prop · GE0390 · 1990-12-31 00:00:00 — The results ofmeasures taken to restrict emissions of, among other things, nitrogen oxides,carbon monoxide and hydrocarbons, mainly from cars but also from tmcks andbuses, have also begun to emerge. In order to achieve the long-term goals, theGoverament is proposing further measures. Atthe same time, other problems are receiving increasing attention. This appliesmainly to the transport sector's emissions of carbon dioxide. Only a few yearsago, the significance of these emissions was not realized, but they are nowreceiving a great deal of attention. Another example consists of emissions ofsulphur and nitrogen oxides by the industry, which are considerablyhigher than was prcviously estimated. TheCity Traffic Commission has also shed new light on the problems caused by traffic in the large cities. The harm caused to human health by emissions from traffic is particularly important in this context. Far-reachingmeasures will be required in order to solve these problems Prop. 1990/91:90and to achieve existing objectives. Efforts will be required in the transportsector, as in other sectors. The Government is therefore proposing thatenvironmental objectives in the traffic sector should be as follows: Effects on health are to besharply reduced by the beginning ofthe next century. This means that measuresmust be taken in the large cities, alongside measures to reduce emissions ofparticulates from dieseldriven vehides and stricter exhaust emissionregulations for other vehides. The environmentally detrimentalimpact of traffic is to be sharply limited. The Goverament considers thateffects such as acidification and eutrophication caused by Swedish traffic canbe drasticially reduced by the year 2010. The emissions of nitrogen oxides,sulphur dioxide and hydrocarbons from Swedish traffic can be sharply reducedthrough stricter fuel and exhaust emission requirements. The contribution of traffic toclimatic change is to be limited in accordance with the climate strategy. Thereis thus a pressing need of measures, which requires a strict ordering ofpriorities. The Government considers that work should con-centrate on measuresaimed at traffic in the large cities, investments in the rail network andstricter requirements conceraing vehides and fuel. Closer cooperation withWestera Europé is making coordinated effort of this sort possible. Swedenhas performed significant work through the , which was formed in1985 on the initiative of . The group includes all the EFTA countriesexcept keland, together with , , the and , andhas worked out agreements on car exhaust emission regulations which provide thebasis for the national regulations introduced by each individual country. Internationalinterest in work to limit the impact of traffic on the environment is nowincreasing sharply. In , for instance, the permanent EuropeanConference of Ministers of Transport, ECMT, adopted a special traffic andenvironment resolution. This resolution underlines the need of taking furtheraction in order to improve environmental adaptation and the use of energy intraffic. A special international hearing with the world's car and fuelindustries was arranged in the autumn of 1990. At Swedish initiative, trafficand environmental issues were taken up at the joint EC/EFTA meeting ofEnvironment Ministers in . It is cmcial to success in this areathat the govemments of Europé work together for stricter requirements regardingall emissions of harmful substances. The EC is considering proposals on theintroduction of stricter exhaust emission requirements for cars from 1993. The Government considersthat should play an even more ■ part in achieving international agreements in this field in the future. The chances of success in such work have been improved by virtue of the 85 closer cooperation whichis emerging in Western Europé. New opportuni- Prop. 1990/91: 90 ties areemerging to further environmental work and to improve the possibilities ofcounteracting the regional and global environmental problems caused by thetransport sector. The demands for joint action together with other EFTAcountries and with the EC which this implies can and must be developed in orderto improve the environment. 4.3.3Large cities and urban areas Theexpansion of motor traffic has entailed increasing hazards to the environmentand health and deteriorating accessibility on roads and streets, particularlyin the major city areas. Traffic is now without doubt the greatest source ofenvironmental damage. The worst aspects of this consist of air pollution andthe locally high levels of noise along main roads and streets with heavytraffic. TheGovernment has appointed special negotiators for the three large city areas.Their task has been, together with local and regional actors, to negotiateprogrammes of measures in order to tackle the environmental and accessibilityproblems in each region. The Goverament is prepared to allocate SEK5,500million as a contribution to the financing of measures agrecd by these"metropolitan negotiators". The proposal is presented in theGovernment on Industrial Policy for Growth. Thespecial environmental project groups for , and westernSkåne which the Government has prcviously initiated have all described a needfor determined measures in order to limit health and environmental problemsfrom traffic in these regions. The material produced by the project groups isto provide the basis for work on further measures in this region. A specialcoordinator will be appointed to go on working with proposals for theCommunications network in the region. Itis clear that further measures are necessary in order to tackle problemsassociated with traffic, the environment and health, particularly in the largecity areas. The Government considers that the recommendation concerninglow-emission heavy urban vehides which has been drawn up as a guideline forpurchasers of such vehides should be followed as closely as possible. and the National