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Reviews
Cleaner air and better transport: making informed choices

Alan Armstrong-Wright has over 40 years of experience in dealing with urban transport throughout the world. He started his career in the Hong Kong Public Works Department, where he was involved mainly with transport projects. From 1978 to 1982, he was the Hong Kong Commissioner for Transport. In that role he was also a director of three franchised bus companies. In 1982, he became the Urban Transport Advisor at the World Bank in Washington and for five years provided a lead role and advice on urban transport projects and policy. In his present role he continues to provide advice and technical assistance on transport projects for the World Bank, European Bank (EBRD), and various governments.

There are several very difficult, and in some cases unpopular, choices to be made in dealing with the vexed problems of traffic pollution and congestion. These choices will be almost impossible to implement unless they have the understanding and support of the travelling public. This book has been very effectively designed to do just that. The author's style is to be commended in providing a very clear and concise examination of the topic so that the issues can be easily understood by the public. For the same reasons, this slim book should also appeal to busy politicians who may not be experts in the subject, but who are, nonetheless, charged with "making informed choices".

The book commences with an insight into the dangerously high levels of air pollution found in cities, mainly attributed to road vehicles. It outlines the causes and occurrence of the six most common air pollutants found in cities. The section dealing with the effects of these on our health, with numerous examples, makes particularly alarming reading. How transport contributes to air pollution is well explained in layman's terms.

Clearly, in Indian cities, a high level of air pollution is created by the thousands of older model cars, two-stroke autorickshaws, scooters, motorcycles, and mopeds. Diesel-powered buses and lorries, particularly if poorly maintained, also greatly contribute to the problem.

The author rightly explains that the level of pollution in any city is due not only to the numbers of vehicles but also to the way they are driven. Frequent slowing, stopping and starting in congested traffic adds very significantly to the level of air pollution. In keeping with findings in cities around the world, the author explains why use of public transport must be encouraged and use of private transport discouraged. Some authorities would go further and say that use of private vehicles should be positively restrained!

The centre piece of the book is the development of seven basic strategies to reduce air pollution. These are illustrated by practical examples selected from around the world. This section recognizes that the dilemma is to reduce pollution while at the same time meeting the travel needs of a large population. Very briefly, the seven strategies are as follows.

1 Reduce the demand for travel
This strategy explains in detail the steps that need to be taken to encourage greater use of public transport by making it more attractive. The section also examines, but in far less detail, the opportunities for discouraging the use of private modes of transport. For example, there is only a very brief mention of road pricing. No matter how much public transport can be improved, it is unlikely to be able to compete effectively with the sheer convenience of unrestrained door-to-door private transport. So tough measures to restrain use of private transport need to be undertaken in parallel with improving public transport.

2 Manage travel demand more efficiently
This section rightly explains the need for good traffic management and the need to give priority to public transport.

3 Use fuels that do not contain polluting components
Here the author examines the benefits of modes such as walking, cycling and use of animal power. However, encouraging the use of horses, mules, and camels in large numbers in city streets does not seem such a good idea: the waste pollution problems would surely outweigh any benefits. (London was certainly a cleaner place after the demise of thousands of horse-drawn carriages at the turn of the last century!)

4 Use fuels that contain only traces of pollutants
The author points out that the use of low-sulphur diesel, which contains a fifth of the sulphur in the diesel used in India, would clearly reduce air pollution. The benefits of electric-powered vehicles and those powered by CNG (compressed natural gas) are also discussed.

5 Burn fuels more efficiently
This section advocates insistence on more stringent norms and provides interesting details of the likely effects of these in reducing air pollution in Delhi.

6 Trap the pollutants before they escape into the atmosphere
This strategy covers use of catalytic converters for petrol engines and devices to trap pollutants emitted by diesel-engined buses and trucks.

7 Prevent pollutants from spreading by use of barriers
This strategy is based on studies that show the extent to which trees trap particles likely to be a high health hazard. The author recognizes that face masks are a last resort, but with moped drivers inhaling seven times as much pollutants as motorists, they might well take note.

The final section of the book looks to the future and examines the use of information technology to provide road users with up-to-the minute data on traffic flow and advice on alternative routes.

