Te whakaheke i ngā haukino ā-waka i ngā waka whenua Reducing harmful vehicle emissions from road transport

The original HAPINZ study was published in 2007 and updated in 2012. The 2012 report found that harmful emissions from vehicles cause 256 premature deaths every year in New Zealand, with social costs of NZD$934 million. The report also identified that diesel vehicle emissions were the largest contributor to poor air quality in Auckland City.

We are part of a multi-agency project led by the Ministry for the Environment to update the HAPINZ study into New Zealand’s health and air pollution. This began in December 2019 and the final report is expected to be published in mid May 2022.

First published in 2015 by the Ministry for the Environment and Stats NZ, the updated Environment Aotearoa report noted that New Zealand’s air quality is good in most places and at most times of the year. However, vehicle emissions contributed to poor air quality in places, particularly for nitrogen dioxide pollution, which can cause serious health problems.

On-road vehicles are the largest source of nitrogen oxides and a significant source of particulate matter smaller than 2.5 microns (PM2.5). When vehicles burn fuel they produce a variety of gases and particles that vary depending on the type and quality of fuel used, and the combustion process itself. Many of the most hazardous pollutants are formed from incomplete combustion. The main pollutants emitted are carbon dioxide, carbon monoxide, volatile organic compounds and nitrogen oxides.

While the main source of emissions for nitrogen oxides in 2015 was on-road vehicles, other emission sources included:

• combustion in manufacturing and construction, which includes off-road vehicles such as construction machinery (19%)
• domestic shipping (10%)
• combustion in primary industries (9%), and
• public electricity and heat production (6%).

The 2018 Our Air report found that PM2.5 levels were declining at sites where transport was important, suggesting that polices to reduce emissions are working.

We contributed to both Environment Aotearoa reports.

Environment Aotearoa Our Air 2015 report (external link)

Environment Aotearoa Our Air 2018 report(external link)

We undertook a preliminary investigation into the potential scale of vehicle owners tampering with emissions control equipment and how to address this. We began this work after hearing concerns from the vehicle-related industries and other government organisations.

Tampering with emissions controls by fitting devices intended to bypass them or to avoid repairs can lead to an increase in the levels of harmful emissions released by a vehicle. This is especially a concern for particulates and nitrogen oxides from diesel vehicles, as well carbon monoxide as from petrol vehicles. Many countries are trying to work out how to deal with this issue, as defining and policing tampering can prove difficult.

The Vehicle Exhaust Emissions Rule says that vehicles registered after May 2008 may not be modified in such a way that they might fail the emissions test that forms part of the border inspection process. If a Warrant or Certificate of Fitness inspector suspects the vehicle has been modified, they can make the vehicle undergo a metered tailpipe emissions test before they issue a Warrant or Certificate of Fitness.

We are monitoring international work on tampering related to vehicle emissions control equipment.

We commissioned Covec to prepare a study that identified options, other than implementing vehicle emissions standards when vehicles enter the fleet, to address harmful emissions from vehicles already on the road in New Zealand, particularly in Auckland.

The research process

The research identified and then examined a large number of policy options put in place overseas, including where studies had been published showing the costs and the effects of policy options. The options looked at included introducing localised emission standards, emission charges, low emission zones, road pricing, emissions testing, fuel switching and increases in fuel and road user charges. The report then presented a detailed analysis of options shown to be effective in other countries and that can be applied to a specific region, Auckland in this case. The options considered in detail were Low Emission Zones, regional emissions testing and road pricing. The study included a detailed cost benefit analysis of each of the selected options. 

The research concluded that none of the options considered could guarantee cost effective reductions in emissions. We did not recommend any of the options for further consideration by Government at that time.

In 2012 the Land Transport Rule: Vehicle Exhaust Emissions 2007 was amended to make changes to the requirements relating to exhaust emissions standards for new and imported used vehicles operating on New Zealand roads. Several minor technical amendments were also made.