Road Safety Officeshould, together with the Swedish Chamber of Com-merce taking account ofdevelopments within the EC draw up proposals concerning special requirementsfor diesel-driven vehides used in urban traffic in terms of extremely lowlevels of exhaust emissions and noise. Problems caused by traffic noise inurban areas should receive increased attention. Accessibilityfor public transport and distribution traffic is to be improved as a resultofthe measures now being implemented pursuant to the proposals ofthemetropolitan negotiators. TheGovernment expects SEK40,000 million to be invested in the traffic systems ofthe major cities during the 90s. This will include investments in modern public transport systems, clean vehides and by-passes. posalis discussed in the Government on Industrial Policy for Growth. Municipaland regional planning should take advantage ofthe potential for improving thebasis of public transport. Plans should include clear impact assessmentsregarding traffic and the environment. The municipalities should be given thelegal means of limiting environmentally-hazardous traffic in town and citycentres. Themost important element in the strategy for achieving an environmentally-adaptedtransport system is to consist of measures aimed at all types of vehicle andfuel, for use in all types of traffic. Guidelinesfor reducing emissions from motor vehides were laid down by virtue ofthe 1988decision on environmental policy. Stricter exhaust emission requirements forcars came into force as ofthe 1992 models. For light trucks and buses, thestricter requirements are compulsory from the 1992 model year. The newrequirements were introduced on a voluntary basis, with financial incentives asofthe 1990 models. Stricter requirements for heavy trucks and buses wiU applyas of the 1993 model year. Thefuel properties, combustion characteristics, exhaust purification, rollingresistance and wind resistance of a vehicle are all parameters that can bealtered in order to reduce exhaust emissions. Development to date shows thatcomparatively has been done in terms of fuel properties. Successiveimprovements have been made in terms of combustion technology, rollingresistance and air resistance. The most important improvements during recentyears, however, have been achieved by way of direct purification measures suchas the three-way catalytic converter. Infuture, environmental requirements on vehides should continue to be neutral interms of technology and competition. This means that the environmentalrequirements should not state the technology to be used or how development workshould be divided between measures concentrating on fuel, combustion, or purification,etc. The requirements should instead state acceptable emission levels. Asregards fuel, however, there is reason to introduce certain requirements whichstate the lowest acceptable level of quality. Thedevelopment towards the increased use of unleaded petrol is one positiveexample in this area. The Government does, however, see reason for furthermeasures to promote development in this respect and is therefore proposingthat the tax on unleaded petrol be reduced, and the tax on other petrols beraised. The use of more environmentally sound diesel fuels can lead to asignificant reduction in hazardous emissions. The Goverament is thereforeproposing that the environmental for diesel fuel be changed so that thegrades of diesel fuel in 1 and 2 are cleaner. In addition to this, themaximum permittcd sulphur content of diesel fuel should be reduced incooperation with the EC. Environmentalbenefits can also be achieved if traditional fuels mainly petrol and diesel are replaced by alternative fuels such as motor alcohol, gas and electricity. In order to promote the development of alternative 87 fuels, the Goverament wiUbe proposing, in the BiU on Energy Policy, that Prop. 1990/91:90 SEK30million be allocated per year for four years to support pilot projectsconceraing the testing and development of motor alcohols. result of voluntary agreements, several ferry companies have begun to usemore environmentally sound low-sulphur bunker oil. In general, however, thefuel used by contains large quantities of sulphur and otherpollutants. This causes technical problems in combustion and leads to majoremissions of pollutants to the air. Through the Interaational MaritimeOrganization, IMO, is therefore working to prohibit additives ofchemical substances which are harmful to the environment. The Government'sambition is to introduce limits, in broad cooperation with the other Nordiccountries, on the maximum sulphur content of fuels used by ferries and other vesselswhich frequent Swedish ports, mainly Swedish ferry traffic. Bilateralagreements could be reached as a first step with the objective that all Nordicferry traffic should be induded in the agreement on maximum sulphur content ata later date. Emissions of nitrogen oxides from should also bereduced. Measures should be proposed by the relevant authorities during 1991. Asregards the emission of nitrogen oxides, hydrocarbons and carbon monoxide fromvehides, existing technology is able to fulfil today's emission requirements.This is clear from tests of existing vehides, and from the fact that in otherparts of the world-particulariy in Califoraia-stricter regulations are in forcewith respect to emissions from vehides. TheGoverament's ambition is, together with other countries in Western Europé, tointroduce stricter exhaust emission requirements for cars, light tmcks andbuses as soon as possible, and from 1996 at the latest, to meet the levelsintroduced by the federal authorities in the as ofthe 1994 model year. Theenvironmental impact will be greatest if such requirements are introducedearlier and in coordination with other countries in Westem Europé. TheGoverament therefore intends to work actively within the framework ofthe EEAprocess towards stricter limits in EFTA and the EC as soon as possible, and notlater