opportunities for climate and clean air action in urban road transport … · 2020. 10. 17. ·...
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LowCarbonTransportQuickWinsOpportunitiesforClimateandCleanAirActioninUrbanRoadTransportinLowIncomeCountriesinAfricaandAsia
GaryHaqJune2020
LOWCARBONQUICKSWINS:OPPORTUNITIESFORTRANSPORTANDCLIMATEACTIONINAFRICAANDASIA
ThisresearchwasfundedbyUKAIDthroughtheUKDepartmentforInternationalDevelopmentundertheHighVolumeTransportAppliedResearchProgramme,managedbyIMCWorldwide.
TheviewsexpressedinthisdocumentdonotnecessarilyreflecttheUKgovernment’sofficialpolicies.
ReferenceNo. HVT/028
LeadOrganisation/Consultant GaryHaqPartnerOrganisation(s)/Consultant(s) None
TitleLowcarbonquickwins:opportunitiesforclimateandcleanairactioninurbanroadtransportinlowincomecountriesinAfricaandAsia
Typeofdocument ConceptPaper
Theme Lowcarbontransport
Sub-theme Urbantransport
Author(s) GaryHaq
GeographicalLocation(s) AfricaandSouthAsia
Abstract
TheclimateemergencytogetherwiththeCOVID-19pandemicprovideauniqueopportunitytomakeurbantransportmoreresilient,reducegreenhousegas(GHG)emissions,achieveliveablecities,secureprosperityandboostlivingstandards.RapidmotorisationinLICsinAsiaandAfricaisexpectedtoincreasetheircontributiontototalglobaltransportGHGemissions,threateninginternationalclimateobjectivesifnoactionistaken.Thetransportsectorisalsoamajorcontributortofineparticlepollutioninmajorcitieswithtoxicoutdoorairpollutionkillingupto3.4millionpeopleeachyearworldwide.Deathrateshaverisenascountriesshiftformlowtomiddle-incomecountries.
LowincomecountriesinAfricaandAsiacantakeanumberofshort-tomedium-termlowcarbonroadtransportmeasuresthathavethepotentialforrapidclimateandcleanairbenefits.Thispolicynoteoutlines10lowcarbontransportquickwinsidentifiedbytheDFIDHVTProgrammethatcanreduceGHGemissionsforbothpassengerandfreightroadtransportwhileofferingsustainabledevelopmentbenefits(e.g.improvedairquality,accessibility,efficiency,safetyandenergysecurity).Fourrecommendationsaremadetoachieveclimateandairco-benefitsinlowincomecountries:(1)exploitthepost-COVID-19recoverytopushforwardlowcarbontransporttransformation;(2)targetfinanceforlowcarbontransportinthepost-COVID-19recovery;(3)raisethelevelambitionofNDCsbyincludinglowcarbonquickwinsforroadtransport;and(4)ensurebettercoordinationbetweentransport,energyandenvironmentandplanningagencies.
Keywords NDCs,low-carbontransport,lowcarbontransportquickwins,ParisAgreement,SDGs,AvoidShiftandImprove(A-S-I)
Funding DFID/UKAID
AcknowledgementsTheauthorisgratefulfortheinsightfulcommentsanddiscussionsofferedbyHolgerDalkmann,JeffTurner,LucaPetrarulo,BertFabian,DieterSchwela,JohnWhiteleggandSergioMissana
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LOWCARBONQUICKSWINS:OPPORTUNITIESFORTRANSPORTANDCLIMATEACTIONINAFRICAANDASIA
EXPLOITINGCLIMATEANDCLEANAIRCO-BENEFITSINTHETRANSPORTSECTORTheclimateemergencytogetherwiththeCOVID-19pandemicprovideauniqueopportunitytomakeurbantransportmoreresilient,reducegreenhousegas(GHG)emissions,achieveliveablecities,secureprosperityandboostlivingstandards.
Transport,accessandmobilityarekeytosustainabledevelopmentinmanylow-incomecountries(LICs)inAfricaandAsia.Yet,globaltransportGHGemissionsarerisingfasterthananyothereconomicsector.[1]
RapidmotorisationinLICsinAsiaandAfricaisexpectedtoincreasetheircontributiontototalglobaltransportGHGemissions,threateninginternationalclimateobjectivesifnoactionistaken.
