SI-MO – Sustainability Indicators – Malta Observatory Report on Air Quality Sustainability Indicators First Draft Adrian Mallia 23 July 2001 SI-MO – Sustainability Indicators – Malta Observatory Report on Air Quality Sustainability Indicators First Draft 23 July 2001 Adrian Mallia B.Sc M.Sc CBiol MIBiol MIEEM Background In November 2000, the OECD, through the University of Athens entered into a contract with the Foundation for International Studies of the University of Malta, to undertake a research programme entitled MED-ERMIS – MALTA. MED-ERMIS (Mediterranean Environmental Reporting Monitoring and Information System) aims to increase the capacity for observing environmental data and to set up a system for monitoring and reporting sustainability indicators. For this purpose, SI-MO (Sustainability indicators – Malta Observatory) was set up and started functioning in February 2001. In April 2001, the author was engaged to research the applicability of air quality sustainability indicators to Malta. This report gives an overview of the concept of sustainability indicators, reviews the use of such indicators by a number of international organisations and individual countries and proposes air quality indicators for Malta. These indicators are divided into two-tiers, mainly depending on the availability of data or ease of computation. Introduction Indicators are essentially parameters, or values derived from such parameters, which provide information about a phenomenon, environment or area but whose significance goes beyond that directly associated with the parameter value (OECD, 1993). Indicators have a specific meaning and a specific purpose so that they normally possess two distinct functions: a) they facilitate analysis of the big picture through a rough and ready collection of information involving a reduced number of measurements and parameters in a way that would not be possible for more detailed assessment of the “exact” situation; and b) they aid in the communication of the results to the users and the general public by presenting normally complex situations in a succinct and simplified manner. Hence, indicators are largely approximations of the “real” picture and therefore may not always meet the strict scientific demands to demonstrate causal chains. Therefore they should at best be considered as an expression of the “best available knowledge” on the subject. Also, since indicators are used for widely varying purposes, it is important that they be based on well-defined criteria. One such set of criteria is that established by the Organisation for Economic Co-operation and Development (OECD)1 which include: a) b) c) policy relevance; analytical soundness; and measurability. (OECD, 1993) Although indicators have been in use for several years, most of the earlier applications related to economic data. Only after the United Nations Convention on Environment and Development (Rio Convention, 1992) was a major emphasis laid on the use of environmental indicators in policy formulation and decision-making. Since then, environmental indicators, and later sustainability indicators, have been developed by a number of international organisations such as the OECD, the Mediterranean Action Plan/BluePlan, the EU and the World Bank. In the last decade or so, the popularity of environmental indicators has also increased due to their applicability to other forms of environmental analysis, such as State of the Environment Reports and Environmental Impact Assessment. Although possibly the most attractive aspect of environmental indicators is their use in the assessment of performance, whether of a project, of industry or of a whole nation. With the advent of Strategic Environmental Assessment, especially with the upcoming EU directive on the subject, and the recent decisions by the EU Council of Ministers meeting in Göteborg wherein it was decided that the ecological dimension in the strategy for sustainable development must be given the same prominence as social and economic considerations in policy formulation, popularity and applicability of such indicators is bound to increase. What are sustainability indicators? Sustainability indicators constitute a practical tool that can be used to help communities develop in more sustainable directions. While economic indicators are a familiar source of information on the economic performance of a country, however, these indicators are inadequate at describing progress in social and environmental directions. Sustainability indicators attempt to fill this information gap. Sustainability indicators have three central functions: a) to simplify the main concepts related to sustainable development; 1 See Table A – Criteria for Indicator Selection (OECD, 1993) attached as Appendix 1 b) to quantify and measure aspects of sustainable development; and c) to communicate them to the public and policy makers (Planning Authority, 1997) Through these central functions, sustainability indicators help policy makers and the public monitor progress in the country’s sustainable development path, while inspiring people to take individual action and instigating change towards more sustainable directions (Planning Authority, 1997). Indicators in current use As mentioned above, different types of indicators exist or have been proposed by different organisations for different needs. Among the more widely used indicators are those developed by the OECD, the Mediterranean Action Plan/BluePlan, the EU and the World Bank. The following is a brief overview of the more popular sets of indicators. Organisation for Economic Co-operation and Development (OECD) Users of indicators often have widely differing needs so that it is common for indicators to be tailor-made for specific needs and to be developed and organized around specific frameworks established for