than . TheGovernment's ambition is, together with other West European nations, to makerequirements concerning exhaust emissions and noise from heavy vehides stricteras of 1996, so that they correspond roughly to the federal requirements in theUSA for the 1994 models. The Goverament feels that there is good potential forachieving this in coordination with EFTA and the EC. Inorder to hästen the introduction of more environmentally-adapted vehides, theGovernment will be proposing that a new system of environmental dassificationbe introduced for new vehides as ofthe 1993 models. A system of this sort willpromote the introduction of vehides with good environmental properties. Inaviation, certain improvements have taken place in combustion technology as a result ofthe environmental charges that were introduced in conjunction with the 1988 decision on traffic policy. The development of aircraft engines has not yet progressed to the point that emission require ments can be imposed for the early I990s. However, the industry 88 iscurrently engaged in interesting development work and it is likely that Prop. technology will beavailable by the end of the 90s to permit considerable reductionsin emissions, particularly of nitrogen oxides. forstricter emission requirements for aircraft not later than the end ofthe Emissionrequirements for diesel-driven locomotives are being drawn up in conjunctionwith the development of new light rail motor coaches, particularly forpassenger traffic. The Goveramenfs ambition is to introduce these requirementsjointly with other European countries. Todate, no limits have been set for emissions from utility and off-road vehides,which have been found to make a relatively high contribution to emissions ofnitrogen oxides, among other things. Together with the other authoritiesconceraed, the is therefore to draw upproposals conceraing exhaust emission requirements for these vehides. TheGoverament intends to work towards the introduction of coordinatedrequirements for tractors and constmction site ma-chinery whithin EFTA and theEC from 1995. An environmental dassification should also be introduced forthis type of vehicle. Theambition of limiting emissions of carbon dioxide also requires measures in thetransport sector, which is responsible for över one-third of emissions. It isfor the , in cooperation with theSwedish Chamber of Commercc, authorities concerned, to look into the possibilities of introducinglimits on carbon dioxide emissions from road vehides, taking into accountdevelopments in the EC. Alltypes of transport and traffic system are associated with emissions of airpollutants and other environmental damage. This takes place in the form ofenvironmental impact in the constmction, operation and maintenance of trafficsystems, as well as through the fact that they affect the flow of traffic andthe distribution of transport among different types of traffic. Therail system is to be extended in order to provide a competitive altemative bothfor passenger and for freight traffic. The road system must also besuccessively modified from the environmental point of view. The Government hasalready proposed to the Riksdag that allocations for investments in railtraffic be increased beyond the national budget during the coming ten-yearperiod from SEK10,000 million to SEKl5,000 million. It is proposed that aspecial infrastmcture fund be set up, and that a total of SEK20,000 million beput into this fund during the 1990s. It is to be used for joint financing ofrailways, roads and public transport systems. The Government expects thatSEK30,000 million wiU be invested in railways during the I990s. Inthe planning of new rail systems, as in extensive rebuilding of such systems, environmental impact assessments are to be carried out. Environ mental impact assessments are to be introduced at the planning stage of 89 should draw up plans for environmental measures at the majorairports under its responsibility. 4.4 The energy supply Theenvironmental goal is to have an energy system without nuclear power, whilesharply reducing the contribution of the sector to acidification and climatechange without developing the unexploited rivers. Theimpact on the environment of the production of electricity and heat hasdecreased considerably since the mid-70s as a resuft of successively stricteremission requirements. The economic instmments which have already been adoptedwill reduce emissions further. Limitsfor emissions of sulphur will become stricter as of the beginning of 1993 inthe large cities and in southera . The guidelines foremissions of sulphur and nitrogen oxides from large new combustion plants are tobe made much stricter. Significantsteps have been taken towards an environmentally-adapted energy system. Theenvironmental effects of the production of electricity and heat in Swedendedined considerably during the 70s and SOs. Emissions of sulphur from thissector have dedined by approximately and nitrogen oxide emissions byapproximately since 1980. Carbon dioxide emissions have dedined byapproximately during the same period. The sector has contributed to animprovement ofthe air in our urban areas, less acidification and reduced effecton the global climate. Further action isrequired, however, in order to reduce the environmental effects oftheproduction of energy and heat. None ofthe main methods of energy supply at aglobal level fossil fuels, nuclear energy or the buraing of wood in developingcountries are sustainable in the long term. A change in the world's energysystems will require far-reaching measures and the industrialized countriesmust be at the forefront. The future conversion and environmental adaptation ofthe Swedish energy system should be seen in this light. The environmental goalis to achieve an energy system without nuclear power, while sharply reducingthe contribution of the sector to acidification and climatic change and withoutdeveloping the unexploited rivers. This would take time and will demandinternational cooperation. TheGoverament has already (see 2.1.2) presented a Consolidated strategy aimed atreducing effects on the climate. The way in which electricity and heat areproduced wiU play a major part in securing the success of this stragety. TheGovernment intends to introduce guidelines for energy poli- cyin the near future. In the following pages, the Goverament presents its Prop. 1990/91:90 view on stricter emission requirement, measures againstemissions from small boilers and the siting of wind power. 