Summary and conclusions of the study on urban transport dysfunction and air polution in Dakar

Transport in Africa Technical Note Urban Transprt SSATP Note 19 May 1999 Summary and conclusions of the study on urban transport dysfunction and air pollu- tion in Dakar 2265 1 This niote presenits the main coniclutsions of an oni-site studw of urban transport dys- function anrd air pollution in the D/ckar agglomerationi carried out froml Augulst to November 1998. Oni Decemlber 17 anid 18. 1998, the fitndings were discussed at a na- tionial seminiar on uirbani tr-ansport and air quality organized jointlv bY CETUD (The Executive Council for Urban Tranlsport in Dakar) and the World Banik. This formned part of the Slub-Saharan Africani air-qualiix initiative that was launched joinitly in 1998 by the Urbanl Tranlsport Componlenit of SSATP and the World Bank Iinstitute (formerlv the Economic De-welopmnent lInstitute). The report oni this seminiar (SSATP Work-ing Paper No.38, Februarv 1999) is available fronm the SSATP Coordination Unlit. The purpose of this series is to As regards the patticiular problem of air pollution caused by urban transport, the share inlormation on studies studw and thze reconmmienidations formulated at the semintar- mncade it possible to define carried out by or of interest to the princiiples on which ani actioni plan couild be based. Thle latter is currentlv being the SSATP. The opinions consideredfor financing as part of the preparationi of a projectfor inicreasinlg urban expressed in the studies are mobility in the Dakcar agglomeration. This project is to be imsplemeented unlder the those of the authors and do not auispices of tlhe World Banik. necessarily reflcct the views of The inicreasinig signiificance of polluitioni froml nmotorized urbacn tran7sport in Sub- the World Bank or any of its Saharaii Africa. anid its adverse effects on public health. urbani productivity, anid the af't'iliated organizations. qualitv of life, filly justifr the dissemiinlationt of this techniical note by SSATP. For inflormation on these notes, OBJECTIVES OF THE STUDY contact the following Internet address To define the main causes of transport dysfunction. quantify them, express them in figures. and recommend a suitable framework for monitoring changes in the parame- ters. The area studied is the Dakar agglomeration, which has more than 2.2 million ssatp@worldbank.org inhabitants, 1.2 million of whom live to the east of the city itself, in the Pikine- Gu6diawaye Rufisque area. PROBLEMS The fundamental problem, as in most large cities, is that the location of residences is not coordinated with the location of work places, and every day this leads to large- scale movements of population. Viewed overall, therefore, the problem is also linked to the question of city planning. and thus to a long-term view of the development of the city and its modes of transport. The following map provides a clear picture of these problems, and shows the heavy flows on Dakar's east-west corridors, especially during rush hours. Sub-Saharan Africa Transport Policy Program (SSATP) * ECA and the World Bank  2 1 Added to this are the fol- lowing problems: COMPOSED VOLUMES ON AUTO NETWORK the increase in vehicle own- CLASSSPECIFICAUTOVOLUMES L NKS ership; VOLUMES ~OLUMES * the inadequacies of the in- r - frastructure in general, and \ , F intersections in particular, since X w cl I', they are unable to cope with this increased traffic. This leads to the following -> __ main types of dysfunction: 7 .5. < a road safety problems, re- , suiting in death, injury, and damage to property: SCAE 175 * congestion (and, as a result, time wasted in traffic jams): ,- * problems of air pollution; * problems of noise pollution. WINDOW G TRANSPORT DEMAND 50165X3 1 3413 EMMEC PROJECT Cost Of 9,11,0 WSIJ,c,o, m Dar Sa-0s-0 Is 31 SCEN~~~~~RIO ~~~~~. wdfi.~~~~~~~~ MODULE 5 12 According to a 1998 study, Morning wsh hour. wbh oongetlon TECTL Iel d aily co m m u tes in the D ak ar ...................... .......... ................... ................. .......... ................................... ............ agglomeration total 4.3 million, 70% of which are made by mass transit, which therefore plays a major role, and has been singled out as being responsible for much of'the dysfunction. THE IMPORTANCE OF EVALUATING EXTERNALITIES DEFIN ITIONS However, what is "transport dysfunction" exactly ? It is important to make an accurate evaluation of the costs of dvs- In reality, it consists of "costs arisingfromlz situations in function (or transport externalities), and to decide where the respon- vthich a transport utser does not pay for all the costs sibilities lie, so that these costs can be properly allocated ; however, generated by the transport service (or else does not re- this sort of evaluation also plays a major role in providing "decision ceive all the anzticipated beniefits). support" when transport systems are selected. Failing to include all Overall, transport costs are of the following two types: the social costs in the equation means that the real cost ol' a system * those that appear evident: i.e. the operating costs will be underestimated, and that a given system may be favored generated by the activity (fuel, staff, etc.) and its infra- over another that would have generated fewer external costs (by structure (roads), these largely being covered through creating less pollution, for example). taxation; and, Thus, an evaluation comparing a large-capacity bus project costs generated by dysfunction; these are less evi- and a suburban rail project could lead to a decision in favor of the dent, but consist of: accident-related costs (i.e. health latter, because it was demonstrably safer (resulting in fewer acci- care, the value of lives lost, and losses in productivity), dents and traffic jams) and created less pollution. and environmental costs (atmospheric pollution and noise pollution, and costs caused by congestion, repre- WAYS OFMEASURING DYSFUNCTION sented by the time wasted by passengers when using public transport (and also by other parties). The following are the generally accepted methods of calculating These social costs are borne by the local authority, external costs: rather than clirectly hv the individual users (even thou-h * the avoidance cost, or prevention cost method; this consists of' ratherththandedirectlytby the individual usetransp(rthough identifying and quantifying the costs of measures for reducing ex- it is their demanid that is the cause of transport dysfunc- tenaites tion). t * the damage costs evaluation method; this consists of quantifying the observable impact (fatalities, health care, and productivity losses):  1 3 the hedonic method; this consists of assessing the fic (CO, VOCs, and NOx), and their concentrations, based on the difference in value between a good located in a place characteristics of traffic in Dakar as defined by a model (EMME2), subject to dysfunction (i.e. pollution and noise) and the and on information on the emission factors for a given vehicle fleet; same good in an unpolluted place; * comparison of these levels of pollution with WHO standards; it * the stated preference method, in which interviewees would be helpful if these data could be calculated on the basis of who are victims of transport dysfunction are surveyed to samples collected by monitoring stations - in Dakar, no such meas- find out how much they would be willing to pay in or- urements have so far been made; der to cease being subjected to it, or to receive some form of compensation. Noise calculation of the noise level generated by traffic (using data The stated preference method produces results closest to from EMME2 and a computer model prepared by the consultant) economic values, because it reflects market prices; * comparison with European standards ; measurements have however, it requires more resources than were available shown that the noise level during the morning rush hour is always for this study. higher than acceptable (65 dBA), on both primary and secondary routes ; at other times, however, levels on secondary routes are ac- METHODOLOGY ADOPTED ceptable. The damage costs evaluation method was adopted, since The models used to evaluate these costs make it possible to monitor it can be applied even when the users in question have trends over time, or to produce simulations based on changes in little or no appreciation of the extent of the damage transport-system parameters. caused, or else miscalculate it. The methods of evaluation, by type of dysfunction, were RESULTS as follows: Bodily inijur: The following table summarizes the results of the calculations and * gathering of accident statistics, classified by degree estimates. It shows that the costs of the main sources of dysfunction of seriousness; are equivalent to about 5% of GNP; however, it should be noted * calculation of unit costs (by type of accident) and of that the pollution costs are estimates extrapolated from studies that the cost of human losses, from which the total cost can were made in Asia (in Jakarta) over a number of years, and from be deduced; which dose-effect curves have been derived through