Access Control - An interactive ITS Handbook for Planning Large
Transcripción
Access Control - An interactive ITS Handbook for Planning Large
Access Control (Demand Management) Index Purpose Description Relevance for Large Scale Events Options Technologies Impacts Integration potential Implementation Best Cases and Examples 1 of 12 Purpose The aim of this strategy is to modify in some way the demand for mobility on the transport network. Normally, it focuses on influencing (and especially reducing) the amount of traffic on a specific part of the road network, particularly during critical periods (e.g. times of peak traffic or when pollution levels are high). The strategy may have different objectives, but in general its purpose is to: - reduce congestion protect the environment (e.g. by reducing the level of air pollution) improve safety (e.g. by reducing the amount or of traffic and therefore the risk to pedestrians); to reduce traffic nuisance (especially in areas used predominantly by pedestrians). The use of ITS tools to support the management of such a strategy has considerable advantages. Compared with a manually operated system, e.g. with printed vignettes for authorised vehicles, it reduces the personnel required and also speeds up the process of checking vehicles and/or requesting payment. A number of ITS tools can be used to support demand management strategies. The main ones are described below in the section ‘Technologies’. It is also possible to influence demand through the use of information systems. These can be designed for example to influence the choice of route, mode of travel or time of trips. The use of information services is dealt with in the ‘Traveller Information Services’ section) top ↑ Description How the tool works, basic information about the tool’s functions The aim of access control is to limit access by road traffic to specific areas. It is normally use for parts of a city centre, but the strategy can also be applied to areas surrounding sports or cultural venues and activated for the duration of a large scale event). The strategy can involve the total exclusion of vehicles from an area, but more usually it is selective. In other words. access is permitted for a certain number of authorised users, while other vehicles are banned. The advantage of a telematics solution rather than a printed ticket or "vignette" displayed on the windscreen is that recognition is automatic, so vehicles do not need to stop or checked manually and, in addition, data can be stored for future analysis. Authorised users can purchase, or be issued with, a tag that is installed on-board. top ↑ Relevance for Large Scale Events Such strategies are clearly extremely relevant for the management of traffic during large-scale events when the road network has to cope with exceptionally high levels of demand and there are likely to be a large number of vulnerable users, e.g. pedestrians, present in and around the sports/cultural venues, e.g. 2 of 12 stadiums. During large events, access control can be a very effective way of preventing congestion in such areas and increasing safety. Since a road pricing strategy is unlikely to be implemented specifically for a sporting or cultural event, we focus on the following approaches: Access Control Environmental Traffic Management top ↑ Options Mobility demand can be influenced though a number of different mechanisms, including: - road pricing (or congestion charging) i.e. the imposition of a fee for using the road network, or part of the network such as motorways or a city centre zone; access control (used to limit vehicular access to a given area. It can be applied with or without payment for circulation within the area concerned); environmental traffic management (a variation of the above, where the main purpose of the system is to limit environmental pollution in a given area). top ↑ Technologies The main technologies currently in use for access control mare: o Dedicated Short Range Communication System (DSRC): this kind of system uses short range data communication (typically at 5.8GHz) between the road infrastructure and an OBU (on-board unit) installed in authorised vehicles. The technology is ‘non-invasive’ for the user, in the sense that the OBUs are usually small, easy to install and highly reliable with regard to the percentage of errors in the transmission of data. The equipment is often supplied free of charge by the system manager, although sometimes a deposit is requested or a monthly fee. If a tariff is foreseen (for example when the vehicle travels within a charging zone), this may be made on board or off board. In the former case, payment can be by smart card (a prepaid card is inserted in the OBU and can be recharged when the credit falls below a given level). In the latter case, the amount is debited from the user’s current account or credit card. The approach does however involve high costs for the equipment on the road infrastructure as it is necessary to set up tolling stations. Increasing automation has made considerable improvements possible by moving from Single Lane 1 systems to Multi Lane Free Flow2 . Examples of Multi Lane Free Flow DSRC with an open architecture are the road charging system on Austrian motorways, in Australia, Canada and Chile. o 1 2 Vehicle Positioning System (VPS): this technology combines the use of GPS (Global Positioning System) for the location of vehicles via satellite and Mobile Communication Technology (GSM) for Systems characterised by physical barriers result in the slowing down of vehicle flows when payment is made. Systems without physical barriers permit a much faster throughput of vehicles. 