The Vehicle Exhaust Emissions Amendment Rule 2012(external link)

In 2007, Waka Kotahi NZ Transport Agency began a national monitoring programme to assess vehicle emissions across the state highway network. This assessment used data gathered from selected sites using passive samplers to measure nitrogen dioxide as a proxy for vehicle-related air pollution.

The state highway system accounts for about 12% of New Zealand’s roads and around half of the 40 billion vehicle kilometres New Zealanders travel each year. Motor vehicles travelling on roads emit an array of air pollutants which can harm human health and create smog.

National air quality (NO2) monitoring network(external link)

As part of a package of measures being developed to improve air quality, Cabinet agreed to raise the emission standards in order to reduce emissions of vehicles being imported into New Zealand.

These measures were included in the Vehicle Exhaust Emissions Rule 2007, which was released for consultation in May 2007. The amended Rule came into effect in November 2007.

Why the Rule needed amending

The previous 2006 Rule set out emissions standards that largely existed at the time of its original drafting in 2002. Since then many of those standards had been updated internationally. A revision was required to bring New Zealand into line with other countries.

Consultation feedback

Proposals affecting used vehicles received the most attention from submitters and in the media. Submissions from those involved in importing used vehicles were strongly opposed to the Rule as proposed and wanted timing of specific standards delayed. Most of these submissions cited research from 2006 saying the Rule would have little effect on levels of harmful emissions over 10 years. Submissions from the new vehicle industry and those interested in air quality generally supported the Rule as drafted.

We also commissioned Covec to undertake further environmental and economic modelling and considered this along with the submissions in revising the proposed Rule.

What the new Rule covers

The amended Rule:

• updated minimum standards for new vehicles imported into New Zealand
• required tighter emissions standards for used vehicles imported into New Zealand
• introduced emissions testing of used vehicles at entry to the New Zealand vehicle fleet
• clarified that vehicles must be fitted with on-board diagnostic equipment if required by the emissions standard to which they have been manufactured
• prohibited removal of, or tampering with, a vehicle's emissions control equipment if such an action would adversely affect the vehicle's emissions
• provided for certain vehicles that do not have to comply with the Rule.

Land Transport Rule: Vehicle Exhaust Emissions 2007(external link)

In late 2004 and early 2005, we carried out public consultation on proposals for in-service emissions testing as part of Warrant and Certificate of Fitness requirements for all vehicles on New Zealand roads.

In June 2005 Cabinet decided not to proceed with the tests following advice it would be more expensive and less effective than originally anticipated. However, Cabinet did agree to amend the Vehicle Exhaust Emissions Rule to introduce requirements for a visible smoke test, to check vehicles do not emit a continuous stream of smoke for a certain amount of time. This came into effect in October 2006 after a regulatory impact and business compliance cost statement were completed.

Among the key documents that influenced the 2005 decision not to proceed with in-service testing were the draft results from a pilot programme of testing of petrol and diesel vehicles. The final versions of the petrol vehicle and diesel vehicle reports were formally published in March 2006 and December 2006.

How the visible smoke test works

When your car is tested for its Warrant or Certificate of Fitness, the inspectors also check to see if the car is emitting clearly visible smoke out of the tail pipe. To do this, they check your car does not emit smoke:

• for a continuous period of 5 seconds when the engine is idling, or
• as the engine is being rapidly accelerated to approximately 2500 rpm or approximately half the maximum engine speed — whichever is lower. 

If your car produces clearly visible smoke during the test, you must repair it before you can drive it again.

The Land Transport Rule: Vehicle Exhaust Emissions 2003 was the first Rule to set emissions standards for vehicles entering New Zealand.

It set minimum standards for new vehicles, and required older vehicles to have been built to an approved standard applicable at the time of the vehicle’s manufacture. However, this meant older, used imported vehicles only had to meet older and less stringent emissions standards when entering the New Zealand fleet.