentration of particulate matter (PM 10 ) at Danmarks plass in 2013 was the fourth lowest ever recorded. 70 Overskridelser pr. år Max overskridelser pr. år Nasjonale mål Daily values above 50 µg/m Figure 2.12: PM 10 pollution episodes (daily value >50 µg/m 3 ) at Rådhuset. Engelsk Tiltaksutredning luftkvalitet Bergen kommune-versjon Page 39 of 101

40 70 Overskridelser pr. år Max overskridelser pr. år Nasjonale mål Daily values above 50 µg/m Figure 2.13: PM 10 pollution episodes (daily value >50 µg/m 3 ) at Danmarks plass Måleresultat µg/m3 Tiltaksutredning/Forskrif tskrav 1/ µg/m3 PM10 µg/m ,8 43,2 41, ,7 17,8 16,8 18,6 19,1 16,5 16,6 17,4 18,9 17,7 14,6 15, Figure 2.14: PM 10 annual mean, Rådhuset Måleresultat µg/m3 Tiltaksutredning/Forskrif tskrav 1/ µg/m3 PM10 µg/m ,8 43,2 41, ,6 30,6 25,5 22,9 24,2 23,6 25,6 21,2 20, , Figure 2.15: PM 10 annual mean, Danmarks plass. Engelsk Tiltaksutredning luftkvalitet Bergen kommune-versjon Page 40 of 101

41 Monitoring results for PM 2.5 fine particles Fine particles are measured as the weight of the amount of fine particles in the air smaller than 2.5 micrometres in diameter PM 2.5. The monitoring results are presented in Table 2.3 and shown in Figure 2.16 and Figure Table 2.3: Monitoring results for PM 2.5 ( fine particles) in 2013 in relation to the regulatory requirement for measures. PM 2.5 Averaging time Regulatory requirement Measures Monitoring result Rådhuset Monitoring result Danmarks plass Annual mean Calendar year 25 µg/m 3 (2015) 8.0 µg/m µg/m 3 A graphic presentation is shown on the next page of the monitoring results for PM 2.5 during the period in relation to assessment of measures/regulatory requirements and national targets. The annual mean at both Rådhuset and Danmarks plass was within the value permitted by the Regulations. 30 Måleresultat µg/m3 25 Mål om eksponeringsnivå i byområder µg/m3 Titaksutredning/Forskrif tskrav 1/ µg/m3 PM2.5 µg/m ,7 10 8,5 7, Figure 2.16: PM 2.5 annual mean, Rådhuset. Engelsk Tiltaksutredning luftkvalitet Bergen kommune-versjon Page 41 of 101

42 Måleresultat µg/m Mål om eksponeringsnivå i byområder µg/m3 Tiltaksutredning/Forskrif tskrav 1/ µg/m3 PM2.5 µg/m ,3 14,2 9,3 8,9 9, Figure PM 2.5 annual mean, Danmarks plass. 30 Måleresultat µg/m3 25 Mål om eksponeringsnivå i byområder µg/m3 Tiltaksutredning/Forskrif tskrav 1/ µg/m3 PM2.5 µg/m ,3 14,2 9,3 8,9 9, Figure 2.18: PM 2.5 annual mean, Danmarks plass. Passive monitors NO 2 In addition to the accredited monitoring stations, the Health Protection Agency in the City of Bergen and the NPRA have installed what are known as passive monitors in order to monitor the average nitrogen dioxide level in different areas of Bergen. There are currently monitors at 32 monitoring stations. The results of the passive monitoring are presented monthly on the City of Bergen s website. Engelsk Tiltaksutredning luftkvalitet Bergen kommune-versjon Page 42 of 101