Far-reachingtransitionsintransportandaswellasothersectorsarethereforerequiredtoadapttoachangingclimateandtoreduceemissionstoavoidfurtherclimatechange.The2015UnitedNations(UN)ParisAgreementsetoutaglobalactionplantolimitglobalheatingtobelow1.5°Candavoidrisks
tohealth,livelihoods,foodsecurity,watersupply,humansecurity,andeconomicgrowth.[1]
RaisingtheambitionoftransportmeasuresinNationallyDeterminedContributions(NDCs)icanunleashthetransportsector’spotentialtomeetglobalclimateobjectives.Thiscouldbeundertakenby(i)settingemissionsreductiongoalsforthetransportsectorincludingtargetsforspecificsub-sectorssuchascars,roadfreight,andaviation;(ii)includingabalancedapproachofallAvoid-Shift-Improvemeasures;(ii)incorporatingclimatechangeadaptationandresilienceintotransportsystems;and(V)aligningnationalfinancingandinvestmentstrategiestodecarboniseandclimateprooftransportsystems.[2]
Thetransportsectorisalsoamajorcontributortofineparticlepollution(PM2.5)incities.InAfrica,roadtransportPM2.5emissionsareexpectedtoincreaseby40%by2030comparedto2012.[3]Pollutingdieselvehiclesareakeysourceofblackcarbonwhichcanhavedirectandindirectimpactsontheclimate,glacialregions,agricultureandhumanhealth.
Toxicoutdoorairpollutioniskillingupto3.4millionpeopleeachyearworldwide,withdeathratesrisingascountriesshiftformlowtomiddle-incomecountries.[4]Forexample,inAfricaoutdoorairpollutioncauses780,000deatheachyear.[5]
Althoughindoorairpollutionisamajorkiller,vehicletail-pipeemissions(PM2.5)areresponsibleforabout385,000prematuredeathsglobally(2015)equalto11%ofairpollutiondeathsandacostofUSD1trillioninhealthdamages.[6]RecentevidencesuggeststhatlongtermexposuretoairpollutionmaybelinkedtohigherCOVID-19deaths.[7][8]However,itistooearlytosaythatairpollutionisanadditional,orunaccountedfor,effectonCOVID-19,beyonditbeingancontributortounderlyingdiseaseinthepopulation.
i EffortsbyeachcountrytoreducenationalemissionsandadapttotheimpactsofclimatechangeundertheUnitedNationsFrameworkConventiononClimateChange.
AfricanandAsiaLICscantakeanumberofshort-tomedium-termlowcarbontransportmeasuresthathavethepotentialforrapidclimateandcleanairbenefits.
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LOWCARBONQUICKSWINS:OPPORTUNITIESFORTRANSPORTANDCLIMATEACTIONINAFRICAANDASIA
TheCOVID-19pandemicproduceda17%temporarydropindailyglobalcarbondioxide(CO2)emissionsbecauseofforcedconfinement(sinceearlyApril2020),withhalffromchangestoroadtransport.Zeroemissionmobilitysuchaswalkingandcycling,includinge-bikesprovidesocialdistancingandcouldbedesirableforsometimeasconfinementiseased.However,thetransportsectoremissionsarelikelytoraisefasterifgovernmentresponsesdonotusetheopportunitytochangetravelbehaviour.[10]Thepost-COIVD-19pandemicprovidesanopportunityforlowcarbonandzeroexposuretransformationofthetransportsectoraspartofacomprehensiveemissionreductionstrategy.[9]
Takingactiontoaddresstransportemissionsimprovesurbanairquality,mitigatesclimatechangeandcontributestotheUNSustainableDevelopmentGoals(SDG)suchasreducingroadtrafficfatalities.The17SDGsaimtoendextremepovertyandcreateahealthy,sustainableworldbytheyear2030.HealthandwellbeingofpeopleandtheplanetisattheheartoftheSDGssuchashalvingthenumberofroadtrafficfatalitiesandinjuries.Thecontributionoftransporttotheroadtrafficdeathsandinjuriesandairpollutiondeaths,togetherwithitscloselinkstoclimatechange,meansitisathreattotheSDGvisionofabetterworld.