3 of 12 communicating the amount of the toll to the Operations Centre, which deals with the debiting and invoicing of the customer. The OBU is equipped with a GPS receiver which identifies the position of the vehicle on the road network. When the system detects that the vehicle has entered a payment zone, it begins to measure the distance covered. When the vehicle leaves the zone, the total distance is calculated and the relevant payment make either on board by smart card or off board with a debit to the current account or credit card of the user. The advantage of this technology is that it requires the installation of only a limited number of electronic portals for enforcement purposes and, in the case of poor reception of the GPS signal, DSRC type devices to support the on-board positioning device. The system is also versatile in the sense that the controlled area can easily be modified. On the other hand, it has the disadvantage of involving the installation of devices on all vehicles, and the GPS technology is subject to a certain margin of error. Also in this case the OBU is normally supplied free of charge (or on payment of a deposit) while installation takes around four hours and requires specialised personnel. The most well-known example in Europe is the one used in Germany for tolling trucks using the motorway network. o Automatic Number Plate Recognition System (ANPR): this system involves the use of fixed or mobile video cameras but does not require installation of on board devices. On the road infrastructure, it is necessary to set up cameras with ANPR software (Automatic Number Plate Recognition) at strategic locations – usually entry points to the restricted area. Several cameras are required: one to take a close-up image of the number plate, while another photographs the entire vehicle (in some countries both the colour and make of vehicle must be recognised). The videocameras are equipped with software able to read the number plate and transmit this information to a processing centre, where it is compared with the database of all authorised vehicles. If payment is foreseen for use of the restricted area, a debit procedure is carried out for all (authorised) customers. If a vehicle is not authorised a fine is issued. Such a system is operated in the centre of London for managing the Congestion Zone. Outside Europe it is also used in some non-urban locations, e.g. in Australia and Chile, in association with DSRC technology. top ↑ Impacts The impact of access control can be very significant. Schemes have been shown to result in a considerable reduction in congestion, traffic delays, pollution levels, and noise (see details below). There can however be some disadvantages including: the diversion of traffic to other routes, causing congestion in zones adjacent to a protected area; inconvenience for the disabled and elderly; confusion for visitors not familiar with the area if the ‘rules’ are not clear; negative impact on business activities in the area with restricted access, inconvenience residents and people living/working in the area affected. 4 of 12 For a successful scheme, especially during a large-scale event, it is important therefore to pay attention to the following aspects: provide special arrangements for the disabled provide adequate public transport facilities in order to minimise inconvenience to travellers and promote a ‘modal shift’. In this way people who would otherwise have used private cars can be ‘diverted’ to public transport provide sufficient information so people are aware of the details of the access control strategy in place consult with all residents and other ‘local’ people or businesses in the area likely to be affected and if possible make special arrangements (e.g. issue special passes) to avoid causing undue inconvenience. CRITERION TRAFFIC EFFICIENCY IMPACT LEVEL *** COMMENTS Access control can have a positive impact within the area concerned, but unless well managed it can lead to increased congestion outside the area. PT EFFICIENCY ** When private traffic is reduced, e.g. in a city centre, it can result in increased regularity of bus services and reduced trip time. For the above reasons, public transport can become more attractive and lead to greater use of bus travel or cycling. MODAL SHIFT ** AIR POLLUTION *** The reduction of vehicular traffic, especially in city centres, can reduce pollution levels. SAFETY OF VULNERABLE ROAD USERS ** Reduced traffic levels or restricted times of access for vehicles, including delivery vehicles, can make it safer for pedestrians and cyclists as long as average vehicle speed MEASURED IMPACTS* Barcelona - 18% travel time - 78% traffic in zone Rome Limited