Helsinki, Finland - WIT Press · Helsinki, Finland Abstract Transportation System Plan 2020 was...

Transportation System 2020 and air quality in the

Helsinki Metropolitan Area, Finland

K. Hamekoski, S. Sihto

Helsinki, Finland

Abstract

Transportation System Plan 2020 was approved in the Helsinki MetropolitanArea in 1994 in order to develop the transportation system in a coordinatedway and, among other things, to keep the share of public transport at thecurrent level and to reduce environmental impacts. While air quality ingeneral is reasonably good in the area, CC^ emissions from traffic areexpected to increase and particulate matter and occasionally high NC^concentrations are considered as air pollution problems. Since there aresome doubts about whether the objectives concerning air quality and theshare of public transport could be met by 2020, special emphasis will be puton these matters when the Transportation System 2020 plan will be revisedin 1998.

1 Introduction

The Helsinki Metropolitan Area (HMA) comprises four independent cities:Helsinki, Espoo, Vantaa and Kauniainen. The area has 890 000 inhabitants,a number which rises to over a million when nearby influential areas aretaken into account. The Helsinki area is situated by the Baltic sea at latitude60°N and the area covers 743 km . The Helsinki Metropolitan Area Council(YTV) arranges cooperation between these cities in matters of wastemanagement and disposal, public transport, the planning of the transportati-on system and air quality monitoring.

Transactions on the Built Environment vol 23, © 1996 WIT Press, www.witpress.com, ISSN 1743-3509

514 Urban Transport and the Environment

2 Transportation system plan

2.1 The starting points and phases of the plan

The location of the city centre of Helsinki on a peninsula has affected landuse and the development of transport networks. The city structure extendslike the fingers of a hand, with five sectors appearing alongside the mainnational trunk roads and the railway lines (Fig. 1).

Public transport accounts for a large share of the traffic in the Helsinkiregion. The City of Helsinki in particular has made a determined effort inthis direction. Methods used have included land use policy, central areaparking policy and the safeguarding of public transport operating conditionsby means of traffic arrangements favouring public transport, as well as thesubsidising of the running costs of public transport. YTV has brought intouse a regional public transport ticket, which can be used on regional busand train transport, as well as on internal services within the cities.

Figure 1: Helsinki Metropolitan Area.

2.2 Phases in the plan

The preparation of the Transportation System 2020 plan was divided up intosub-projects, and took place in phases, which on completion were submitted


Urban Transport and the Environment 515

to the various interested parties for official comment to be taken intoaccount in the subsequent work. The aim was to achieve a plan which couldbe approved by the cities and other interested parties in the region. Incertain sectors of transportation system development cities and interestedparties hold such differing views that reaching common regional decisions isdifficult. The Transportation System 2020 process led, perhaps rathersurprisingly, to a consensus, and the various parties approved the plan as anoverall solution. A regional decision* on the plan was taken by the YTVCouncil, which is composed of politicians chosen by the cities.

When asked for their statements on the development objectives, the partieswho were asked for comments also had available alternative scenarios onthe regional development of land use and on its effects on the transportationsystem. The actual realisation of the objectives was tested with the help ofthese land use scenarios. It was noted that the effect of land use decisionson traffic volumes and the transit modal share was considerable.

Transportation system models were used to examine the effects of theweighting of various transportation policies on traffic, the environment andthe economy. In one model the starting-point was the facilitation of privatemotoring and the minimisation of its cost. In another, the priority was onthe development of public transport and increasing the share taken by publictransport. In a third model environmental factors were emphasised, togetherwith the integrated planning of land use and the transportation system.

The opinions of the inhabitants of the region regarding the main lines ofdevelopment were evaluated by a questionnaire study: according to theresults, the inhabitants supported a system based on public transport and

2000

1500Q.

§ 1000

500

1966 1976

Public Transport Share66% 53% 42%

Figure 2: The share of public transport.



emphasising environmental factors, whereas a system prioritizing car trafficclearly received less support.