The author recognizes the need for all these strategies to be integrated for better transport in cities. The lack of integration is not just a problem in Indian cities but occurs worldwide. The book ends with sound conclusions: focus on better transport; accord priority to buses; set performance objectives and promote equitable use of road space. The emphasis is that individuals should not only insist on the right to clean air but also need to be in a position to make informed judgement to add weight to collective public opinion. In this regard this book should be a great help by providing a clear and concise understanding of what needs to be done to reduce air pollution and traffic congestion.

Review by P G Patankar

Dr Patankar, in a distinguished career spanning nearly half a century, has held key positions in the transport sector: Director, Central Institute of Road Transport; Chairman-cum-General Manager, Delhi Transport Corporation; Deputy General Manager, Bombay Electric Supply and Transport; and vice-Chairman-cum-Managing Director, Maharashtra State Road Transport Corporation. He has published several monographs on urban transport. Currently, Dr Patankar works with the Tata Consultancy Services as Consulting Advisor.

I am happy that TERI has published "Cleaner air and better transport: making informed choices" emphasizing the need for a sustainable transport system in urban areas. Such a thought-provoking publication from a well known energy research institute must be welcomed at a time when cities are choking to death because of vehicular pollution. Seven strategies have been aptly proposed for ensuring cleaner air and better transport in cities. It is certain that in the first century of the next millennium, urban transport planning in the developing countries will have to be very different through new thinking, radical reorientation of policies, and decisive actions---all within the framework of total urban development. At present, cities in India share adverse conditions of accessibility, safety, comfort, convenience, cost, and environmental qualities. The introduction of motorized transportation and especially the automobile has generated social disparities in accessibility and it is becoming quite difficult for any improvement to restore the equity. Unfortunately, transport conditions are largely class-based. A few people with access to cars appear to impose serious damages such as delays to transit users, fatal traffic accidents, and air pollution. These damages are neither assigned nor compensated. If this broad approach in equity is acknowledged, it would warrant new approaches to policies for land-use, transportation, and traffic management. One can suggest "Social Equity Paradigm" in this respect.

The sustainability of the urban transport system must be considered as a critical part of the sustainability of the total urban system. This system is quite complex and calls for nationwide solutions based on the principles of sustainable society, which respects the environment. Important sustainability policy options are (1) mobilize funds from both direct and indirect beneficiaries in an equitable manner using the "Polluter Pays" principle and (2) provide subsidies not to all but in a well-targeted manner covering only the needy. This will optimize the use of available resources. Improvement in efficiency also calls for policy and institutional reforms guaranteeing unified actions to deal with the diverse problems: those that deal with all modes, networks, prices, land development, and control of atmospheric pollution; those which can intervene in the sphere of public and private transport; and those that can guide in the allocation of resources needed for sustained operation of the total system. In short, India urgently needs institutions that can intervene in a coordinated manner in decision-making, and more important, in fund allocations. This calls for strong metropolitan authorities having teeth.

A mistake that has been repeated often in the past is the effort to put the transport sector on a sustainable track through sectoral policies alone. Long-range solutions to transport-related problems that threaten sustainability can be effectively addressed only through intersectoral approach. Strategies should be evolved and brought to ensure inter-agency cooperation. The present urban transport systems are operating at suboptimal conditions and therefore, it is urgent that recourse is taken to information technology applications as early as possible, for planning as well as operations.

Depending upon the individual characteristics of each city, a combination of appropriate and pertinent policies may then be put together to form a comprehensive and integrated strategy aimed at balanced economic development ensuring congenial environment. A substantial expansion of city boundaries and much higher levels of industrial and commercial activity have accompanied the high population growth in these cities. These changes have placed new and heavy demands on their transport systems, demands that these cities have been unable to meet. Solving transport problems without environmental deterioration in all such cities has become one of the chief tasks confronting the Indian government, primarily because of the economic importance of these burgeoning cities and therefore, the TERI publication has come out not a day too early. It is certain that persons associated with urban transport planning have now a good friend and guide to be always kept on the table.

Review by S Gopikrishna Warrier
The Hindu Business Line, 25 September 2000

Pollution from fossil-fuel burning automobiles is supposed to add its bit to global warming. Now, that is for the future (need not necessarily be too distant). However, for the present the debates on what is causing urban pollution and how to solve it is causing much heat. In fact the discussions generate more heat than light.

The booklet recently published by the Tata Energy Research Institute (TERI) of New Delhi — first in its series of making `Choices for Sustainability' — manages to shed some light on automobile pollution in urban centres.