a specific purpose. These frameworks are not necessarily governed by a unique set of criteria and they can also change as newer information on the functioning of the environment becomes available and society’s values evolve. In this context, the OECD developed the Pressure-State-Response (PSR) framework (OECD, 2001). The PSR framework (Figures 1 & 2) is based on a concept of causality: human activities (transport, agriculture, energy generation, development) exert pressures on the environment (air, water, land, ecosystems) and change its quality and the quantity of natural resources (the so-called "state" box). Society responds to these changes through environmental, general economic and sectoral policies (the "societal response"). The latter form a feedback loop to pressures through human activities (OECD, 1993). This framework is based on three sets of indicators – Indicators of Environmental Pressures, Indicators of Environmental Conditions and Indicators of Societal Responses. In a wider sense, these steps form part of an environmental (policy) cycle, which includes problem perception, policy formulation, monitoring and policy evaluation. Following from the PSR Framework, the OECD established a “Core Set of Environmental Indicators” (OECD, 1994). These are a commonly agreed upon set of indicators for OECD countries and for international use. They are published regularly and cover issues that reflect the major environmental concerns in OECD countries. The publication incorporates major indicators derived from sectoral sets as well as from environmental accounting, e.g. intensity of water use or of forest use (OECD, 2001). TO ADD FIGURES 1 AND 2 The purposes of these indicators, as established by the OECD, are: to keep track of environmental progress; to ensure integration of environmental concerns into sectoral policies (e.g. transport, energy and agriculture); to ensure integration of environmental concerns into economic policies; and to use indicators to measure environmental performance and to help determine whether countries are on track towards sustainable development. (OECD, 1998) Blue Plan/Mediterranean Action Plan (MAP) Another widely used set of indicators are those developed by the Mediterranean Commission on Sustainable Development (MCSD), created in 1996, and by the Blue Plan, one of the regional activity centres of the Mediterranean Action Plan (MAP) of the United Nations Environment Programme (UNEP). The indicators, known as Indicators for Sustainable Development (ISD) were the first step towards the establishment of a Mediterranean evaluation system which aimed to build upon the environment and development theme (Plan Bleu, 2000) The result was a set of 130 ISD which were formally adopted by the Contracting Parties of the Barcelona Convention in October 1999. Of the 130 indicators, the first 50 indicator sheets have since been published. These include 13 indicators on “Population and Society”, 7 indicators on “Lands and Areas”, 23 indicators on “Economic Activities and Sustainability”, 6 indicators on “Environment” and 1 indicator on “Exchanges and Cooperation in the Mediterranean”. These indicators too are based on the Pressure-State-Response framework pioneered by the OECD. The European Union In 1997 the European Union, through EUROSTAT, embarked upon a project aimed at establishing environmental pressure indicators for all 15 EU Member States. The project, known as “Towards Environmental Pressure Indicators for the EU (TEPI)” is a multi-annual project. The objectives of the TEPI project are: a) to calculate and present the six priority pressure indicators in each environmental policy field for all 15 EU Member States, and b) to present, where possible, the contributions of the economic sectors to the environmental pressure. (EUROSTAT, 2001) The project reflects the efforts undertaken by the European Commission to provide decision-makers and the general public with the information necessary for the design and monitoring of an adequate environment policy for the European Union. This was one of the main considerations emanating from the European Commission’s Communication to the Council of Ministers and European Parliament titled: "Directions for the EU on Environmental Indicators and Green National Accounting" (COM (94) 670 final, 21.12.94) (EC, 1994). The first edition of the TEPI report included 60 indicators. These were produced from a number of sources, varying from existing EUROSTAT data to data available at other international institutes or new data. This obviously resulted in varying accuracy of the data and therefore the indicators are accompanied by a quality assessment based on traffic light colours (“Good” – green; “Medium” – Orange; “Deficient” – Red) for the following criteria: A) B) C) D) Relevancy Accuracy Comparability over time Comparability over space (TEPI website, 2001) Further work on the TEPI indicators resulted in a reduction of indicators to 48 when the second edition was published. These give a comprehensive description of the most important human activities that have a negative impact on the environment, such as emissions of pollutants, waste production, land use and noise (Eurostat, 2001). The World Bank The World Bank also uses indicators. In this case, the indicators used are based on social, economic and environmental parameters. The latest publication by the World Bank on the subject is “World Development Indicators (WDI) 2001”. This is the Bank’s annual compilation of data about development and includes 800 indicators in 87 tables, organised in six different sections. These are: world view, people, environment, economy, states and markets, and global links. The tables cover 148 economies and 14 country groups—with basic indicators for a further 59 economies (World Bank, 2001). Apart from the above international