2.3 Development objectives of the transportation system

The plan contains objectives relating to the following overall categories:land use, public transport, private car traffic, bicycle and pedestrian traffic,commercial traffic, traffic safety, environmental issues, economy andimplementation. In these aims, emphasis is placed on the development ofpublic transport as a competitive transportation mode. The modal share ofpublic transport in the area is high, but with the increase in car numbers andthe growth in land use occurring to an increasing extent on the boundariesof the area, this share is decreasing (Fig. 2). The 42 % share, which hasbeen set as a goal, according to the calculations can almost be achieved,provided that public transport is consistently emphasised in transportationpolicy decisions, and the cost of travel on public transport remains rea-sonable compared to private car use.

The aim in the construction of communities is to unify them in such a waythat the need to travel is reduced, and in particular the possibilities forpublic transport, cycling and walking are improved. The achievement ofsuch land use goals is difficult, because many other factors, in addition tothose relating to transportation, have an effect on the decisions made.

RoadsTrunk Road for Buses

Figure 3: Roads and rails in 2020, new constructions are underlined.



Holding the modal share of public transport as high as possible has adecisive effect on the achievement of the environmental goals. The aim ofthe transportation system is to reduce the environmental effects; addi-tionally, the transportation system should achieve for its own part nationaland international targets for the reduction of carbon dioxide emissions by20 %. An attempt will be made to reduce the energy use by traffic, anddevelopments in travelling habits that preserve the environment will beencouraged.

2.4 Development measures

The Transportation System 2020 plan contains a development projectprogramme, according to which investments are scheduled to take place inthree phases up to the year 2020. In this programme, public transport isemphasised, in accordance with the plan's objectives as well as the statedopinions of the inhabitants and other parties, so that the share claimed byvarious public transport projects is about 60 % of the available funding.

600

400

200

0

— 538 542

56% 59%

1988 2020

Trips to Helsinki Inner City and theShare of Public Transport

%_ 100•£o 50° 0

200S 1505 1001 50

0

Ring Road II / II

55

L-2?%-l

Ring Road 1 Co

147— r

/ .

26%

Corrido114

'' ''\",

31%

ridor214

/Z -:

34%

rs

1 988 2020

The Development of Cross Town TrafficTrips/Day and the Share of Public Transport

Figure 4. The growth of traffic.



Rail transport forms a significant part of the public transport system (Fig.3). Except for from the direction of South Espoo, heavy rail transport linesconverge radially upon the centre of Helsinki. Construction of a railconnection from South Espoo to the regional rail network will start duringthe final phase of the planning period. Rail links are also proposed toimprove the connections and level of service of cross-town public transport.

As well as through road projects, public transport will also receive attentionthrough improvements to its smooth running on the important bus routes,and through the development of public transport terminals, the park-and-ridesystem and an information system. The economy of public transport will bedeveloped so as to keep fare prices as low as possible.

The road transport network consists of radial and ring roads. Improvementsand construction projects will be almost completely confined to the ringroad system (Fig. 3) , as traffic will mostly increase in this direction (Fig.4). The public transport portion of traffic towards the centre of Helsinki ishigh, and traffic will not increase in this direction.

3 AIR QUALITY

3.1 Monitoring network

Air quality has been monitored periodically in the Helsinki area since thelate 1950s. An automatic SC^ monitoring network was established in 1975.

Since 1983, the automatic monitoring has been expanded and extended tocover the whole Metropolitan Area. The pollutants measured include SC ,NO, NOz, CO, Og, TSP, PMjo, Pb. Currently five automatic multicomponentstations form the basis of the air quality monitoring network (Fig. 1). Mob-ile stations are also being used. The automatic monitoring network runningin real time is controlled by a Windows application. The data are interpretedin several ways/

3.2 Air quality

In general, air quality is reasonably good in the Helsinki area in comparisonwith several other cities in Europe^ There is some evidence, however, thateven these pollutant levels may cause adverse health effects in Finnishconditions/ Traffic is nowadays a major source of pollutants at breathinglevel. The emissions from energy production have decreased in the pastdecade, most notably those of SO2 and paniculate matter (PM)/