"Polluted air is a symptom, not a cause," states the TERI document. "The cause is the absence of a coherent, integrated policy for transport. Attempts to control air pollution without improving the way transport is managed in the cities is like dipping the thermometer in a bucket of ice to escape summer heat.''

It lists out seven basic strategies to reduce air pollution, aiming at a demand-side management. The seven steps are:

Reduce the demand for travel.
Manage travel demand more efficiently.
Use fuels that do not contain the polluting component at all.
Use fuels that contain only traces of pollutants.
Burn fuels more efficiently.
Trap the pollutants before they escape into the atmosphere.
Prevent pollution from spreading by putting barriers on the path.

Strong emphasis is on making public transport attractive to those who otherwise use their cars and motorcycles to work. Less personal transport, lesser vehicles emitting pollution and lesser traffic jams.

However, for this there is need for the public transport to be safer, more comfortable and more reliable. In addition to information on timings there is need for information on fares and signs at bus stands.

Of primary importance is the availability of information to the public so that they can make choices. Within India the BEST transport service of Mumbai has the most effective information system for the commuter. It even picks out the requested route on its web site.

On the other hand, the bus guide for Delhi stands frozen since 1989, and lacks in the details necessary for the commuters to take decision about their travelling.

"Public transport needs far more sophisticated marketing, selling different services to different segments,'' the publication states. While subsidised transport is necessary for the poorer section, there could be another section, which at present uses personal transport and is willing to pay more for specialised services. Despite the 'Greenline', 'Whiteline', 'Metroline' and the air-conditioned buses having come into Indian cities, there is still much more that can be done.

While on the one hand there is need for incentives for people to use public transport, there should be disincentives for using private transport. These could be through higher parking and thoroughfare toll. And to show decisively the policy favouring public transport some of the roads should be open only to buses during the peak hours.

The best way, of course, is to promote, wherever possible, the use transport with no pollution at all - walking and cycling. This could be dedicated passageways, etc.

Most of us automatically assume that such slow-moving vehicles as bicycles and cycle rickshaws are more likely to congest the roads. "This is a fallacy," states TERI. "A car needs roughly four times as much space as a bicycle when moving and as much as 16 times the space for parking."

If using no-pollution fuel is not possible, then at least fuel with less fuel should be used. Low-sulphur diesel can eliminate the smell and smoke normally associated with diesel engines. In addition to reduction in emission of carbon monoxide and oxides of nitrogen, it also cuts down on the emission of fine suspended particles. It is these particles that penetrate deep into the body's respiratory system.

With its first booklet in its `Choices for Sustainability' series TERI has put a perspective on urban pollution issues. Hopefully the coming ones will lay a clear road map to get policies in place in the Indian cities.

Review by Charles M Melhuish
Senior Transport Policy Specialist
Asian Development Bank, Manila, October 2000

Perhaps the most important emerging issue in the urban areas of the Asian region today is the decline in the quality of ambient air. Asia not only hosts two-thirds of the world’s population but is also experiencing rapid urbanization, and within the next 20 years more than 60 percent of the population will reside in urban areas. Growth in urban areas is one result of economic success as economies diversify and expand from primary production to provision of goods and services. In the past high levels of air pollution were closely associated with heavy industry particularly with the combustion of coal. Today as industries are using cleaner technology a new major source of air pollution is emerging, the emissions produced by motor vehicles. Across the region urban areas are increasingly characterized by choking levels of traffic: not only are many of the vehicles poorly maintained but they are often using old technology engines and poor quality fuels, factors which produce high emissions.

Cleaner Air and Better Transport in Cities a recent publication from the Tata Energy Research Institute is succinctly written and covers the diverse problems of vehicle emissions in an easy to read and digestible format. While the publication focuses on conditions pertaining in India its contents could apply to most cities and towns throughout the Asia region. Following brief backgrounders on how air pollution affects public health, and how the transport sector contributes significantly to deteriorating urban air quality, the publication focuses on seven important strategies that need to be addressed to mitigate pollution from transport sources. Some of these strategies are best implemented at the national level through the use of cleaner gasoline and diesel fuels. In certain instances the introduction of alternative less polluting fuels can be a viable option to reduce mobile sources of pollution. Similarly national agencies are better placed to require vehicle manufacturers to adopt improved technologies. Such technologies not only include the use of catalytic converters and particulate traps but also promote the use of cleaner engines. While significant reductions in emissions can be achieved through adopting these technical measures they need to be supported by policies to reduce the overall demand for travel and the number and length of vehicle trips, if cleaner air is to result in the long term. These policies are more difficult to achieve and require integrated land use and transport planning, provision and promotion of high quality, affordable public transport services combined with carefully constructed policies designed to reduce transport demand. Lastly there is the possibility to reduce the exposure of city residents to pollution through improved landscaping, reducing road dust and adopting control measures to minimize air pollution from various area based sources.

