The world is moving - rapidly. Since 2000, total global passenger and
freight movements have increased by an average of 4% per year, and as a
result, global transport energy use increased 30% during the past
decade. People and freight have also changed how they move. In 2000,
there were roughly 625 million passenger light-duty vehicles (PLDVs)
around the world. By 2010, that number had reached nearly 850 million
PLDVs. The effects of growing travel demand and increasing shifts to
private motorisation are particularly evident in urban areas. Throughout
the world, urban roadway congestion threatens the ability of cities to
sustain long-term economic growth. Congestion alone costs countries
billions of dollars in wasted time. Motorised vehicle traffic also has
significant adverse effects on environmental quality and health and
safety in cities. These issues are unlikely to diminish in a
“business-as-usual” future. In fact, they are likely to worsen. The IEA
expects global travel (in terms of passenger and freight-tonne km) to
double by 2050 and corresponding transport energy use and emissions to
increase 70% between 2010 and 2050, despite expected vehicle technology
improvements. Global motorised vehicle stock is expected to double, and
subsequent roadway occupancy levels are projected to increase as much as
six-fold in some countries (IEA, 2013).
In effect, the world has reached a turning point. The 19th and 20th
centuries changed how we move through rapid transit and private
motorisation. The 21st century now must address how to move people and
goods most efficiently in an energy-, budget-, time- and
space-constrained world.
Achieving energy efficiency improvements in urban transport systems
is not always easy. Yet, already many cities across the globe are
tackling the urban challenge head on. This policy pathway describes the
broad policy measures designed to address urban transport issues in more
than 30 cities. In-depth case studies are included for three cities –
Belgrade, New York City and Seoul – to demonstrate how common responses
can be applied in very different local contexts to achieve transport
system improvements. Based on these case studies and the experiences
from other cities highlighted in this report, the pathway proposes ten
critical steps that local and national governments can take to develop,
implement and evaluate key urban transport system policies. Urban
transport energy efficiency policies can be grouped into three broad
categories: those that allow travel to be “avoided”; those that “shift”
travel to more efficient modes; and those that “improve” the efficiency
of vehicle and fuel technologies. This package of policies contributes
to what is known collectively as an “avoid, shift and improve” approach
(GTZ, 2004).
- “Avoid” policies address transport energy use and emissions by
slowing travel growth via city planning and travel demand management.
“Avoid” policies also include initiatives such as virtual mobility
programmes (e.g. tele-working) and implementation of logistics
technology.
- “Shift” policies enable and encourage movements from motorised
travel to more energy efficient modes, such as public transit, walking,
cycling and freight rail. For example, increases in affordable, frequent
and seamless public transport can alleviate local congestion while
improving access and travel time to destinations and reducing household
expenses on travel.
- When motorised travel is necessary, “improve” policies can reduce
energy consumption and emissions of all travel modes through the
introduction of efficient fuels and vehicles. “Improve” policies include
tightened fuel-economy standards and increased advanced-vehicle
technology sales (e.g. clean diesel trucks and hybrid and plug-in
electric cars).
The IEA estimates that between now and 2050, the “avoid, shift and
improve” approach could lower total global expenditures on vehicles,
fuels and transport infrastructure by as much as USD 70 trillion (IEA,
2012b). These savings come both from reduced spending on oil in the
transport sector, as well as from reduced capital and operational
expenses on vehicles and the world’s rapidly growing roadway
infrastructure.
Which policies to put in place to improve the energy efficiency of an
urban transport system depends on the city context and its transport
needs. To assist policy makers, this policy pathway has devised a
typology of four common city transport contexts within the land-use and
travel framework. The four contexts (developing, sprawled, congested and
multi-modal cities) describe some of the general travel trends and
transport system issues facing cities across the globe. Variations to
each of the four contexts exist, but the framework outlined in this
pathway is a useful typology of common transport issues and
corresponding policy measures for cities across the globe.
Developing cities
Context: Rapidly developing cities are experiencing increasing demand
for transport services and rapid growth in private motorisation.