Increased use of catalytic converters and reformulated fuels have loweredtraffic emissions somewhat. There is a decrease in CO and NO



concentrations, but the decrease in NO2 levels is not as clear (Fig. 6). Thisis due to the fact that the formation of NO2 from NO in emissions is mainlycontrolled by the O^ concentration. No local net O, formation has been ob-served as the Helsinki area acts as an O^ sink/ Annual lead concentration inurban traffic environment was 0,01 ug/nf in 1995 due to the use ofunleaded petrol. The downward trend in emissions is expected to continuein the future, with the exception of CO2 emissions.

Particulate matter (PM) pollution and occasionally high NO2 concentrationsduring temperature inversions in winter cause exceptions to the relativelygood air quality situation in the area. During an air pollution episode inDecember 1995 record high, up to 400 ug/nf hourly maximum NO2concentrations due to traffic emissions were measured. NO2 and COconcentrations exceeded the current and proposed national guidelines (Table1). Stack and tailpipe emissions of PM are low in the area. Indirectemissions from the surfaces of paved roads are a large PM source due tostreet sanding and use of studded tyres in cars in wintertime. Resuspensiondominates TSP levels^ and also noticeably affects thoracic particle (PM )concentrations^.

Annual average concentrations of total suspended particulates (TSP) havedeclined in recent years due to several control measures.^ In the urbantraffic environment they still exceed the national guidelines (Fig, 5).Average PM^ concentrations are reasonably low, but there are episodes ofhigh PMiQ pollution, especially in spring, exceeding the proposed nationalguidelines.

Due to the increase in the energy efficiency of cars, fuel consumption isexpected to decrease by 20% (Fig. 8). All passenger cars will be fitted withcatalytic converters, and emissions will be considerably reduced. Energyconsumption and carbon dioxide emissions will increase by 6-7 %. Duringthe period under consideration, the population of the region will increase by17%.

When calculated on a per-inhabitant basis, both energy consumption andcarbon dioxide emissions will decrease by 9 %. Regarding energyconsumption, the target set will thus be reached, but the aimed-for reductionof 20 % in carbon dioxide emissions will not be achieved.

4 Revision of the plan

Transportation system plans will be revised at intervals of four years. In thefirst revision in 1998, special emphasis will be laid on development needsas far public transport and environmental questions are concerned.



Table 1. Current Finnish air quality guidelines and proposed guidelines.

Pollutant

SOz

NOg

TSP

PMioCO

Averagingtime

hour

day

year

hour

day

year

day

year

day

hour

8 hour

Concentration

Guideline

500

200

40

300

150

150

60

30

10

ug/nf (CO:mg/rrf)

Proposal

250

80

15-20^

150

70

30C

120

50

70

20

8

Allowedexceedances

1 %/month

1 /month

1 %/month

1 /month

2 %/year

1 /month

(i = based on vegetation effects, value depends on latitude(2 = based on vegetation effects, NO+NOg

1979 1981 1983 1_*-NO2 -=-NO

1987 1989 1991 1993 1995TSP -3-

Figure 5: Annual average NO, NO,, CO, TSP and PM^ concentrations inurban traffic environment in Helsinki.

Despite the growth in traffic, emissions will decrease, with the exception ofCOz emissions. This decrease will be reflected in concentrations as well. Itis not, however, clear, that the proposed, strict guide values will be met asfar as NO% and PM^ are concerned as the concentrations of these pollutantsare not directly related to emissions. Even though direct particle emissionsfrom traffic will be decreased (Fig. 6), there are no estimates on how



resuspension can be decreased. Additional measures might be needed tomeet the proposed guidelines.