Tackling deteriorating air quality is not as straightforward as it appears. While many of the solutions are well known, success requires that the various strategies are implemented in an integrated and phased manner. Reducing pollution is only achieved at a cost and this requires the public to fully understand the primary benefits that result from cleaner air, namely, improved health and quality of life. This publication clearly identifies the important range of measures that need to be introduced in the transport sector, and they are applicable to all urban areas in the Asia region. Transport is already the major cause of poor air quality in most cities and without adequate precautions it will increasingly be the case in the future. Development planners across the region need to address air quality issues as a priority if the towns and cities in the future are to provide a quality of life that future generations will expect. TERI’s publication Cleaner Air and Better Transport in Cities provides an excellent synopsis of the air quality problems caused by the transport sector and the necessary remedial actions, and should be compulsory reading for national planners and city managers across the Asia region.

Review by B K Chapra
Scientist 'E', Central Institute for Road Transport, Pune
Indian Journal of Transport Management 24(11): 755-757

Air pollution issues have finally come of age in India today. The authorities have currently recognized the seriousness of the issue of environmental pollution and appropriate legislations have been in the making to deal with the situation.

This study takes an incisive look at the prevailing air pollution level in Indian cities and makes a satisfactorily attempt to explore in detail the different sources of air pollution in India's mega cities, the degree o exposure and its debilitating effects on the human system. The report also reviews the existing pollution level and suggests different insulating, management and technological strategies to cut the pollution level.

The Chapters devoted to the statistics on air pollution, the contribution of transport to air pollution, the method of estimating air pollution, the interface of traffic congestion and air pollution, are all illustrated exceedingly well.

A look at the amazing statistical data provided in the report in respect of the pollution level in Delhi is alarming and immediate steps are required to be taken to curb the problem immediately. Perhaps this is the case with most of the other mega cities in India. The pollution levels can be brought down to a greater extent by the use of more and more public transport instead of personalized transport.

The study also has brought out the various facts about,the present transport systems and the policies being adopted in India and abroad. It has been categorically stated in the study that without improving the prevailing transport management systems, pollution cannot be curbed.

There is no doubt that the seven management and technological strategies elaborately suggested in the report, cannot be adopted straight-away in the Indian conditions. But they can be implemented, depending upon the prevailing environmental, road and vehicle conditions and the transport requirements from time to time and place to place. The report has rightly urged that necessary steps should be taken while planning new cities and preparing development plans for the old cities.

The report advocates the following seven basic strategies to reduce air pollution:

Reduce the demand for travel: No doubt that by adopting the first strategy of decentralizing -the civic administration/ offices, which are often visited by the general public, the demand for travel could be reduced to a greater extent. However, in my opinion decentralization of offices alone may not bring in the required results as is already proved in various offices of mega cities. The decentralized offices, therefore, should have enough decision-making powers to implement the policies framed by the central offices for better results.

Manage travel demand more efficiently: As the report rightly pointed out using good traffic management measures - (e.g. disciplined parking, synchronized traffic lights, priority for public vehicles) - is the key to managing travel demand. 'Therefore, traffic management measures should focus on moving more number of people than vehicles more efficiently.

Use fuel that do not contain the polluting component at all: Under this strategy, the report indicates alternatives to the polluting fuels. However, it is a fact that these alternatives could not be adopted even to the extent of 10-20% of the consumption of petroleum products by the developed countries, who had extensively done research on these alternatives.

It should not be forgotten that due to the requirement of fast movement by the mankind the suggested modes of transport had been replaced with the present one. Keeping this fact in view this strategy in the present situation is ruled out. However, the suggested modes of transport should not be ignored and be used to the full extent wherever and whenever possible.

Use fuels that contain traces of pollutants at all: The fourth strategy, mentioned in the report is not in the hands of the users. It is the government, which has to provide such fuels to the public for use. The government is however unable to provide such fuels to a greater extent because of the non-availability of foreign exchange and lack of suitable refining arrangement coupled with the involvement of vested interests at various levels in the government machinery.