Developing cities can have relatively low densities and often have
inadequate travel infrastructure, especially for non-motorised transport
modes (e.g. walking and bicycling), and weak public transit services
(e.g. unregulated, poor quality bus operators). Combinations of
convenience, inexpensive and subsidised fuels, poor public transit
services, and increasing distances due to urban sprawl encourage growth
in private motorisation. As a result, developing cities generally
experience increasing roadway congestion, rising travel injuries and
fatalities, more local air pollution and large disparities in access to
transport, employment and social services.
Solutions: Developing cities often still have a rare opportunity to
direct land use and travel growth toward energy efficient transport
systems before urban form and transport network development are strongly
established. Target policies include regulations that discourage or
penalise sprawling development (e.g. minimum density thresholds and
urban zoning laws) and land-use initiatives that prioritise dense urban
cores, such as transit-oriented development. Transport infrastructure
development (e.g. dedicated spaces for pedestrians and public transit
networks) can help to steer growth in travel demand toward more energy
efficient modes while improving access to destinations and travel
choice.
At the same time, infrastructure development and land-use policies
should be paired with well co-ordinated, complementary travel demand
management policies to ensure that improvements are accessible,
affordable and attractive (i.e. competitive with private motorisation).
Policies include formalising and regulating public transport operations,
increasing service quality and frequency on public transport networks,
and discouraging private motorised travel (e.g. removal of fuel
subsidies and implementing vehicle registration fees). Additional tools
to combat growing motorisation include policies such as road pricing and
eco-driving programmes. Improve policies (e.g. fuel-economy and
emissions standards enforced through mandatory inspections) should help
to increase energy efficiency of motorised transport while improving
local air quality.
Sprawled cities
Context: Sprawling cities tend to have low densities and high urban
and suburban sprawl. They often have poorly-defined urban cores with
commercial and business hubs spread intermittently throughout the urban
and metropolitan areas. Public transit use and non-motorised transport
shares tend to be low, while private motorised transport tends to be the
primary means of travel. These cities may have difficulty providing
efficient and cost-effective public transit services because of long
distances between destinations. Local congestion, especially during
commuting hours, is high in sprawling cities, and road infrastructure
often requires heavy investments and maintenance as a result of
extensive, highly travelled networks. Local air pollution and road
safety are also common issues of concern.
Solutions: Low densities, urban sprawl and heavy traffic in sprawling
cities require strategic, comprehensive planning and policy actions.
Transitioning to a denser urban environment that supports more efficient
transport generally requires years of planning and development,
especially in cities where urban form is well established. For this
reason, medium- and long-term development goals are critical in
addressing travel demand. Land-use policies that address denser
development, such as density credits and unified regional planning
guidelines, can help to discourage continued sprawl and increase urban
core development. Long-term zoning strategies, builder incentives and
tax credits for business relocation are examples of policies that
encourage urban densification.
In the shorter term, policies that improve existing transport and
prioritise shifts away from private motorised travel are important.
These policies can include travel demand management programmes, such as
parking reform and road pricing, as well as tools that focus on
improving transport and travel flow (e.g. advanced traffic signal
control and buyer incentives for alternative vehicle technologies). At
the same time, policies that improve roadway travel can have rebound
effects (i.e. increased motorisation due to improved travel flow).
Short-term system improvements, therefore, should seek to serve or at
least complement long-term objectives rather than temporarily relieve
existing transport problems. These improvements include supporting
travel choice (e.g. park-and-ride stations), addressing shortcomings in
existing public transport networks (e.g. redesigning bus routes and
frequencies) and building more efficient travel infrastructure, such as
BRT and light rail. Additional policies include incentives that
encourage shifts away from private vehicles (e.g. employer tax credits
for providing public transit passes).
Congested cities
Context: Heavy roadway traffic, especially during peak travel hours,
is common in congested cities. Congested cities generally have medium to
high densities and strong urban cores, although urban sprawl may exist
in surrounding metropolitan areas. Congested cities can have extensive
transit systems and high public transport modal shares. However, heavy
traffic levels, often paired with increasing motorisation, can lead to
daily gridlock throughout these cities. Numerous causes, including poor
or diminishing public transport, fuel subsidies, free or subsidised
parking, and high levels of funding for roadway networks, all can
contribute to the preference to use private motor vehicles. Zoning
policies (e.g. housing and employment mismatches) can also encourage
private vehicle use. Local air pollution, road injuries and travel
fatalities can be major issues in these cities.