1988

00 21

HC 32

NOx 29

Particles 38

(pejr inhabit(18)

(27)

(25)

(32)

ant) 1988

(per inhabitant)Energy (90)

(per inhabitant)C02 (91)

106

107

20 40 60Index

Traffic Emissions in HMA

80 100 120

1988

0 20 40 10060 80index

Energy Consumption and C02 Emissionsfrom Traffic in HMA

1988

120

Noise areas 115

0 20 40 60 80 100 1,index

Traffic noise areas

Accidents <P* inhabitant) 115

3 20 40 60 80 100 1«index

Personal injury accidents

Figure 6: Comparison of 1988 situation with estimated 2020 situation

Total CC>2 emissions from traffic are expected to increase, but it has beenfound^ that it would be possible to achieve a per-capita 20 % reduction incarbon dioxide emissions by the year 2020 using a combination of thefollowing additional measures:

(1) out-of-pocket expenses (mainly the price of petrol) of car traffic to beraised compared to the current level; (2) cost of public transport tickets tobe reduced; (3) reduction of parking; (4) restriction of motoring; (5)development of automotive technology; (6) concentration of land use. Thesemeasures would also help to keep the share of public transport.

It has been concluded that the current indicators (emissions, traffic volumes,energy consumption, accidents, etc) are not adequate. As far as air quality isconcerned the indicators should include at least concentrations andestimations of exposures. In the revision process all impacts will be takeninto account in order to characterize the effects of the transportation systemon man, nature, city structures, economic and social issues in as a completeway as possible. Suitable indicators and methods will be selected throughliterature reviews, expert interviews, workshops and public participation.



It is currently under consideration whether the revision process should besubject to strategic impact assessment. The planning of the revision in 1996will lead after the formulation of alternatives to the application of thechosen methods and indicators in 1997. Political decisions onimplementation will be made in 1998.

References

1. Helsinki Metropolitan Area Transportation System 2020, HelsinkiMetropolitan Area Council, Ministry of Transport and Communication,Helsinki Metropolitan Area Council Series A 1994:3, Helsinki 1994.

2. Aarnio, P., Hamekoski, K., Koskentalo, T. & Virtanen, T. Air Quality,Monitoring and Air Quality Index in the Helsinki Metropolitan Area,Finland, Proc. of the 10th World Clean Air Congress, Vol. 2, Finnish AirPollution Prevention Society, Helsinki. 1995.

3. van Zantvoort, E.D., Sluyter, R.J., Larssen, S. (eds.). Air Quality inMajor European Cities, Part II. RIVM Report no. 722401009. NationalInstitute of Public Health and the Environment, the Netherlands.Norwegian Institute for Air Research. 507 p. Bilthoven, 1995.

4. Ponka, A. Asthma and Low-Level Air Pollution in Helsinki. Arch.Environ. Health, 1991, 46:262-270.

5. Hamekoski, K., Miettinen, J., Kinnunen, J. & Lahdes, R.,. OzoneConcentrations in the Helsinki Metropolitan Area and Around an OilRefinery and Petrochemical Complex in Southern Finland, in: Papersfrom the 9th World Clean Air Congress, Montreal, Canada, 30.8.-4.9.1992, Vol. 4, Air & Waste Management Association, Pittsburgh, USA

6. Laukkanen, T., Kokonaisleijuma Helsingissa [TSP in Helsinki]. LicentiateThesis. Helsinki University of Technology, Espoo pp. 129-130, 1990.

7. Hamekoski, K., Aarnio, P., Koskentalo, T. et al.. The Behaviour ofParticulate Matter in the Northern Climate of the Helsinki MetropolitanArea, Finland, in: Particulate Matter: Health and Regulatory Issues, VIP-49, Proc. from an International Conference, Pittsburgh, PA, April 4-6,1995, Air & Waste Management Association, Pittsburgh, 1995.

8. Green Fleets Project, A strategic plan for the reduction of trafficemissions in the Helsinki Metropolitan Area - Draft 25.3.1996, HelsinkiMetropolitan Area Council (YTV), Traffic Department, Helsinki, 1996.


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