Traffic Zone controlled by electronic gates - 20% traffic during the restriction periods London Low Emission Zone The LEZ has had no impact on vehicle volumes N/A Rome Limited Traffic Zone controlled by electronic gates +3% shift to pedestrian +1% shift to public transport Barcelona + 50% shift to PT Bologna GAUDI trial - 50% air pollution level London Low Emission Zone In 2008 the LEZ saved 28 tonnes of particulate matter from landing in London’s air N/A 5 of 12 remains low. CONVENIENCE ** Access control used to protect a residential Barcelona area and prevent entry of external traffic Increased park space (Links will be provided where possible to descriptions of the projects or studies concerned). [*, ** or *** indicate the strength of the impact] top ↑ Integration potential Access control can be integrated with a number of other tools to improve its effectiveness. These include: - enforcement systems UTC (urban traffic control) priority vehicle systems pedestrian priority zones. top ↑ Implementation A key factor for access control systems is handling violations effectively and working with a minimum of extra manpower, with automatic detection of offences and identification of vehicles. From the users’ perspective the system should be easy to understand and use (e.g. through smartcard system) and reliable. Since good public awareness and acceptance are key factors for successfully implementing an access control system, public consultation and involvement activities should be carefully planned. top ↑ Examples a) in previous large events Some examples of Access Control schemes operated during past ‘large-scale events’ and also other examples are given below. 6 of 12 EXAMPLE* COMMENTS LARGE-SCALE EVENT BARCELONA Access control was used to prevent protect a residential area near the Games site. (In 1995, the scheme was extended to the city centre) Summer Olympics 1992 TORINO Access control implemented to mountain areas to reduce congestion and increase safety. Winter Olympics 2006 OTHER (Links will be provided where possible to descriptions of the projects or studies concerned). [*, ** or *** indicate the strength of the impact] b) in more general context London Low Emission Zone The Low Emission Zone (LEZ) was introduced in 2008 to encourage the most polluting heavy diesel vehicles driving in the Capital to become cleaner. The LEZ covers most of Greater London. To drive within it without paying a daily charge, lorries, buses and coaches are required to limit the amount of particulate matter coming from their exhausts to a given level (Euro III) . Vehicles that do not meet the required standard and which travel into the LEZ must pay a daily charge (£200 for a lorry bus or coach or £100 for a larger van or minibus) or risk a penalty charge notice (£1,000 or £500 respectively). For all operators, there are a range of options to comply with the scheme: - buying a new or newer vehicle, fitted an approved particulate matter filter re-engining the vehicle or converting to gas with a spark ignition Enforcement of the LEZ is through cameras placed throughout greater London. These identify vehicle registration number and check them against a database to determine if the vehicle is compliant, is exempt or has paid the fee. Experience form 2008 shows that the Low Emission Zone has been very successful: the majority of operators take action to clean up their vehicles in advance of LEZ standards coming into force so that the majority of the benefits from the new LEZ standard will be delivered in 2011. However to ensure that London meets the required standard by the end of 2012, LEZ standards became more stringent on January 2012: lorries, buses and coaches need to meet a tighter standard (Euro IV for particulate matter) to drive in London without paying a daily charge. Also in January 2012 vans and minibuses were affected for the first time and needed to meet a Euro 3 standards to drive in London without paying a daily charge. Only the oldest and dirtiest vehicles in this group (those over 10 years old) are targeted. The LEZ forms a part of the Mayoral Air Quality Strategy. 7 of 12 Operation of the scheme is sub-contracted to a number of suppliers. IBM runs IT systems and operations. Siemens run cameras which are used for enforcement. A database was created to enable enforcement of the scheme using information from Driver & Vehicle Licensing Agency (DVLA – the driver licensing body for all of Great Britian), the Society of Motor Manufacturers and Traders (SMMT – the motor manufacturing trade association in the UK ) & operator own registration data. Foreign registered vehicles are held to the same standards as UK registered vehicles and must register with TfL to show they meet the required standards (currently TfL has over 120,000 foreign registered vehicles on its database). If any operator believes the information held by TfL on their vehicle is incorrect they may provide suitable evidence via a registration and TfL will update their vehicle entry. TfL provide information leaflets, a dedicated call-centre and operates a website www.tfl.gov.uk/lezlondon- giving full information on the scheme including a vehicle compliance checker