43 Figure 2.19: Annual average for passive NO 2 monitors in The Rådhuset and Danmarks plass monitoring stations are the accredited instruments. Based on the results from these monitoring stations, exceedances of the regulatory requirements for the annual mean NO 2 concentration were recorded at Vestkanten shopping centre in Loddefjord and at the taxi stand at Danmarks plass in The elevated concentrations in the area near Vestkanten may be partly due to a temporary diversion of traffic in connection with the construction of the Western Ring Road Nitrogen dioxide dispersion Nitrogen dioxide is the pollutant that is most problematic for Bergen in relation to the regulatory requirements. Wood-burning stoves contribute very little to nitrogen dioxide pollution. Seen from a health perspective, the most important nitrogen oxide is NO 2. Nitric oxide (NO) is formed during combustion at high pressure and high temperature in an internal combustion engine when nitrogen (N) reacts with oxygen (O). NO reacts rapidly with ***oxygen in the atmosphere to produce NO 2. In addition, on a larger scale NO 2 combined with sunlight will contribute to the photochemical formation of ozone. In some types of engines, typically diesel engines, some NO 2 is also formed directly, and NO reacts in particulate filters to form NO 2 (source: luftkvalitet.info). Engelsk Tiltaksutredning luftkvalitet Bergen kommune-versjon Page 43 of 101

44 2.3.5 Air pollution in sensitive land use areas A map has been prepared that shows where buildings are located in sensitive land use areas where the NO 2 values are exceeded, meaning an annual mean concentration above 40 µg/m 3 in 2010, which is the year with the highest annual mean NO 2 concentration since monitoring started; see Figure The map also shows areas where the annual mean pollution dispersion of NO 2 is µg/m 3. This shows potential problem areas to which attention must be paid in the event of a deterioration of the pollution situation. The marked buildings are schools, kindergartens, hospitals, nursing homes and treatment institutions. Residential areas are also deemed to be sensitive land use areas, but they account for a large proportion of the municipality s buildings and are therefore not indicated on the map. The map is shown in Figure In 2010, approximately 2,500 people lived in areas where the annual mean NO 2 concentration exceeded the regulatory requirement, i.e. more than 40 µg/m 3. This amounts to about one per cent of the city s population. A tenth of the population lived in an area where the annual mean concentration was µg/m 3 in In addition to those who live there, many people spend time in this area, where there is heavy traffic to schools, workplaces, shops and various activities. Table 2.4. Number of residents and size of areas in Bergen in different zones with different annual mean NO 2 concentrations in Size of Population area Annual mean NO years years 70+ years Total Proportion Km µg/m 3 17,500 55,200 6,600 79,300 29% µg/m 3 22,300 82,700 12, ,700 43% µg/m 3 8,100 35,400 5,800 49,400 18% µg/m 3 2,500 18,800 1,700 23,000 8% 7 40 µg/m , , % 1 Total 50, ,300 27, , % 466 Engelsk Tiltaksutredning luftkvalitet Bergen kommune-versjon Page 44 of 101

45 år µg/m3 Figure Residents broken down by age group in different zones with annual mean values for NO 2 in Table 2.5. Overview of institutions in areas with an annual mean concentration of 40 µg/m 3 in Name Institution Address Number of places Margit Tanners Minne Solheim Alderspensjonat Retirement home Retirement home Kong Oscars gate Solheimsgaten Salem open kindergarten Kindergarten Sigurds gate 6? Marken kindergarten Kindergarten Kong Oscarsgate 55 and Birkebeinergaten 4 52 Lekefabrikken kindergarten Kindergarten Fabrikkgaten 5 25 Rå kindergarten*) Kindergarten Steinsvikveien 397 A/B 250 Nygård school School Nina Griegs gate 2? Kalfaret nursing home Health Kalfarveien Kronstad DPS Health Fjøsangerveien Amalie Skram school St. Paul school Årstad school Upper secondary school Upper secondary school Upper secondary Lungegårdskaien Nygårdsgaten Fjøsangerveien 38 A 1,000 Engelsk Tiltaksutredning luftkvalitet Bergen kommune-versjon Page 45 of 101