Burn fuels more efficiently: The fifth strategy, mentioned in the report is the most important one and should be adopted by every vehicle owner meticulously, in the similar way as is done in the case of electricity usage. Whatever may be the type of fuel or engine, the engine exhaust distinguishly indicates whether the fuel used is burnt optimally, if not, what could be the reason viz. white smoke indicates unburnt fuel & oil, black smoke indicates improper combustion or lack of air due to air filter choking and/or reduced compression pressure, etc. No doubt, if vehicle engine is mechanically well maintained the pollution level will reduce substantially. It is however a common fact that every vehicle owner is negligent in this regard. in fact by neglecting timely engine maintenance the vehicle owner loses heavily when the actual maintenance work is taken up, apart from longer vehicle down time.

Trap the pollutants before they escape into the atmosphere: Trapping of pollutants before. releasing them to the environment has been mainly adopted because of the legislations in force. Many Scientists are presently working on various devices and their longevity. After the recent legislations in the country the vehicle technology has also improved to a great extent. However the continued usage of such devices with initial efficiency still remains doubtful.

Prevent pollutants-spreading spreading by puffing barriers in their path: The seventh strategy states that barriers should be used in the path of pollutants. The authors have however forgotten that city/road is not a closed box that can retain the pollutants. Atmosphere being a dynamic, turbulent and a complex system it respects no boundaries. leafy trees, no doubt, do reduce road dust but simultaneously it also forces the commuter to inhale more exhaust pollutant than otherwise. However, as a safety major every two wheeler rider should use facemasks to battle against pollution.

Last but not the least important that the success of any strategy against growing degree of pollution depends on how best and meticulously it is accepted, followed and used by one and all.

It is also a fact that polluted air is a symptom, not a cause - the cause is the absence of a coherent and integrated transport policy for India. If the statistical data given at page 10 to 12 on travel behaviour is considered, substantial reduction in personalised vehicle operation, conservation of petroleum products and resulting reduction in pollution can be envisaged without any prejudice.

The management and technological strategies described in the report are adaptable without any extra expenditure by the public or the government. Though the comparison has been made between cities abroad and cities in India, perhaps the basic differences about public attitude, self-consciousness, and responsibility towards nation and basic educational level perhaps have not been considered. There is no doubt that one should not reinvent the wheel, but learn, understand and adopt the finding of others duly modified to Indian conditions.

The report in its concluding remark has made a few key suggestions, which the concerned citizens should demand collectively, such as focus more on better transport, than on air quality, aim at curing the disease, instead of merely attacking the symptoms, accord priority to buses or keep some roads open only for buses at peak hours, make information on public transport easily accessible to all users and potential users, collect and maintain reliable data on all aspects of transport and use such statistics for better management & performance objectives for services' rather than insisting on static compliance and promote equitable use of road space, are all valuable suggestions which should be taken into consideration by planners of mega cities.

The study covers almost all aspects related to the prevailing transport systems in the country and remedies to curb pollution by different simple means and methods. Surely one finishes reading the book appreciating the skills of the authors in unraveling the issues with the appropriate spirit.

Review by T K Malhotra
President, Automobile Association of Upper India
Transport sector responsible for about two-thirds of pollutants in Delhi
Upper India Motorist, January 2001

Tata Energy Research Institute (TERI) has brought out an excellent book titled "Cleaner air and better transport: making informed choices" - a short Volume of 40 pages.

The book is well-researched, readable and brings out clearly the ill-effects of poisonous gases like CO, NO, S0₂ from the exhaust emission of the vehicles. Further pollution is caused by suspended emission of the vehicles. Further pollution is caused by Suspended Particular Matter (SPM) like soot and dust. It points out the need for proper measures for monitoring Pollution levels in the cities like Delhi, which has the worst air pollution level in India.

The need for improved Public Transport System by introducing suitable changes in the design of buses, considering the safety of the passengers and use of eco-friendly fuels like CNG, Hydrogen & electricity are suggested. Use of devices like catalytic converter to neutralise poisonous gases is also recommended. These are already well known to the Govt.

It further suggests for reduction is use of Private Transport by making it more expensive for the user and simultaneously by making the public Transport more comfortable & secure. It has advocated strategies to bring about the desired changes in the existing system.

The book could prove very useful for educating School and College students and various Govt. Departments for understanding the problem of Air-Pollution in Delhi and introduce remedial measures to fight it at various levels.

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