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LOWCARBONQUICKSWINS:OPPORTUNITIESFORTRANSPORTANDCLIMATEACTIONINAFRICAANDASIA
LOWCARBONTRANSPORTQUICKWINSLowcarbontransportquickswinshavehighclimatechangeemissionreductionpotentialandcanplayanimportantroleinthedecarbonisationoftheroadtransportsector.SlocatundertookareviewoftransportpolicymeasuresonbehalfoftheUKDFIDHighVolumeTransport(HVT)programme.BasedonaconsultationoftransportstakeholdersinnineLICsinAfricaandAsia,Slocatidentified10lowcarbontransportquickwinstoachieverapidemissionreduction.[11]WhilethesemeasureshavebeenidentifiedforAfricanandAsiaLICs,theyalsoapplytodevelopedcountriesandotherregions.
Lowcarbontransportquickwinsareshort-tomedium-termactionsthatcanreduceGHGemissionsforbothroadpassengerandfreighttransport,offersustainabledevelopmentbenefits(e.g.improvedairquality,accessibility,vehicleefficiency,roadsafetyandenergysecurity),includeAvoid-Shift-ImprovemeasuresandreflectthelocaltransportsystemcontextofLICs.
Othertransportpolicymeasures(e.g.improvedpublicandinformaltransport,speedmanagementandelectricvehicles)areavailable,butthese10lowcarbonquickwinslistedhereareconsideredbytransportstakeholderstohavethegreatestrelevancetoLICstoimproveurbanairqualityandcontributetolong-termclimatetargetsundertheUNParisAgreement.
QuickWin MitigationPotential Practice
FossilFuelSubsidyPhaseOut
FossilfuelsubsidiesinSub-SaharanAfricaareestimatedtoaverage5%ofGDP.Removaloffossilfuelconsumptionsubsidiescouldresultinan8-12%reductioninglobalGHGemissionsby2050.[12]TheInternationalEnergyAgency(IEA)seetheremovaloffossilfuelsubsidiesasaprerequisiteforcarbontaxation,whichhasthepotentialtoraisesubstantialclimatefinanceforLICs.
FuelsubsidyreformhasthepotentialforIndiaandIndonesiatoachieve1-9%inGHGsavingsby2030.
FossilfuelsubsidyreformisbeingintroducedincountriessuchasAngola,Ghana,Kenya,NigeriaandUganda.
Bangladesh,IndiaandNigeriahaveincludedFossilFuelSubsidyreforminnationalclimatechangestrategies.
National/UrbanSustainableMobilityPlans
Urbantransportemits25%oftotaltransportsectoremissions.Sustainableurbanmobilityplansfocusonnon-technologicaloptions(e.g.avoidingtheneedtotravel,movingtoenvironmentallymodes)whichcancontributetoa2-40%reductioninemissionsby2050.
Cameroonisadoptingnationalandcityurbanmobilityplans.ThecitiesofDoualaandYaoundéadoptedasustainableurbanmobilityplanin2019.
FuelEconomyStandardsandPolicies
Improvingvehiclefueleconomydeliversfinancialsavings,lowerscarbonemissions,reducesoildependenceandimprovesairquality.Regulationofthefueleconomyofdieselandpetrolvehiclesareneededifclimatetargetsaretobeachieved.
In2018,ASEANcountriesadoptedthefueleconomyroadmapfortransport.In2020,WestAfricaEnvironmentMinistersadoptedthefirstregionalfueleconomyroadmap.China,India,Kenya,MauritiusSriLanka,SouthAfricaThailandandVietnamhaveallimplementedfuel
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LOWCARBONQUICKSWINS:OPPORTUNITIESFORTRANSPORTANDCLIMATEACTIONINAFRICAANDASIA
economypolicies.
DieselQualityStandards
Dieselroadvehiclesandshipsareresponsiblefor19%ofglobalblackcarbonemissions.[16]Usinglow-sulphurfuelsandcleanerdieselvehiclestandardscanreduceblackcarbonemissionsandavoidanestimated500,000prematuredeathgloballyeachyear.[17]
In2019,SouthernAfricanDevelopmentCommunity(SADC)countriesagreedtoreducesulphurlevelsinfuelsto50ppmorlessbyend2022forimportingcountriesand2025forrefiningcountriesandto10ppmfrom2025-2030forallcountries.