46 *) only partly situated in zone with 40 µg/m 3 school Air quality in 2013 in relation to the Pollution Regulations Part 3 Chapter 7 Local air quality The air quality in Bergen was mostly good in 2013, but the monitoring showed that, for Danmarks plass, the regulatory requirements were exceeded for the annual average concentration of nitrogen dioxide. The inhabitants of this area were exposed to values exceeding the requirements set out in the Regulations for a maximum annual average of 40 µg/m 3 of NO 2. For Danmarks plass, the annual average for nitrogen dioxide has been 40.8 µg/m 3, which is 2 per cent above the prescribed maximum of 40 µg/m 3. For Rådhuset, on the other hand, the annual average for nitrogen dioxide has been 32.3 µg/m 3, which is approximately 20 per cent below the regulatory requirement for implementing measures. That is among the lowest annual mean values measured in the last ten years. Only six hours with too high levels of nitrogen dioxide (>200 µg/m 3 ) were registered at Danmarks plass, however, and zero hours at Rådhuset, which is lower than the regulatory requirement, whereby a maximum of 18 hours is required before measures must be implemented. As regards particulate matter, Bergen was below the values prescribed in the Regulations in 2013: 24 days were recorded with an average above 50 µg/m 3 of PM 10. The alert threshold was not exceeded in any measurements in Bergen in The measured values for PM 10 in 2013 gave an annual mean concentration of 22.0 µg/m 3 at Danmarks plass (current limit value: 40.0 µg/m 3 ) and the corresponding annual mean for PM 2.5 was 9.4 µg/m 3 (current limit value: 20 µg/m 3 ). The corresponding values for Rådhuset were 15.7 µg/m 3 (PM 10 ) and 8.0 µg/m 3 (PM 2.5 ). Engelsk Tiltaksutredning luftkvalitet Bergen kommune-versjon Page 46 of 101

47 Figure 2.21: Prevalence of NO 2 pollution as the annual means for 2010 in central areas of Bergen. Buildings in sensitive land use areas, such as kindergartens, schools and health institutions are marked in red. Engelsk Tiltaksutredning luftkvalitet Bergen kommune-versjon Page 47 of 101

48 Figure Map of annual mean concentration of NO 2 in Bergen in The map is based on active and passive monitoring and assessments carried out by the Meteorological Institute in Bergen. Engelsk Tiltaksutredning luftkvalitet Bergen kommune-versjon Page 48 of 101

49 This is a clear reduction in the pollution level as regards particulate matter from 2010 to The levels are well below the current limit values. According to the Institute of Public Health and the NEA (2013), however, it will probably be proposed to lower the limit values for annual mean concentrations to 20 µg/m 3 (PM 10 ) and 8 µg/m 3 (PM 2.5 ), respectively. The corresponding values measured for NO 2 in 2013 resulted in an annual mean of 40.8 µg/m 3 at Danmarks plass (limit value: 40.0 µg/m 3 ). The number of hours of exceedance in 2013 was 6 (limit value: 18). This is a clear reduction compared with Danmarks plass is now just above the current limit value. The corresponding annual mean for Rådhuset in 2013 was 32.3 µg/m Emission sources The nature and composition of air pollution in cities/towns and peri-urban areas has changed. In the 1960s and 1970s, air pollution was dominated by emissions from heating installations and industry. From the early 1980s, traffic gradually took over as the main source of local air pollution in Norwegian towns and cities, and today, the contribution from traffic dominates completely. 8 % 9 % 83 % Veisektoren Skipsfart og båter Bolig og bygg As shown above, the air pollution in Bergen mainly consists of NO 2 (nitrogen dioxide) and particulate matter; coarse PM 10 and fine PM 2.5, which mainly come from traffic and wood-burning stoves. Figure Breakdown of NOx emissions by source for the City of Bergen Emissions from road traffic Traffic is the most important source of air pollution in towns/cities and peri-urban areas. A substantial share of emissions of NO 2 and CO 2 comes from cars. At the national level, about half of the particulate matter is generated by cars. In the four largest cities, about half of the population live in areas where the recommended air quality criteria are exceeded at times. Traffic pollutes the air through the combustion of fuel, which leads to gas and particle pollution, and by tyres (especially studded tyres) agitating small particles from the asphalt, which stay airborne for a long time. The highest concentrations are usually the result of a combination of emissions near the ground and special meteorological and topographic conditions. Although emissions of nitrogen oxides (NO 2 and NO) from cars have been substantially reduced in the last few years, the concentration of NO 2 in the air has not. This is because the NO 2 share of NO x emissions from new diesel cars has increased, and because the proportion of diesel cars has increased. The number of registered vehicles in Hordaland County by fuel type is shown in Figure 2.24, and the number of registered passenger cars in Hordaland by fuel type is shown in Figure Engelsk Tiltaksutredning luftkvalitet Bergen kommune-versjon Page 49 of 101

