Faced with increasing population density and traffic congestion, many cities grappling with air pollution are establishing low emission zones (LEZs) or zero-emission zones (ZEZs).

While LEZs primarily regulate emissions standards for combustion engine vehicles, ZEZs restrict access to only zero-emission vehicles like electric cars, bicycles, and pedestrians.

According to the Washington, D.C.-based World Resources Institute (WRI), ZEZ policies are cost-effective and can significantly reduce emissions, offering both environmental and economic benefits. Well-designed ZEZs can reduce traffic volume, alleviate congestion, and accelerate the growth of the electric vehicle market.

Despite the potential benefits, ZEZs also face concerns about socioeconomic impacts. For example, the cost of electric vehicles or limited access to transportation services could disproportionately affect low-income residents and vulnerable groups living within the zones. Small businesses, particularly those involved in transportation and logistics, may also face challenges in reaching customers, potentially disrupting food and goods supply chains.

Although ZEZs are a relatively new and evolving concept, several cities have begun implementation. A 2024 WRI report identified about 10 cities globally that have officially launched or announced ZEZ pilot projects: Rotterdam, Amsterdam (Netherlands), London, Oxford (England), Brussels (Belgium), Santa Monica, Los Angeles (USA), and Oslo (Norway). 4 Chinese cities – Shenzhen, Foshan, Dongguan, and Hangzhou – have also adopted this model.

Experts suggest that these pioneering cities offer valuable lessons and best practices for other urban areas.

An electric two-wheeler delivery driver navigates Qiao Xiang Road in Shenzhen, China. Photo: Reuters

An electric two-wheeler delivery driver navigates Qiao Xiang Road in Shenzhen, China. Photo: Reuters

Upgrading from low to zero emissions

According to the Washington, D.C.-based International Council on Clean Transportation (ICCT), zero-emission zones can be a natural progression from existing LEZs. Cities with established LEZs can transition to ZEZs by gradually tightening emissions criteria.

For example, Amsterdam plans to establish a ZEZ in its city center this year, applying to all vehicles except passenger cars. Only zero-emission motorcycles and scooters will be permitted within the urban area. The city’s long-term goal, outlined in its 2019 "Clean Air Action Plan," is to progressively tighten LEZ criteria to create a city-wide ZEZ for all motor vehicles by 2030.

Eindhoven (Netherlands) also plans a city-center ZEZ for trucks, delivery vans, and buses, with a goal of transitioning to all zero-emission vehicles by 2030. Similarly, Paris plans to gradually transform its current LEZ into a ZEZ by 2030 for all vehicles.

However, a pre-existing LEZ isn’t a prerequisite for ZEZ implementation, as demonstrated by Oxford, Shenzhen, and Rotterdam. "Each city should choose the approach best suited to its local goals and conditions. It's feasible for LEZs and ZEZs to coexist within a city, applied to different vehicle types or areas," the ICCT report states.

Starting with trucks

Some cities prioritize transitioning trucks to zero emissions first. Banning gasoline-powered cars from city centers can trigger public backlash, especially if it affects access to workplaces, schools, or daily activities. Furthermore, while the market share of electric passenger cars is rapidly growing (22% in the EU, 35% in China, and 9% in the US in 2023), electric truck adoption remains low, necessitating incentives like ZEZs.

Amsterdam, for instance, initially proposed a city-center ZEZ for all vehicles by 2030. However, due to public concerns, the city postponed restrictions on passenger cars and shifted focus to implementing a ZEZ for trucks within the A10 ring road from 2025. The initial phase will prioritize light trucks and vans, as electric options for heavy-duty, long-haul trucks are limited and expensive.

Dongguan and Hangzhou (China) are banning diesel trucks from their ZEZs, aiming to eliminate heavy-duty trucks from city centers. According to WRI, most cities in their study initially restrict diesel or gasoline trucks when implementing ZEZs. London and Oxford are also piloting restrictions on passenger cars, but only on short stretches of road under 1 km.

Small-scale pilots

Cities must ensure ZEZ implementation doesn't disrupt supply chains or urban socioeconomic activities. Therefore, they often start small, like Shenzhen.

As part of its 2018 "Green Shenzhen" sustainable development initiative to control air pollution, the city established 10 ZEZs. To minimize public resistance, the government designated small, high-visibility areas totaling 22 km2, representing only about 1.1% of the city's area. These zones, ranging from 0.37 to 5.4 km2, are located in the centers of inner-city districts often experiencing high air pollution, traffic congestion, and parking shortages.

Some ZEZs are situated near government offices or public schools to leverage public procurement of electric vehicles and mitigate negative impacts on residents. In 2023, Shenzhen added 6 new ZEZs near universities and public parks.

Similar to Shenzhen, most cities in the WRI study started or planned ZEZs in areas ranging from 4 to 31 km2. Some are also exploring locations beyond city centers. For example, China is considering ZEZs (or ultra-low emission zones) in industrial areas, seaports, rail yards, and airports.

Supporting small businesses

Small transport companies within ZEZs are particularly vulnerable to new regulations. In Rotterdam, during the transition to electric vehicles, these companies voiced concerns about the high costs of purchasing new vehicles. The city responded by expanding subsidies for electric trucks, providing cost consultations, information on tax exemptions, guidance on charging solutions, and free electric vehicle trials.

To allow businesses ample preparation time, Rotterdam implemented a lengthy transition phase. The ZEZ policy, covering 13 km2 and restricting various truck types, was announced in 2020, about 4 years before enforcement. An additional 3-5 year transition period for phasing out gasoline and diesel vehicles (Euro V and VI standards) was also implemented to give businesses time to adapt and wait for electric vehicle prices to decrease.

The city is also expanding its charging station network in public parking lots and major destinations like distribution centers, offices, and transfer stations. They are also addressing compatibility issues between different charging stations and the impact of vehicle charging on the power grid.

WRI emphasizes that accelerating the transition to zero-emission vehicles is crucial for improving air quality, reducing health risks, and cutting emissions harmful to the climate and environment. Implementing ZEZs can be challenging, but cities like Amsterdam, Shenzhen, and Rotterdam have demonstrated its feasibility.

"However, it's essential that these policies avoid negatively impacting small transport companies and residents, while delivering additional benefits like improved operational efficiency and reduced congestion," WRI recommends.

Phien An (according to WRI, ICCT)