Urban transport dysfunction and air pollution in Dakar : study conclusions

Infrastructure 184 aX,oNAL __ _ June 2001 ^, , , , Findings reports on ongoing operational, economic, and sector work carried out by the World Bank and its member govemments in theAfrica Region. Itispublishedperiodicallybythe Knowledge and Leaming Center on behalf of the Region. The views expressed in Findings are those of the author/s j WORRLD BA N K and should not be attributed to the World Bank Group. Urban Transport Dysfunction IVON AN9 and Air Pollution in Dakar Study Conclusions his note presents the main urban mobility in the Dakar ag- T conclusions of an on-site glomeration. This project is to be study of urban transport dys- implemented under the auspices function and air pollution in the of the World Bank. ~~~ ~~Dakar agglomeration carried out from August to November 1998. On December 17 and 18, 1998, the findings were discussed at a na- The study's goal was to define the tional seminar on urban transport main causes of transport dysfunc- and air quality organized jointly by tion, quantify them, express them CETUD (The Executive Council for in figures, and recommend a suit- Urban Transport in Dakar) and the able framework for monitoring World Bank. This formed part of changes in the parameters. The the Sub-Saharan African air-qual- area studied is the Dakar agglom- ! s ~~~~~ity initiative that was launched eration, which has more than 2.2 jointly in 1998 by the Urban Trans- million inhabitants, 1.2 million of port Component of the Sub-Sa- whom live to the east of the city haran Africa Transport Policy Pro- itself, in the Pikine-Guediawaye gram (SSATP) and the World Bank Rufisque area. r Institute (formerly the Economic Development Institute). The report Problems on this seminar (SSATP Working The fundamental problem, as in Paper No.38, February 1999) is available from the SSATP Coordi- most large cities, is that the resi- nation Unit. This note was origi- dential location is not coordinated nally published as SSATP Techni- with work place location, and ev- cal Note No. 19. ery day this leads to large-scale As regards the particular prob- movements of population. Viewed As regards the particular prob- oeal hrfr,tepolmi lem of air pollution caused by ur- all to the qsonlof it _~ ~~~~~~~bntasot h td n h also linked to the question of city _ ~~~~~~~ban transport, the study and theplnigadthsoaln-er _ ~~~~~~~~~~~~~~~~planning, and thus to a long-term U recommendations formulated at view of the development of the city the seminar made it possible to define the principles on which an action plan could be based. The The map provides a clear picture atnl a n could be. based Ter of these problems, and shows the lattr iscretybigcniee heavy flows on Dakar's east-west for financing as part of the prepa- ration of a project for increasing corridors, especially during rush hours.  COMPOSED VOLUMES ON AUTO NETWORK These social costs are borne by CLI'SSPECIFIC AI r[ voC UMES L the local authority, rather than di- '7OL'CC0C rectly by the individual users (even "' ('6< though it is user demand that causes transport dysfunction). The importance of evaluating externalities It is important to make an accu- rate evaluation of the costs of dys- function (or transport externali- SCILL: 1715 ties), and to decide where the re- sponsibilities lie, so that these costs can be properly allocated; however, this sort of evaluation also plays a major role in provid- C OCCO maling "decision support" when trans- IV .111i RMIILkI e<;I;I", vn<uInI.sod!)Sa sR4S< 0l MIC port systems are selected. Failing T. 7 TRI 2BL 1 to include all the social costs in the Definitions equation means that the real cost Added to this are the following of a system will be underestimated, problems: However, what exactly is "trans- and that a given system may be theincreaseinpport dysfunction"? favored over another that would * the mncrease in vehicle ownership pr yfnto" * the inadequacies of the infra- In reality, it consists of "costs have generated fewer external structure in general, and inter- arising from situations in which a costs (by creating less pollution, for sections in particular, since they transport user does not pay for all example). are un e to cthe costs generated by the trans- Thus, an evaluation comparing are unable to cope with this in- creased traffic. port service (or else does not re- a large-capacity bus project and a ceive all the anticipated benefits). suburban rail