50 Number of cars BILER BENSIN BILER DIESEL BILER SUM Figure 2.24: Total number of vehicles in Hordaland broken down by fuel type (source: Norwegian Public Roads Administration). *) In autumn 2010, DnB s leasing company moved from Bergen to Oslo in connection with a merger. This meant that over 30,000 cars had to be re-registered to the new leasing company, which is registered in Oslo Number of passenger cars PERSONBILER BENSIN PERSONBILER DIESEL PERSONBILER SUM Figure 2.25: Total number of passenger cars in Hordaland broken down by fuel type (source: Norwegian Public Roads Administration). *) In autumn 2010, DnB s leasing company moved from Bergen to Oslo in connection with a merger. This meant that over 30,000 cars had to be re-registered to the new leasing company, which is registered in Oslo. Engelsk Tiltaksutredning luftkvalitet Bergen kommune-versjon Page 50 of 101

51 Two factors are decisive for emissions of nitrogen dioxide in Bergen: the number of cars and the type of cars. We assume that the composition and development of the total car fleet is about the same for Bergen as for Hordaland as a whole. From 2014, new and more stringent emission requirements were introduced for new vehicles. The EU is also working on the introduction of new procedures for emission testing to ensure that cars do not emit more than the requirements state. In the long term, this may mean that NO 2 concentrations will decrease (source: miljøstatus.no). Pollution from NO 2 is greatest near the main traffic arteries and decreases with altitude and the distance from traffic. Particulate matter is more uncertain because we lack monitoring from other places than Danmarks plass and Rådhuset. The concentration of particulate matter (especially PM 2.5 ) probably varies substantially in different parts of the city. Unlike emissions of exhaust particles, emissions of the harmful gas NO 2 from traffic have increased in recent years. The increase is largely due to the increasing share of diesel cars among vehicles overall. It appears that type approval tests for new diesel passenger cars are unable to identify emissions in actual traffic to any great extent. The deviations are greatest for driving in urban areas and in cold weather. Emission calculations for Norwegian cities indicate that NO 2 emissions are expected to increase until 2015, but that they will then decrease in the period leading up to Although the emissions will be reduced from 2015, exceedances of the NO 2 requirements may still occur in It is uncertain whether the Euro 6/VI vehicles that were phased in from 2014 will meet the Euro requirements in real city traffic as well (TØI report 1168/2011). Need for new purification technology Diesel engine passenger cars need new purification systems. A lot of the current technology does not live up to its promises. What works in laboratories often fails to have the same good effect in traffic. The Institute of Transport Economics (TØI) has great faith in the catalyst research that is being done at the Norwegian University of Science and Technology (NTNU) to develop a new generation of catalytic converters. Traffic development in Bergen in 2013 There has been a decrease of 456 vehicles a day passing through the seven toll collection points in the direction of the city centre, i.e. a reduction of 0.5 per cent compared with Of the traffic heading for the city centre, there has been a reduction of 274 vehicles a day, i.e. a reduction of 0.7 per cent compared with Traffic through the toll plazas has increased steadily for the past 20 years, but in 2013, a slight decrease was recorded for the first time. A slight decrease in traffic in the city centre was also recorded in the same period. The traffic development in Bergen city centre is shown in Figure In 2013, 220,961 passenger cars were registered in Hordaland County. Of these, approximately 1.17 per cent are electric cars, up from 0.45 per cent in The number of electric passenger cars registered in Bergen and Hordaland is shown in Figure The number of electric passenger cars registered in neighbouring municipalities is shown in Figure Engelsk Tiltaksutredning luftkvalitet Bergen kommune-versjon Page 51 of 101