Solutions: Heavy traffic makes getting around in congested cities
very difficult. Travel demand management policies are useful tools to
improve and facilitate shifts to more energy efficient travel while
improving existing travel movements. Policies that discourage vehicle
ownership (e.g. vehicle quotas and vehicle registration taxes) and
private motorised travel (e.g. road pricing and parking fees) can help
to reduce or stabilise increasing traffic levels. Improved
travel-management technologies, such as advance traffic signalisation
and real-time travel information, can help to improve mobility and
system flow, while incentives (e.g. rideshare incentives) can encourage
additional shifts to more efficient travel.
In the short term, policies and programmes that respond to existing
gaps in travel networks (e.g. seamless connections between travel modes)
can help to improve passenger travel and encourage shifts away from
private motorised vehicles. The policy tools are even more effective
when paired with travel demand management measures. Medium- to long-term
policies that address transport system development (e.g. increased
funding streams to develop and improve public transport services) and an
improved land-use transport interface (i.e. improved match between
travel demand and destination) will encourage longer-term shifts to more
efficient travel.
Multi-modal cities
Context: These cities typically have high densities, strong urban
cores, and high public transit and NMT shares. Multi-modal cities
generally have strongly interconnected, well-developed travel networks,
which facilitate and encourage more efficient travel. Mixed land-use
development paired with a high level of public transport services means
that travellers generally have good access to energy efficient modes and
a choice of different modes depending on their preferences and needs.
Many multi-modal cities have dedicated spaces for more energy efficient
travel modes, such as bus and cycling lanes. A key feature of these
cities is also public transport terminals (e.g. train stations, or bus
terminals) where several modes of public transport can be seamlessly
accessed by users. In addition, these cities often have implemented
policies that discourage driving, such as caps on parking (i.e.
limitations on parking development), road pricing schemes and car-free
zones.
Solutions: They often have strong public transit systems and dense
urban cores, but they can still achieve additional efficiency
improvements. Policies that improve traffic flows and travel options can
encourage greater shifts to more efficient modes and increase
efficiency of the entire transport system. These efforts include
development of dedicated facilities for energy efficient modes (e.g. bus
and cycling lanes) and investments in vehicle technology improvements
for both public and private vehicle fleets (e.g. CNG buses and “green”
taxi programmes).
Travel demand management policies are particularly useful in
multi-modal cities to maintain or improve travel shares by more
efficient transport modes. Examples of policies used to achieve
additional improvements in transport system efficiency include
transit-incentive programmes, car-free zones, parking levies and road
pricing schemes. Cities are increasingly turning to technology to
improve urban travel and transport efficiency. This technology includes
“real-time” updates of road conditions and transit arrivals, smart-phone
travel applications and online journey calculators. Other practical
tools, such as geospatial analysis software, can help cities to identify
gaps in transport services and infrastructure (e.g. proximity to
transit and sidewalk access to bus stops).
The pathway to improving energy efficiency in the urban transport
system includes four stages – plan, implement, monitor and evaluate –
with ten critical steps. The steps were developed from experiences drawn
from successful policy implementations and expert input from
practitioners. The examples represent a wide variety of transport
systems, as well as a broad range of urban environments, local travel
needs and economic contexts. Throughout the text, real-life examples are
also given to demonstrate policy responses and lessons learned from
cities across the globe.
This policy pathway is divided into four sections. The first section
introduces why improving the energy efficiency of urban transport
systems is important.
The second section provides illustrative “real-life” case studies of
urban transport policies implemented in Belgrade, New York City and
Seoul and distils learning that can be applied to other city contexts.
The third section analyses barriers to improving urban transport
energy efficiency and the key polices (including interventions and
measures) to overcome them. These barriers include policy and market
failures; lack of access to financing; and other challenges, such as
political resistance and institutional capacity.
The fourth section sets out ten detailed steps for supporting the
development, financing, implementation and evaluation of policies to
improve the energy efficiency of urban transport systems. These steps
follow the plan, implement, monitor and evaluate approach applied in all
the IEA Energy Efficiency Policy Pathways series.