where operators can input their license plate number and find out how the LEZ affects them. Access Control and Shared Road Space in Barcelona Barcelona has implemented various ITS-based tools to manage the travel demand in sensitive areas of the city since the 1990s. These include a smart-card based access control system in the historic La Ribera zone and a lane management system. Car-owners living within the area controlled by the access control system obtain a smart card which enable them to enter to the zone, while other vehicles can obtain time-limited permits for the access. On the whole vehicle access is restricted in defined time windows (two-three hours periods during the morning and the afternoon) and commercial vehicles for goods deliveries can gain free access to the area at other times. CCTV is used to monitor entry and exit points and video conferencing enables drivers to request special access during the restricted periods. Since users received the smart cards without paying, the system was attractive. As regards the obtained results, car traffic within the area controlled by the access control system has been reduced by 78% and vehicle travel times have fallen by 18%. The “Tidal Flows” system controls the use of several lanes which can be used in one direction during the morning peak and in the other in the afternoon peak, providing more efficient use of road space without compromising safety. Signs which display the direction of each lane can be controlled manually or automatically through the Urban Traffic control Centre. The system proved to be efficient since had not led to any safety problems and there were considerable benefits in managing peak-hour traffic flows without the need to construct additional infrastructure. ROME Limited Traffic Zone controlled by electronic gates Rome decided to implement new clean zones with a complex series of actions, according to the guideline provided by the Urban General Traffic Plan (PGTU), now reinforced and enlarged by the Strategic Sustainable Mobility Plan (SSMP), approved in 2010. Besides, there are in Rome serious reasons to apply “clean zones”: congestion and environment as well as a strong need to preserve the historical and archaeological city: any changes to its narrow roads or the implementation of new underground is difficult, 8 of 12 due to the fact that the present fabric of the city is built on the ancient ones. More, Rome has the status of double Capitol, both for Italian State and for Vatican City, with their administrative loads and events as well as periodic large sport events: the number of tourists (>23 million per year) and of the tourism coach (>200.000 per year) are issues to take into account. The general Millenium project, where the SSMP is the mobility part, aims to rebuild Rome in several areas like a sustainable energy master plan, where the conditions for a sustainable development are inspired by an overall plan of longer-term policies based on climate change mitigation as well as on economic recovery and social integration and employment in Rome. The project started in 2010, the year in which the new entity is born officially named territorial Rome Capital, and closes in 2020, the year of XXXII Olympics for which Rome Capital has put its candidature as host venue. The infrastructural network of Rome in 2020 will be “naturally” suitable and ready to sustain the Olympic Games event, according to PSMS implementations. Interventions to be implemented for the year 2020 that are more directly functional for the event are largely related to the enhancement / upgrading of existing infrastructure. The Strategic Plan for Sustainable Mobility provides a number of implementation tools whose development is therefore placed on different time horizons. Alongside the long-term strategy were in fact identified a series of short-term, more timely responding to real situations of criticality that is now in the city of Rome. The short-term policies are covering different areas of action: the fluidity and the regulation of traffic, the reorganization of the network of surface public transport, road safety, the application of ITS technologies, optimization of existing metropolitan, strengthening the parking system. Among the strategic actions for the short term, the project “Pedestrian City Centre” has to be put in place within 2014 in more steps. The reduction of congestion and lowering of pollution through access management and enforcement is expected to improve the health conditions of residents and visitors to the restricted area. Currently, the historical centre suffers from high pollution – in particular benzene, CO, NO and PM10 – which are potent health risks, especially for children. In addition, these reductions in disbenefits from transportation can lead to improved attraction to the historical centre and, subsequently, economic growth. Rome’s objectives for scheme revenues is to dedicate everything to mobility related projects. The pricing and enforcement policies in place in Rome include both payment for on-street parking and payment for accessing certain areas of the city. The main objective pursued since the beginning of the Access