52 Bomringen totalt Sentrumsrettet totalt Vehicles per day Figure 2.26: Development in traffic into Bergen city centre (source: Norwegian Public Roads Administration) Elektriske personbiler i Bergen Elektriske personbiler i Hordaland Figure 2.27: Electric passenger cars registered in the City of Bergen and Hordaland County in (source: Norwegian Public Roads Administration) Askøy Os Osterøy Fjell Meland Lindås Engelsk Tiltaksutredning luftkvalitet Bergen kommune-versjon Page 52 of 101

53 Figure 2.28: Electric passenger cars registered in selected neighbouring municipalities (commuter municipalities) in 2013 (source: Norwegian Public Roads Administration) Figure 2.29: Annual daily average bicycle traffic in Bergen. The data are summarised from eight bicycle counting points: Bjørgeveien, Håvardstun, Kråkenes, Kanalveien, Fjøsanger, Fløenstien, Åsane and Puddefjordsbroen (source: Norwegian Public Roads Administration) Distance with exceedances of NO 2 limits in Bergen in 2010 On assignment for the NEA, the Directorate of Public Roads has assessed how much of the road network was subject to exceedances of the NO 2 limit in 2010 (Statens vegvesen, 2013). The concentrations were assessed in relation to the limit values set out in the Regulations, i.e. an annual mean NO 2 concentration of 40 µg/m 3 and more than 18 hours of 200 µg/m 3 (see also Table 1.1 on page 17). No documented data exist in Bergen for how many kilometres of road were subject to exceedances in Estimates have therefore been made based on previous monitoring and the traffic volume on the road network in Oslo, adjusted to suit the situation in Bergen. Account was also taken of the fact that the dispersion conditions in Bergen were unusually poor in Based on this, the Directorate of Public Roads assumes that the situation in Bergen was as follows: The regulatory limit values were exceeded on all roads with more traffic than 20,000 vehicles/day (AADT). There were no exceedances of the regulatory limit values on roads with less traffic than 10,000 vehicles/day. The regulatory limit values were probably exceeded on some roads with traffic between 10,000 and 20,000 vehicles/day. In all, the Directorate of Public Roads assumes that there were exceedances along km of road in Bergen in Bergen port The port authority in Bergen, Port of Bergen (BOH), is tasked with promoting marine transport, coordinating all public port activities, managing and administering port activities, as well as Engelsk Tiltaksutredning luftkvalitet Bergen kommune-versjon Page 53 of 101

54 planning, building, operations and maintenance. Bergen aims to be a forward-looking, international environmentally friendly port and it has a dedicated environmental goal: We shall be a leading port in relation to environmental management, and we will reduce the environmental impact of port operations. Figure 2.30: Emissions from Bergen port Emissions to air from port activities The Port of Bergen monitors emissions from port activities and, from 2013, it will also look at seasonal variations in emissions. Emissions from port activities for 2010 are shown in Figure Measures Offshore vessels and cruise ships are the main contributors to undesirable emissions to air, and measures targeting these two classes of ships should be given priority. The berth time for these classes is shown in Table 2.6 Many quays are challenging as regards the facilitation of measures. A preliminary assessment shows that there is most to gain from prioritising measures for these ships in the Bontelabo, Skolten and Festningskaien areas. Skolten Hurtigruten Dokken / Jekteviken Nykirkekaien Bontelabo Festningskaien Nykirkekaien quay is also being considered as a priority area, since the Norwegian Institute of Marine Research s ships are prepared for shoreside power. These quays are Figure Quays where the Port of Bergen is considering environmental measures. Engelsk Tiltaksutredning luftkvalitet Bergen kommune-versjon Page 54 of 101