LimittheImportofPollutingSecond-handVehicles
Fuelefficiencyofvehiclesdeclinesafter15yearsofuse,upto50%by25years.Vehiclesthatmeetminimumemissionstandardsinexportingmarkets,whencombinedwithcleanfuelsandregularmaintenance,havethepotentialtolowertheimpactofroadtransportintermsofCO2andnon-CO2emissionsinallmarkets.Regulationthereforeiskeytocontrollingthequalityofusedvehicleimportsinlinewiththeimportingcountry’saspirations.
CarownershipinAfricaisdrivenbytheimportationofusedvehicles.However,fewAfricancountriesplacerestrictionsonimportedusedvehicles.Incontrast,someAsiancountries(e.g.Nepal,Pakistan)doregulatetheimportationofusedvehicles.
ElectricTwo-andThree-WheelersandElectricBicycles
Electrificationofelectrictwo-andthree-wheelersande-bikescanimproveairqualityandreduceGHGemissions.Fulldecarbonisationoftwo-andthree-wheelersisnecessarytokeepbelow2°Cglobalheating.OftheCO2savingsfromelectricvehiclesgloballyin2017,80%wasduetoe-bikesinChina.
Two-andthree-wheelersarethefastestgrowingtransportmodeinmanyLICs.WhileAsiahasthehighestshareoftheglobalmotorcyclefleet,growthratesofmotorcyclesinmanyAfricancountriesareincreasing.Ethiopia,Morocco,Kenya,Rwanda,UgandaandPhilippines,ThailandandVietnamareundertakingE-initiatives.
Low-EmissionZones
AccesstoLowEmissionZonesisrestrictedtovehiclesthatmeetspecifiedemissionstandardsandreducepollutingemissions.Anyvehiclethatfailstomeetthesestandardsmaybeeitherexcludedfromenteringthezoneorwillbechargedafeetoenter.Lowemissionszonesimproveairqualitywhilethedeploymentofelectricvehiclescanprovideadditionalclimatebenefits.
LowEmissionZoneshavebeenadoptedbyEuropeancitiesandsomeAsiacities(e.g.China).InEuropeanUnioncities,lowemissionszonescitiesresultedinareductioninfineparticulatematteremissions.[13]
WalkingandCyclingInfrastructure
A370kmnon-motorisedtransport(NMT)networkcouldincreasecyclingby7%(CapeTown)andwalkingby40%(Nairobi).TheclimatevalueofNMTpresentsanopportunityforAfricancities,andtheglobalcommunity,toachievecollectiveclimate-relatedgoals.
In2019,ZambiahasadoptedaNMTstrategytoimprovedaccessthroughsustainabletransportmodesincludingwalking,cycling,andpublictransport.IndonesiahaspublishedaNationaldesignandplanningtheforguidepracticalaasGuidelineand
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LOWCARBONQUICKSWINS:OPPORTUNITIESFORTRANSPORTANDCLIMATEACTIONINAFRICAANDASIA
areasurbaninNMTforinfrastructureofstakeholdersatthecitylevel.
RoadPricing Roadpricing(e.g.roadtollsandcongestioncharging)appliesdirectchargesfortheuseofroadstomanagetraveldemand.Congestionchargingandparkingmanagementcanalsoinfluencevehicleuse.[14][15]CongestionchargingcanreduceGHGemissionsfrom15-20%,lowertrafficcongestionby13-30%andimproveairquality.
InSingapore,congestionchargingandCO2-basedvehicletaxationtogetherwithothermeasureshassuccessfullyreducedtransportemissions.[1]Kenya,TanzaniaandUganda,andSouthAfrica,haveintroducedroadtollcharges.
GreenFreight Measuresaimedatimprovingtheefficiencyoffreightlogistics(e.g.urbanconsolidationcentres,platooning,retimingdeliveries,etc.)couldachieve5-10%reductioninemissions.
Greenfreightprogrammescouldreducefuel,increaselogisticsefficiencyandreduceGHGemissions.However,theimplementationofsuchprogrammesespeciallyurbanfreightisstillatanearlystageinmanyLICs.