Policies in Rome, going back to the late 80’s, has been the protection of the unique cultural heritage of the city from the dangerous effects of traffic pollution. The turning point was the implementation of the LTZ system with “electronic gates” in October 2001. Limited Traffic Zones (LTZ) are used to restrict vehicle access to residents and essential users (many of whom must pay a yearly charge) and are supported by paid parking schemes in surrounding areas. The general idea is to forbid access to cars, increase the supply of Public Transport and increase the number of parking pricing slots along the LTZ cordons. Rome has implemented a complex Access Control System. The first scheme, supported by electronic gates, was implemented in 2001, in order to safeguard the central area of the city. After two years since the 9 of 12 implementation of the central LTZ scheme, once the automatic system had been tested and fine-tuned, other “sensitive areas” and “sensitive time bands” have been identified and a decision to limit car traffic has been issued and implemented according to a daily and night scheme, showed in the following picture. Daily and nightly LTZ schemes controlled by e-gates in Rome The enforcement is different upon the zones, e.g.: Mon-Fri 6.30-18.00 and Sat 14.00- 18.00 for the City Center LTZ; Fri-Sat 23.00-03.00 for “night” LTZ (eg. Monti, Testaccio). The scheme foresees that in principle people or residents working inside the specific LTZ area can have access by car, upon specific request, registration and payment of a permit, through ATAC offices. There are a number of exemptions: LPT (Local Public Transport), taxis and disabled people have free access; institutions, freight carriers, public utility vehicles, etc that are included in the “authorised” category have the right to a permit if they pay specific tariffs. A “White List” of authorised users is defined and updated, so that non-authorised vehicles that access the LTZ during the enforcement times are detected by the ANPR system and automatically receive a fine of 68 €. These LTZ systems includes the use of presently 54 electronic gates implemented on access roads to the zones that optically detect the plate of vehicles by APNR (Automatic Plate Number Recognition) techniques. As the camera on the e-gate detects a car, a picture of the plate is taken and sent to the control centre. The ANPR allows comparing each plate number to the “White List” database. If there is a mismatch and after a software a fine is automatically issued to that plate. “Traffic restrictions in ZTL's” service available on ATAC mobile, the info-mobility application in Rome or in the website http://atacmobile.it, gives real-time information on the status of each gate. The revenues coming from the payment of the annual fee and from violations are used to recover the environmental externalities and to fund new investments in City Public Transport services . 10 of 12 Automatic plate number recognition process (Municipal Police user interface) & vertical signalling at gates The majority of results come from the ACS+RP scheme of the Central Zone, implemented in 2001 with the support of the electronic Gates. The other schemes are too recent for a lot of data, but generally the registered trend is the same. In general, modal split was influenced by all the changes in the city, but the Access Control and Road Pricing Schemes played major roles, as already highlighted. Before and after data show that, in 2002, modal split in the central area was 30% public transport, 27% private cars, 23% motorbikes/mopeds and 20% pedestrians. The 2005 data revealed that these proportions had switched to 31%, 22%, 24% and 23%, respectively. The most important result is the decrease of private cars in favour of three point increase (percentage) for walking, thus suggesting that citizens reduced their use of the car for trips of short distances. An appreciable reduction in air pollution was measured and emissions strongly decreased and exceeded expectations, partly also due to the ban on diesel and gasoline fuelled vehicles not meeting Directive 91/441/CE requirements from circulating in the Rail Ring area (including all the LTZ zones), which came into force in January 2002. The benefit of the Access Restriction is also evident when traffic flows and illegal through-traffic are considered: the former decreased by 20% during the restriction periods and by 15% in the morning peak hour (8.30-9.30). The proportion of illegal accesses decreased from 18% to less than 10% of the total traffic flows, during the four years of the gates implementation (even though, currently, still about 20.000 vehicles/week illegally access the area). 11 of 12 2003 2002 2004 2005 60% 180 00 I trim II trim III trim IV trim I trim II trim III trim IV trim I trim II trim III trim IV trim I trim II trim III trim 160 00 50% 140 00 40% 120 00 100 00 30% 80 00 60 00 20% 40 00 10% 20 00 0 0% Valore assoluto degli accessi sanzionabili nel periodo di esercizio Valore percentuale degli accessi sanzionabili rispetto alla domanda di accesso Trend of the fines for access violation in Rome LTZ historical centre: years 2002 - 2005 top ↑ 12 of 12