55 also used by offshore vessels. The areas are shown in the figure on the right. The Port of Bergen has started a dedicated project aimed at reducing emissions to air from port activities. Progress schedule for main activities in the environmental project: Shoreside power/lng strategy: To be presented in December 2014 Strategy for differentiated port charges: To be presented in April 2015 Environmental plan: To be presented in April 2015 Table 2.6. Berth time for cruise ships and offshore vessels in Cruise ships Offshore vessels Quay Number Days in port Number Days in port Bontelabo Skolten Jekteviksterminalen Dokkeskjærskaien Festningskaien Tollbodkaien Hurtigrutekaien Nykirkekaien Frielenekaien Bryggen Holbergskaien Bradbenken The Port of Bergen is considering potential measures in the Dokken/Jekteviken area. There are some limitations in the area, however, due to the ongoing work of extending the quay and because of a reduced power supply capacity. An increasing proportion of LNG-powered ships are also part of the picture in this area. In general, it is being considered what role LNG can play in the future and how arrangements can be made to facilitate its use. An exhaust extraction system is also being considered in combination with dedicated shoreside purification systems as a possible solution for some classes of ships. All these elements are part of the discussion about the environmental plan for Bergen port. See also section on page 71 on shoreside ship power. Engelsk Tiltaksutredning luftkvalitet Bergen kommune-versjon Page 55 of 101

56 3 Measures 3.1 Main focus on the causes of air pollution If the air quality in Bergen is to improve, a targeted, long-term strategy is needed in order to change the conditions that create pollution. The main strategy is therefore that measures shall target the causes of air pollution in Bergen, not the symptoms. In a long-term perspective, measures targeting the sources of pollution are most likely to lead to permanent improvements in air quality. These measures are emphasised in the plan. This also forms the basis for the regulations on local air quality issued pursuant to the Pollution Control Act. 1. Long-term measures Long-term measures that reduce the need for transport by coordinating transport and land use planning, the location of workplaces, densification, developing the pedestrian and cycling lane network, the use of communication technology, expedient goods transport solutions etc. are very important, but will primarily be relevant in a longer-term perspective. These measures are attended to in municipal and county plans and are described in more detail at 2. Action Plan for Cleaner Air Packages of measures The goal that the air quality in Bergen shall meet national air pollution targets will be achieved with the help of packages of measures that are adapted to the challenges the city is facing. Many of the measures will work best in combination with other measures. The measures proposed in the plan are packages of measures that pull in the same direction. This applies, for example, to the transport measures, the effects of which are best achieved by using several measures in combination. 3. Immediate measures The geographical and meteorological conditions in Bergen mean that, with the current level of emissions, the air quality will be poorer during periods of inversion. Inversion arises during the winter on cold, dry days that can and will occur from time to time. It may therefore be necessary to implement immediate measures when warnings of poor air quality are issued. Permanent measures are more effective, however, when it comes to preventing acute pollution problems and contributing to a long-term improvement in the air quality. In this context, account must also be taken of other sources of pollution than traffic. Engelsk Tiltaksutredning luftkvalitet Bergen kommune-versjon Page 56 of 101

57 3.2 Measures against NO 2 and particulate matter Nitrogen dioxide from traffic represents the biggest challenge in relation to meeting the requirements of the Pollution Regulations As shown in Chapter 2.3 above, the annual mean concentration of NO 2 represents the biggest challenge for Bergen in relation to the Pollution Regulations. Calculations from NILU (TØI report 1168/2011) show that it is possible to substantially reduce the emissions of NO 2 from cars in Norway. The size of the reduction depends on the how strong measures we are willing to take to achieve: a reduction in road traffic more environmentally friendly fuel technology in cars a shift in passenger traffic and goods traffic to more environmentally friendly means of transport In practice, such changes are challenging. The challenge is to achieve as rapid a reduction of the NO 2 levels as the Regulations require. Since we are required by the Pollution Regulations to meet the limit values relatively quickly, measures that work in the short term are most interesting in this context. If, for example, measures are introduced that result in a share of diesel-powered passenger cars of 15 per cent, and the share of diesel-powered vans is reduced from the current 92 per cent to 50 per cent in 2020, emissions in Norway would be reduced by 49 per cent from today s level. However, NILU suggests that an emission reduction of around 50 per cent is necessary in order to come below the limit value for NO 2. In other words, the projections show that the Euro 6/VI requirements will contribute to substantially reducing NO 2 emissions, but that there is a lot more to gain from reducing the number of dieselpowered passenger cars in the cities. If an environmental zone is established where both light and heavy vehicles that do not meet the Euro 6/VI requirements are prohibited, the emissions would be further reduced Particulate matter and emissions from households and traffic Most of the emissions of particulate matter in Bergen come from private households. This primarily applies to emissions from wood-burning stoves. In this context, it is important to note that this applies to the amount of emissions to air. The degree of exposure for the population of Bergen is relatively low since the emissions are dispersed, but the emissions may lead to poor air quality under certain meteorological conditions (inversion). Wood burning is assumed to contribute about 25 per cent on average of the concentrations of ground-level particulate matter. It is also assumed that traffic and road dust account for about 15 per cent of the emissions and generation of particulate matter, but this is dust that exposes the population to pollution to a far greater extent since it concerns ground-level particulate matter near traffic arteries. During episodes of particularly high pollution from particulate matter, mineral particles from wear of the road surface account for a substantial proportion of the pollution. In such situations, up to 90 per cent of the particulate matter can come from agitated road dust, either from direct wear of the road surface or by dust deposited in and along the road being agitated. Engelsk Tiltaksutredning luftkvalitet Bergen kommune-versjon Page 57 of 101