regression * definition of indicators for accidents and fatalities analysis. Moreover, the costs as estimated are not entirely due to caused by public transportation, and establishment of transport, since there are other sources of pollution in Dakar (e.g. cue relationship of these fip ures to the number of vehi- electric power plants, a cement factory, various industries. etc.). cles x the number of km trav- eled (as ascertained, adjusted, or simulated by means of a Estimated Costs of the Impact of Dysfunction in Dakar traffic model); Type of Dysfunction Number Unit Cost Total Cost % of GNP (CEAF) (CFAF) 96 Congestion anid t-affic jams _ __ 2,372.7 * using the EMME2 model, Bodily injury calculation of the houirs Fatalities, per year' 179 6.600.000 1.181,400.000 wvasted in vehicle trips. meas- Serious injuries. per year 1,053 800,000 842,400,000 ured according to the differ- Total 2,023,800.000 0.1 ence between traveling times Congestion on a congested system and on Hours wasted, per year 224.400.000 185 41.401.800,000 1.7 an uncongested system; Pollution calculation of the unit cost Number of inhabitants affected by * calculation of the ilit cost I pollutants (PMIO & Pb)2 2.100.000 30.000 63,000,000.000 2.7 per wasted houtr, from which lTotal cost 1_ l 08.449.400.000 4.6 the cost of total hours wasted 'Estimated by means of the "lost income" method; it should be noted that the "willingness to pay" method can be deduced; results in figures that are from 25 to 30 times larger. 2 Estimated on the basis of figures from a study made in Jakarta (LUrban Air Quality. World Bank Paper Air polltution N" 379. 1997.) * calculation of quantities of pollutants emitted by traf-  4L A STRATEGY FOR COMBATING AIR POLLUTION O action for easing the flow of vehicular traffic (through a CAUSED BY TRANSPORT transport plan, street improvements, dissemination of infor- mation for users, and staggering of rush hours). Air pollution caused by urban transport can be reduced Finally, measures for reducing demand; these mainly relate to through measures that can be identified in a number of issues of urban planning, such as administrative or educational de- areas: institutional, technical, or organizational. All of centralization. these require forms of investment that differ as to cost, difficulty of implementation, and timing. Traffic levels, the resulting emissions, and the impact on air quality So that the effects of the various measures can be were then calculated using mathematical models reflecting the cur- compared, they have been divided into the following rent situation (the base scenario), together with three other scenarios three main categories, according to their intrinsic fea- that would be produced by applying the three categories of meas- tures: ures defined above. For example, the following chart shows how, in * Measures applicable to the vehicles themselves, the the current situation, the NO, pollution standard is exceeded. aim being to reduce overall pollution by reducing indi- vidual emissions; these include: O introducing tax and regulatory measures gov- Number of persons> Long-ternm standard erning vehicle imports, with the aim of reducing Period of one day the number of older vehicles in operation; O providing existing technical monitoring centers 400- with equipment for measuring engine emissions, 1200000 with special training for staff and new rules de- I _ _ fining the standards vehicles must meet; 800000RE O improving fuel quality, and introducing tax in- M VEHL centives for the use of cleaner fuels. 4000_ * Operational measures for increasing the pollution- 20 0 00 LOPE abatement efficiency of public transport through 0 changes in the parameters of supply. This category in- co NOx HC S02 PMIO cludes: O reorganization of: mass transit in order to achieve Key: REF: base scenario VEH: measures applicable to vehicles: URB plan- 1~~~~~~~~~~ ~~~~ninY; OPE : operational measures. optimum integrated operation of the various modes of transport; The main objective of SSATP's Urban Transport Component is to promote reforms in transport policy. It seeks to achieve this objec tiwve by undertaking activities that will improve institutional and regulatory frameworks and road safety, particularly with regardito pedestrian safety. by carrying out studies of nicroentreprises and launching an air-quality rnagement initiative, and by strengthening local capacity. iurrently, the Component has i m eimber countties. For information, ; contact SMr.Patrick Bultyek. Coordinator of theS Urban ransport Component. lnternet address: pbultynck@Oworldbankorg