CLEAN FUELS Targets Key Regions 95 Where We Stand Today 96 Vehicle emissions standards 96 Fuel quality standards 97 Barriers to progress in China 98 Policy and political barriers 98 Financial barriers 98 Technical barriers 99 Lessons Learned from China’s Experience 99 9. How to Implement a Clean Fuels and Vehicles Program 100Educate the Public and Get Their Support 100 Determine Who Are the Decision-makers that Must Be Convinced to Act 101 Find a Champion or Champions 101 Determine the Most Appropriate Tool or Tools in Your Circumstance 1024Develop a Strategy to Get Decision - makers to Act 102 Marshall the Facts 102 Enforcement 103 Fuel inspection and compliance programs 103 Governance 103 The Regulatory Organization people 104 Regulatory Development Team 104 Compliance Promotion 105 Enforcement 105 Regulatory Administration and Operations 106 Overview of US EPA’s fuel compliance program 108 Regulated parties 108 Enforcement approach 108 Fuel and fuel additive registration 110 Fuel testing and compliance reporting 111 Industry-paid independent lab testing 111 Industry-paid independent auditing of refinery reports and lab records 111 Presumptive liability and industry-funded field surveys 111 EPA field audits and inspection 112 Non-compliance penalty 112 Results and costs of the enforcement program 113 Vehicle compliance and enforcement program 113 Pre-production certification testing 114 Confirmatory testing 115 Selective enforcement audit SEA 116 In-use surveillance and recall testing program 117 In-use verification testing program IUVP 118 Recalls 119 Warranty and defect reporting 119 10. Appendix A EU Emissions Standards 121 11. Appendix B US EPA Tier 3 Program 123Heavy-Duty Vehicle Tailpipe Emissions Standards 127 Evaporative Emission Standards 129 Onboard Diagnostic Systems OBD 131 Emissions Test Fuel 131 Fuel Standards 132 Other relevant references 1335 CLEAN FUELS AND VEHICLES TOOLKIT6 1. BACKGROUND The transport sector is a major source of air pollution and CO2 emissions. These emissions are set to increase sharply as the global vehicle fleet is projected to grow to between 2 and 3 billon vehicles by 2050 – with almost all of this growth taking place in developing and transitional countries. The sector remains the main source of urban air pollution in many developing and transitional countries, contributing over 50 of urban air pollution in many cities. The key pollutant is fine particulate matter PM causing an estimated 3.2 million premature deaths annually World Health Organization, April 2014, with the transport sector being a major contributor. One component of PM, black carbon, is an important climate pollutant. In addition, the sector contributes nearly one quarter of global CO2 emissions. This share is set to rise to at least one third by 2050 unless significant steps are taken. Developed countries have made major investments to introduce cleaner and more efficient modes of transport and vehicles emissions have been reduced sharply. Similar approaches to promote the use of cleaner fuels and vehicles need to be adopted by developing and transitional countries, where the bulk of vehicle growth is now taking place. The Partnership for Clean Fuels and Vehicles PCFV, the leading global public-private partnership to promote cleaner fuels and vehicles, has been working with developing and transitional countries to reduce vehicular air pollution through the promotion of cleaner fuels and vehicles. Today, the PCFV with its Secretariat hosted at UNEP’s Transport Unit, within the Division of T echnology, Industry and Economics has a global reach of 73 partners. These partners are drawn from the private sector oil and vehicle industry, government developing and developed, international organizations and the civil society. In the coming years, the PCFV will focus on the following two major campaigns, as agreed by partners at an Extraordinary PCFV Partners meeting that was held in London in October 2012, ten years following the launch of the PCFV; A campaign aimed at gasoline 1fueled vehicles to complete the phase out of leaded gasoline and to support countries to adopt measures to ensure that only catalyst equipped vehicles will be added to their fleets. For consistency, gasoline is used throughout even though many countries refer to this fuel as petrol. 1 For consistency, gasoline is used throughout even though many countries refer to this fuel as petrol.7 A campaign to promote the introduction of low sulfur fuels of 50 ppm or less hand in hand with the support for the development and adoption of vehicles emissions standards. Reducing sulfur levels in diesel fuels is especially important in reducing the smallest particulates and black carbon and can reduce vehicle emissions in two ways, by reducing direct emissions of both sulfur dioxide and sulfate particulate matter from all vehicles - old and new, and by improving the effectiveness of vehicle emission control technologies such as diesel particle traps resulting in decreased vehicle emissions of particulate matter PM, carbon monoxide CO, hydrocarbon HC and black carbon BC. These two campaigns introduce a systems approach to the PCFV work. This regulatory toolkit is meant to introduce the need for a systems approach to vehicle emission reduction in developing and transitional countries. Developed countries have used different tools to move to stricter fuel quality and vehicle emission standards. However, it is important to note that in spite of these differences, these countries have had a clear and concise road map – a systems approach that matches fuels and vehicle improvements - to move towards tighter vehicle emissions regulations. A similar approach is missing in most developing and transitional countries. Through PCFV support, many developing and transitional countries have adopted targets and roadmaps to introduce lower sulfur fuels, after completing the phase-out of leaded gasoline. For optimal environmental and mechanical perance, fuels and vehicle standards are best developed and introduced in a ”systems approach” where vehicle standards are developed and implemented in coordination with the appropriate fuel standards. Unfortunately, the adoption of cleaner fuels and vehicle emission standards in most developing countries is not coordinated, and lacks a clear long term strategy. As a result the potential emissions reductions expected from moving to cleaner fuels are not fully achieved. A systems approach to fuels and vehicles regulations will thus ensure that countries apply a long term strategy and outlook to their roadmap towards cleaner fuels and vehicles regulation and link the phased introduction of cleaner fuels with those of cleaner vehicles. This toolkit will assist developing and transitional countries to establish a systems approach to clean fuels and vehicles regulations. The toolkit will support countries to introduce 50 ppm and lower sulfur fuels, import lower emitting and more efficient vehicle technologies, establish vehicle emissions control roadmaps and ultimately improve air quality and human health in these countries. The toolkit will also contain specific case examples for developing and transitional countries to integrate cleaner fuels and vehicles emission standards. 8 The main focus of the toolkit will be on light duty vehicles regulations, which is also the focus area of the PCFV. However, a heavy duty vehicles component may also be included. The regulatory toolkit is available online, as an interactive toolkit on the PCFV website - http//www.unep.org/Transport/new/PCFV/, and the cutive summary is also available in hard copy for distribution in developing and transitional countries. 9 2. INTRODUCTION Over approximately the last twenty-five years, extensive studies have been carried out to better establish the linkages between fuels and vehicles and vehicle emissions. One major study, the Auto/Oil Air Quality Improvement Research Program AQIRP was established in 1989 in the US and involved 14 oil companies, three domestic automakers and four associate members. 2Likewise, in June 1993, a contract was signed by the auto and petroleum industries to undertake a common test program, called the European Program on Emissions, Fuels and Engine T echnologies EPEFE. In Asia, The Japan Clean Air Program JCAP was conducted by Petroleum Energy Center as a joint research program of the automobile industry as fuel users and the petroleum industry as fuel producers, supported by the Ministry of Economy, Trade and Industry. 3The second phase of the JCAP program focused on future automobile and fuel technologies aimed at realizing Zero Emissions while at the same time improving fuel consumption, with a special focus on studies of fine particles in exhaust emissions. The most important lesson learned and reinforced from these studies is that with regards to vehicle emissions, vehicles and fuels are a system and need to be treated as such. A clear historical example of this reality is the close linkage between the requirement for lead-free gasoline as a precondition for the introduction of catalytic converter technology to reduce the CO, HC and nitrogen oxides NOX which would otherwise be emitted in large quantities from gasoline-fueled vehicles. The more current example is the necessity of lowering levels of sulfur in gasoline and diesel fuel to enable the use of certain advanced pollution control technologies; in fact it is now understood that sulfur levels must be reduced to near zero if the maximum benefits are to be achieved by the most advanced technologies used with combustion engines today. 2 “Auto/Oil Air Quality Improvement Research Program, Final Report” , January 1997. 3 The program consisted of two stages the first stage called JCAP I commenced in FY 1997 and terminated in FY 2001; the second called JCAP II commenced in FY 2002 and continued until 2007 to provide a further development of the research activities of JCAP I.10 GOAL AND STRUCTURE OF THE TOOLKIT Relying heavily on each of studies establishing the linkages between fuels and vehicles and vehicle emissions, as well as other recent work, this toolkit will provide ination to policy makers in developing countries that will assist in enabling the development of a regulatory framework to address vehicle emissions and fuel quality, including technical and policy background and case studies of existing regulatory approaches. The toolkit first summarizes what is known about the impact of fuel sulfur content on vehicle emissions and assesses the implications for the phase-in of tighter new vehicle standards. The second section summarizes the impact of sulfur in gasoline and diesel fuel on vehicle emissions within the context of the emissions standards that the affected vehicles are designed to meet. The last section summarizes the approaches including regulatory governance taken by various countries to require or stimulate lower sulfur fuels and more stringent vehicle standards. Gasoline Vehicles and Fuels General Description of gasoline fuel parameters Gasoline is a complex mixture of volatile hydrocarbons used as a fuel in internal combustion engines. The emissions of greatest concern from gasoline-fuelled vehicles are CO, HC, NOX, PM 4and certain toxic hydrocarbons such as benzene, aldehyde, acetaldehyde, and 1,3-butadiene. Each of these can be influenced by the composition of the gasoline used by the vehicle. The most important characteristics of gasoline with regard to its impact on emissions are sulfur concentration, volatility, aromatics, olefins, oxygenates, and benzene level. Impact of Gasoline Composition on Vehicle Emissions The following table summarizes the impacts of various gasoline fuel qualities on emissions from light duty gasoline vehicles as a function of European 5emissions standards. 4 Traditionally gasoline fueled vehicles have not been a significant source of PM but newly emerging gaso- line direct injection technologies can emit much higher levels of particulate. 5 Other than Japan, the United States and Canada, most countries follow the European fuels and vehicles