58 In Norway (and Bergen), there is a considerable proportion of wood-burning particles in winter. Studies conducted by the Institute of Public Health show that the physical and chemical properties of wood-burning particles stand out clearly from combustion particles from car engines. Woodburning particles contain more than a hundred times more PAHs than diesel exhaust particles and road dust do. (Source: Report 2013:9 Air quality criteria, the Institute of Public Health and the Norwegian Environment Agency). 3.3 Action plan Ten-point action plan The review of measures is based on the Action Plan for Cleaner Air in Bergen 2008 and the City Council s decision to adopt a ten-point programme for improved air quality in Bergen: Congestion charges combined with attractive public transport services Building more park-and-ride facilities combined with parking restrictions in the city centre Studded tyres fee combined with a deposit return scheme for old studded tyres A low-emission zone and promoting the use of low-emission vehicles Grants for households that replace old wood-burning stoves in the city centre Street cleaning Good travel and driving habits Shoreside power for ships at berth Warnings and information Municipal measures targeting improved air quality Most of the measures in the 2008 action plan have been or are in the process of being implemented. Some measures have not been implemented because local policy instruments are lacking or because the assumptions that originally formed the basis for the measures have changed, for example because of urban development or a lack of technological development in relation to emissions. The measures have previously been described in the Action Plan for Cleaner Air in Bergen The measures are also described at This chapter describes the status of the ten-point programme that was adopted by Bergen City Council on 26 May 2008 and that largely still applies. It also describes updates or new measures that it is recommended be implemented Time-differentiated road tolls combined with attractive public transport services Levying road user charges to reduce emissions is an important means of reducing NO 2 emissions. There are many different variants of such charges. In addition, the introduction of some form of road user charges must be combined with improved public transport services, arrangements to facilitate cycling and walking, and restrictions on motoring. Transport research and experience clearly show that improving public transport services without introducing restrictions on motoring will have little effect (see, for example, Statens vegvesen et al. 2010, Urbanet Analyse 2011, TØI 2014). Road user charges aimed at regulating car use should therefore not be seen as an isolated measure, but as part of an overall transport policy strategy. This is because charging road users for travelling by car will lead to a number of adjustments in people s travel behaviour, in both the short and the long term. For example, it may affect demand for public transport. Engelsk Tiltaksutredning luftkvalitet Bergen kommune-versjon Page 58 of 101