project could lead to This leads to the following kinds Overall, transport costs are of a decision in favor of the latter be- two types: cause it was demonstrably safer of dysfunction: r those that appear evident - i.e., (resulting in fewer accidents and in roadesafety pnjuroblems rest i the operating costs generated by traffic jams) and created less pol- n death, ijury, and damage to the activity (fuel, staff, etc.) and lution. prpet its infrastructure (roads), these * congest-ion (and, as a result, time itinrsucre(od)the wasted in traffic jams) largely being covered through Ways of measuring dysfunction wastediin ttaxation; and, . The following are the generally * air pollution * costs generated by dysfunction; accepted methods of calculating * noise pollution. these are less evident, but con- external costs: sist of accident-related costs (i.e., Transport demand health care, the value of lives *ot avod; cos onsiststof According to a 1998 study, daily and environmental costs (atmo- identifying and quantifying the commutes in the Dakar agglomera- spheric pollution and noise pol- costs of measures for reducing tion total 4.3 million, 70 percent sutio aosts aud by con- externalities; of which are made by mass tran- gestion, represented by the time * the damage costs evaluation sit, which therefore plays a major wasted by passengers when us- method; this consists of quanti- role, and has been singled out as ing public transport). fying the observable impact (fa- being responsible for much of the talities, health care, and produc- dysfunction. tivity losses);  * the hedonic method; this con- Estimated costs of the impact of dysfunction in Dakar sists of assessing the difference sistsofassessingthe Type of dysfunction Number Unit cost Total cost % of GNP in value between a good located (CFAF) (CFAF) 96 in a place subject to dysfunc- Bodily injury 2,372.7 tion (i.e., pollution and noise) Fatalities, per year' 179 6,600,000 1,181,400,000 and the same good in an un- Serious injuries, per year 1,053 800,000 842,400,000 and the same good in an un- Total ~~~~~~~~~~~~2,023,800,000 0.1 polluted place; Congestion * the stated preference method, in Hours wasted, per year 224,400,000 185 41,401,800,000 1.7 Pollution which interviewees who are vic- Number of inhabitants affected by 2 pollutants (PM10& Pb)2 2,100,000 30,000 63,000,000,000 2.7 tims of transport dysfunction Total cost 108,449,400,000 4.6 are surveyed to find out how much they would be willing to Estimated by means of the "lost income" method; it should be noted that the 'willingness to pay" method results t not be subjected in figures that are from 25 to 30 times larger pay to not be subjected to it, or 2 Estimated on the basis of figures from a study made in Jakarta (Urban Air Quality. World Bank Paper NO 379, 1997.) to receive some form of com- pensation . Thenstatedn. preferene method Congestion and traffic jams * comparison with European stan- The stated preference method produces results closest to eco- * using the EMME2 model, calcu- dards; measurements have nomic values because it reflects lation of the hours wasted in ve- shown that the noise level dur- market prices; however, it requires hicle trips, measured according ing the morning rush hour is al- more resources than were avail- to the difference between travel- ways higher than acceptable (65 able for this study. ing times on a congested system dBA), on both primary and sec- and on an uncongested system; ondary routes; at other times, calculaton ofuthesuni coster however, levels on secondary Methodology adopted waste ou of theu costp routes are acceptable. wasted hour, from which the cost The damage costs evaluation of total hours wasted can be de- The models used to evaluate method was adopted, since it can duced; these costs make it possible to be applied even when the users in monitor trends over time, or to pro- question have little or no appre- duce simulations based on ciation of the extent of the dam- Airpollution changes in transport-system pa- age caused, or else miscalculate it. . calculation of quantities of pol- rameters. The methods of evaluation, by type lutants emitted by traffic (CO, of dysfunction, were as follows: VOCs, and NOx), and their con- Results centrations, based on the char- acteristics of traffic in Dakar as Bodily injury defined by a model (EMME2), and of the calculations and estimates. * gathering of accident statistics, on information on the emission It shows that the costs of the