In2017,theNorthernCorridorGreenFreightstrategywaslaunchedcoveringthesixcountries(Kenya,Uganda,Rwanda,Burundi,SouthSudanandtheDRofCongo)toimprovefuelefficiencyandreducetransportemissions.
TheGreenFreightInitiativeintheGreaterMekongSubregionisimprovingfuelefficiencyandreducingcostsandemissionsoftruckingcompanies.
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LOWCARBONQUICKSWINS:OPPORTUNITIESFORTRANSPORTANDCLIMATEACTIONINAFRICAANDASIA
RECOMMENDATIONSFORCLIMATEANDCLEANAIRACTION1. Exploitthepost-COVID-19recoverytopushforwardlowcarbontransporttransformation
• TheCOVID-19crisisprovidestheopportunitytorevisittransportpolicypost-crisis(e.g.nationalpolicyforthenewfinancingofsidewalksandpop-upbikelanes)andtoshowleadershipinencouragingwalkingandcycling.
• Apost-COVID-19recoverycansupporturbanmobility,exploitcleanervehicletechnologies,digitaltransportandlogistics,infrastructuredevelopmentandpromotelowemissionmobilityforall.
• Transportsystemsshouldproducelowemissionandbeclimateresilient.Thisrequiresreducingthevulnerabilityofatransportsystemtoclimatechange(basedonlocationandthereforeitsexposureandsensitivitytoclimatechange),reducingpollutingemissionsandincreasingitsadaptivecapacity(i.e.itsresourcesforcopingwithimpactsandminimisingdamage).
2. Targetfinanceforlowcarbontransportinthepost-COVID-19recovery
• Targetingfinanceatlowcarbontransport(especiallyprovisionofcyclingandpedestrianinfrastructure)togetherwithtraininginpreparingfundingproposals,canensuretheprovisionofthenecessarybudgettoimplementprojects.
• Informalandformalpublictransportsystemprovidesaccesstojobsandamenitiesandaneffortshouldbemadetoensurethissectorsurvivespost-COVID-19.
• Morefundingforresearchandpromotionoflowcarbontransportcanassistinthedecarbonisationofthetransportsectorinthepost-Covid-19recovery.
3. RaisethelevelambitionofNDCsbyincludinglowcarbonquickwinsforroadtransport
• UndertheUNParisAgreementcountriesareduetosubmittheirupdatedNationallyDeterminedContributionsin2020outliningnationaleffortstokeptglobaltemperaturebelow1.5°C.
• LowcarbontransportquickwinscanformpartoftheAvoid-Shift-Improvestrategiestoachieverapidemissionreductions,equitableaccessandclimateandcleanairco-benefits.
• ConnectnationallevelambitioninNDCstowhatcanbepracticallybeachievedattheindividualprojectandpolicyleveltoimplementandoperatelowcarbontransportsystems.
4. Ensurebettercoordinationbetweentransport,energy,environmentandplanningagencies
• Greaterinter-agencycoordinationcanconnectnationalclimateambitionwithmetropolitanandcityleveltransportplanningandimplementationtoensurecompacturbangrowth,increasedprovisionofpublictransportinfrastructureandnon-motorisedtransportuse
• Institutionalreformcanimprovecoordinationandeffectivenessofvariousstakeholdersinimplementinglowcarbontransportpolicies(e.g.accountableurbantransportauthorities;empoweredregulatoryframeworks;securesourcesoffundingforfleetandinfrastructureimprovements;apublictransportindustryamenabletoregulatorycontrolandfleetinvestments).
• Coordinatingbodiescanplayakeyroleinadvancinglowcarbontransport,actaschampion,regardingtheintroductionofnewtransporttechnologies(e.g.electricmobility).Thiscanprovideopportunityforstrengtheninginstitutionsandcapacitybuilding.
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AcknowledgementsThispolicynotewasfundedbyUKAIDthroughtheUKDepartmentforInternationalDevelopment(DFID)andmanagedbyIMCWorldwide.ItwasalsofundedbytheClimateParliament.TheauthorisgratefulfortheinsightfulcommentsanddiscussionsofferedbyHolgerDalkmann,JeffTurner,LucaPetrarulo,BertFabian,DieterSchwela,JohnWhiteleggandSergioMissana.
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