59 Description of the measure Time-differentiated road tolls could be a practical approach in Bergen, and they can be introduced as a measure to decrease congestion in a specific area. The measure is also relevant as a means of reducing NO 2 emissions, however, since it both has a deterrent effect on traffic and helps the flow of traffic. A more even traffic flow leads to less emissions of NO 2. Cities that have introduced congestion charges have seen a decrease in traffic of per cent and have also reduced local air pollution. Monitoring shows that NO 2 emissions increase with congestion. Measures that can lead to less congestion and a more even traffic flow can therefore contribute to reducing NO 2 emissions. The measure is described in more detail in the 2008 action programme. Diversion roads and road user charges In principle, road user charges can also be used to divert traffic to areas that are less vulnerable to pollution. Bergen faces a special challenge in that its topography limits the possibilities of establishing alternative routes around the city centre and the most polluted areas. Where other cities have a set of ring roads around the city centre, Bergen has the Fløyfjell tunnel and the Eastern Ring Road via Arna. Part of the Eastern Ring Road between Arna and Nesttun is of poor standard. Upgrading the Eastern Ring Road has been considered, including different variants linking it to the E39 road and the main road into the city centre from the south. This was dealt with in the concept evaluation for the Bergen area in which different main alternatives for the transport system were considered (Statens vegvesen, 2011). Since large parts of the traffic are destined for areas near the city centre, and the diversion route via Arna is significantly longer than via the Fløyfjell tunnel, upgrading the Eastern Ring Road will not relieve the Bergensdalen valley to any significant extent, even if road user charges are introduced to stimulate use of the road. Upgrading the Eastern Ring Road can nonetheless have an effect, for example if restrictions are introduced or a prohibition on heavy traffic crossing Danmarks plass, which means that the through traffic must choose the Eastern Ring Road. During the first half of 2015, the NPRA will reconsider an upgrade of the Eastern Ring Road for the purpose of diverting the through traffic away from the Bergensdalen valley. This measure will therefore not be addressed in this assessment of measures. Status A congestion charge for Bergen was considered in 2009, but was not introduced at the time. Since then, however, public transport services have been significantly improved, including Bergen Light Rail, new and less polluting buses, better routes and one uniform fare. A positive effect of this is that the travel habits survey in 2013 showed a slight decline in traffic into the city centre, a considerable increase in the use of public transport and a smaller proportion of car journeys in areas served by Bergen Light Rail (see the description of changes in travel habits on page 22). It is proposed that the measure be introduced as part of the Action Plan for Improved Air Quality Park-and-ride facilities and parking restrictions in the city centre Engelsk Tiltaksutredning luftkvalitet Bergen kommune-versjon Page 59 of 101

60 Description of the measure The City of Bergen shall pursue a longterm parking policy that is coordinated with the need for value creation in business, industry and culture, while at the same time taking account of and complying with environmental land use and transport policies. The parking policy shall contribute to good accessibility in Bergen city centre. The following strategies shall form the basis for parking measures: Parking charges Reduction of surface parking Residential zone spaces 3,230 Public parking spaces 5,529 21% 36% 43% Private parking spaces 6,462 Figure 3.1 Breakdown of parking for passenger cars in Bergen city centre. Environmental improvements Work to achieve overall accessibility that results in good traffic solutions for public transport, commercial transport, car traffic, pedestrian and bicycle traffic Developing measures targeting businesses and individuals (known as mobility management). In summer 2011, the Agency for Planning and Geodata registered the parking situation in Bergen city centre. To the extent that areas and properties were available, all forms of parking were registered. The aim of the registration was to gain an overview of parking facilities and the parking situation in Bergen city centre. A total of 15,200 parking spaces were registered in the central area of Bergen, in addition to just under 170 disabled parking spaces. Publicly available spaces account for 43 per cent of the parking spaces in the city centre area. Bicycle parking facilities were also registered, and there are about 3,500 such spaces in the city centre area. No distinction was drawn between private and publicly available bicycle parking. Park-and-ride facilities as a measure to improve air quality Park-and-ride facilities can be a relevant way of facilitating the transition from travel by car to public transport. If this measure is to have a significant effect on the extent of transport and emissions, it must be part of a strategy aimed at moving parking from the city centre to parking spaces near public transport hubs in the suburbs. Unless park-and-ride is combined with restrictions on parking in central areas, the net effect can be an increase in the use of cars on the outskirts of the city, which will have little impact on the amount of traffic to central parts of the city. The availability of parking is of major importance in relation to car use. There is a close connection between the number of cars on the road and the number of parking spaces. Although there is some driving around looking for a parking space, it is generally possible to regulate the number of cars by regulating the number of available parking spaces, how long and where it is possible to park in relation to relevant destinations, and by restricting who can use the parking spaces. Engelsk Tiltaksutredning luftkvalitet Bergen kommune-versjon Page 60 of 101