main classified by degree of serious- factors for a given vehicle fleet; sources of dysfunction are equiva- ness; * comparison of these levels of pol- lent to about 5 percent of GNP; * calculation of unit costs (by type lution with WHO standards; it however, it should be noted that of accident) and of the cost of would be helpful if these data the pollution costs are estimates human losses, from which the could be calculated on the basis extrapolated from studies that total cost can be deduced; of samples collected by monitor- were made in Asia (in Jakarta) over * definition of indicators for acci- ing stations - in Dakar, no such a number of years, and from which dose-effect curves have been de- dents and fatalities caused by measurements have so far been rivedfthrureessio n ali public transportation, and estab- made; rived through regression analysis lishment of the relationship of Moreover, the costs as estimated are not entirely due to transport, tehilese figures the number of kmtNoise since there are other sources of vehicles x the number of km trav- eled (as ascertained, adjusted, or * calculation of the noise level gen- pollution in Dakar (e.g. electric simulated by means of a traffic erated by traffic (using data from power plants, a cement factory, model); EMME2 and a computer model various industries, etc.). prepared by the consultant);  Number of persons> Long-term standard - improving fuel Period of one day quality, and intro- The Urban Transport Component ducing tax incen- {400000f,. _ _ _ _ __ __ _ j tives for the use of 1200000 f -- cleaner fuels. The main objective of SSATP's Io . . e f L -u-u', * REF I Urban Transport Component is to 800 -Operational mea- a ' 800000 -0 00 0 l __ .__ = '*olmeaVEH promote reforms in transport IJJ 6(0000 ,~E .URB sue f policy. It seeks to achieve this 400000UR ue frices 4200000o ' 11 E----. objectiveing the pollution- by undertaking activities - btmntef-that will improve institutional and CO NOx H-C S02 PMIO ciency of public regulatory frameworks and road transport through safety, particularly with regard to Key REF: base scenario VEH: measures applicable to vehicles; URB planning changes in the pa- OPE operational measures. rameters of supply. udtes ofety, byncrring out Thiscatgoryin-studies of microentreprises and A strategy for combating air clude launching an air-quality manage- pollution caused by transport uds. ment initiative, and by strengthen- Air pollution caused by urban -rorderiztiono achiev otimumt in- ing local capacity. Currently, the transport can be reduced through order to achevr opthmum in- Component has 18 member measures in a number of areas: ous opes of t hensport;countries. institutional, technical, or organi- ous modes of transport; This article wasfirstpublished zational. All of these require forms - actilon for easig the flow of ve- as SSATP Technical Note No. 19, of investment that differ as to cost, hclrtafc(rogatan_May 1999. For more information, difficulty of implementation, and port plan, street improve- contact Mr. Patrick Bultynck, timing. ments, dissemination of infor- Coordinator of the Urban Trans- So thal: the effects of the various mation for users, and stagger- port Component. Internet address: measures can be compared, they ing of rush hours). pbultynck(worldbank.org havebee divdedint thefolow- Finally, measures for reducing have been divided into the follow- demand; these mainly relate to ing three main categories, accord- issues of urban planning, such ing to their intrinsic features: as uran planningtional as administrative or educational * Measures applicable to the ve- decentralization. hicles themselves, the aim being Traffic levels, the resulting emis- to reduce overall pollution by re- sions, and the impact on air qual- ducing individual emissions; ity were then calculated using these include: mathematical models reflecting the - introducing tax and regulatory current situation (the base sce- measures governing vehicle nario), together with three other imports, with the aim of reduc- scenarios that would be produced ing the number of older ve- by applying the three categories of hicles in operation; measures defined above. For ex- - providing existing technical ample, the following chart shows monitoring centers with equip- how, in the current situation, the ment for measuring engine NO. pollution standard is ex- emissions, with special train- ceeded. ing for staff and new rules de- fining the standards that ve- hicles must meet;