4.4.2 Theenvironmental impact of electricity and heat production Thequality of air in the urban areas has been improved through the expansion ofdistrict heating networks and through the transfer to low-sulphur fuel and moreefficient combustion plants. In , levels of sulphur dioxide havededined by about since 1970. The levels of soot in and Stockholmhave been halved during the same period. Combustion in boilers in privatehouses, particularly older wood-fired boilers without modem combustiontechnology, can contribute locally to emissions of hazardous pollutants,however. The burning of unsuitable materials such as impregnated cancause emissions of extremely carcinogenic substances. Emissionsof sulphur will decline further as a result of stricter requirements and thesulphur tax. The sulphur tax, which was introduced on January 1 of this year,is alone expected to lead to reductions of emissions in this sector by afurther 10,000-25,000 of sulphur by the year 2000, compared with whatthey otherwise would have been. Nitrogenoxides from this sector have also dedined. The nitrogen oxide charge which isto be introduced on January I, 1992 is expected to reduce emissions by afurther 3,0005,000 per year. Emissionsof carbon dioxide from the generation of electricity and heat have dedined byöver a third since 1980 and by almost since 1970. The main reasons for thisare improved energy efficiency, increased use of renewable fuels and the use ofelectricity based on hydro-electric and nuclear power in order to replacefossil fuels in the generation of heat. The carbon dioxide tax introduced atthe tura of the year is expected to be of great significance in limiting theemission of carbon dioxide from heat production. 4.4.3 Measuresto reduce environmental impact Inthe on Energy Policy, the Goverament is presenting proposals concerning the future strategy for energy. The Goverament has prcviously stated its intention to change the Ordinance on Fuels Containing Sulphur so that the emission limits are made stricter, starting in 1993 with southera and the counties in which 's three major cities are situated. The change is to have been implemented throughout not later than . This means that the date has been brought forward by two years. The new requirements mean that the annuai average emissions of sulphur from large plants will be sulphur/MJ of input fuel and sulphur/MJ input fuel for smaller plants. The emission limits are to be applied as an average for all the combustion plants in a district heating network or power station or for several boiler units in an industry. Consideration of permit applications pursuant to the 91 Actand the Environment Protection Act has shown in recent years that Prop.1990/91:90 emissionsof sulphur from major new combustion plants can be reduced further.As a guideline for consideration of permit applications pursuant to theEnvironment Protection Act, it is now being stated that emissions fromnew combustion plants with a power input of över 500 MW may not exceed30 mg/MJ of fuel, as an annuai average. Theemission of nitrogen oxides from new combustion plants with an input exceeding500MW should not exceed /MJ input fuel, calculated as an annuai average. Requirementsconceraing emissions of sulphur and nitrogen oxides are to be based on the bestavailable technology. Taking technological development into account, this maymean that in certain cases the requirements are set lower than the guidelinesstated above. Noisefrom energy generation plants is not to exceed the levels stated in the 's exteraal industrial noise guidelines for newindustrial facilities. Residualproducts that must be disposed of as a result ofthe burning of oil and solidfuels are to be limited. Residual products that cannot be utilized are to bedeposited in such a way that the leaching of pollutants is minimized. fromthe combustion of bio-fuels should be handled in an ecologically sound . Continuedwork on reducing the environmental impact of electricity and heat generation,in addition to the measures presented by the Goverament today, is primarily tobe aimed at limiting climatic impact and reducing emissions from small boilers.It is important to study the possibilities of reducing emissions from boilersin private homes. This includes analysing the possibilities of introducingeco-labelling, considering systems of compulsory certification, systems ofemission declarations and measures leading to better operation and maintenance.This work falls within the sphere of responsibility ofthe , after consuftation with the authorities concerned. Itis important to utilize the good potential for wind power that exists in ourcountry. detailed possibilities for large-scale wind power should be takeninto account in the physical planning ofthe municipalities. Aprogramme for a review of the conditions for discharges by environmentallydamaging activities is being implemented in conjunction with the renewal ofpermits pursuant to the Environment Protection Act. The objective is to limitdischarges from industry by the year 2000 to such a level that no harm is doneto the environment. Thepulp and paper industry is being given priority in the review plan. Emissionsof chlorinated organic substances are to be further limited, in order to reacha level at which the environment is not noticeably affected by the end ofthecentury. Emissionsof sulphur and nitrogen oxides from industry are also being limited.