organisations, individual countries have also established a set of environmental or sustainability indicators for local, regional or national use. These include Canada, the United Kingdom, certain states of the USA, the Netherlands, Norway and, more recently, Finland. The vast majority of this activity has taken place in the 1990s so that most of this work is pretty recent. Air Quality as an indicator of sustainability Clear and clean air is essential to protect human health and the environment. Good air quality is a fundamental aspect of the quality of life and is an essential component of sustainable development. So much so that several countries have identified urban air quality as a major indicator for sustainability. Poor air quality can contribute to ill health, resulting in elevated numbers of hospital admissions annually and in some cases also deaths. Poor air quality also has environmental impacts, such as acid rain, eutrophication2 of lakes, streams, rivers and bays and damage to vegetation, buildings, monuments and fittings. Emissions to the atmosphere, for example, from traffic and industrial activity, impact air quality on both a local and national scale. It is now clear that emission of some substances, for example, emissions of greenhouse gases (such as carbon dioxide and methane) and ozone depleting chemicals also have international and global environmental impacts. Emissions of sulphur dioxide (SO2) and oxides of nitrogen (NOx) have contributed to the acidification of sensitive ecosystems in northern Europe and elsewhere. In the UK alone, it is estimated that air pollution brings about no less than 24,000 hospital admissions annually. Air quality problems also have international overtones since air respects no national political boundaries but is rather a “global commons”. Deterioration of the quality of the air in one place can have impacts on localities downwind. In some cases, solutions at one locality caused deterioration in the quality of the air in another. Hence, air quality is an important environmental parameter that requires constant monitoring and therefore the use of specific air quality indicators are essential in any set of sustainability indicators. In order to determine the state of the air in a particular country and therefore the adverse environmental effects created as a result of air pollution, the quality of the air must be measured and changes in it tracked over a period of time. However it is impossible to monitor all potential air contaminants. Hence, a few “priority” pollutants are selected that can give a representative picture of air quality. These can be used as indicators. Indicators in practice All published sets of environmental or sustainability indicators include aspects of air quality. These can be direct indicators on emission levels of specific pollutants, composite indicators on, say, emissions of greenhouse gases or indirect indicators having a bearing on or themselves influenced by air quality, such as indicators on traffic density. The following sections give an overview of the air quality related indicators used in sets of indicators established by the OECD, the MAP/Blue Plan, the European Union, the World Bank, the New Zealand Ministry for the Environment and the Scottish Environment Protection Agency. 2 Eutrophication is the phenomenon whereby aquatic plants undergo rapid growth due to overnourishment resulting from excess nutrients in the water, normally a result of organic pollution. OECD The Core Set of Indicators established by the OECD includes a number of air quality related indicators. These relate to issues such as Climate Change and Stratospheric Ozone Depletion as well as acidification (indirectly) and urban environmental quality. Slightly different indicators may be applicable in each case, although several of the indicators are related or have similar or equivalent data sources. The OECD also classifies the indicators according to whether they are first choice or proxies for indicators that are less easily measurable. All indicators are also classified on the basis of availability (or the ease of data collection). Hence, indicators are indicated as being either measurable in the short term (S), requiring additional empirical work and data collection effort and therefore only measurable in the medium-term (M) and those measurable in the long-term since they need significant data development work (L). TABLE 1 – Table showing Air Quality indicators used in the OECD Core Set of Indicators PRESSURE STATE RESPONSE Indicators of Indicators of Indicators of social environmental pressures environmental conditions responses Climate S M/L Index of M Atmospheric Energy Change greenhouse gas concentrations efficiency S emissions* of greenhouse Energy gases* CO2 emissions intensity Global mean S Economic and M temperature* fiscal instruments Ozone Layer Index S/M CFC recovery M of M Atmospheric Depletion apparent concentrations rate* consumption of of ozone ozone depleting depleting substances* M substances* Ground-level S/M Apparent UV-B consumption of radiation* CFCs and halons Acidification Index of M/L Concentrations S % of car fleet S/M acidifying in acid equipped with substances* precipitation catalytic S converters* Emissions of NOx and SOx Capacity of SOx M/L and NOx abatement equipment of stationary sources* Issues PRESSURE Urban Environmental Quality General indicators, not attributable to specific issues Urban air emissions: SOx, NOx, VOC* Traffic density -- urban -- national Road traffic volumes* STATE M/L Population exposure to: -air pollution* RESPONSE L M M S S Economic, fiscal and regulatory instruments* Pollution control and abatement expenditures M S/M Note: indicators marked with an (*) are “main” indicators. Source: OECD, 1994 MAP/Blue Plan The Blue Plan has, over the past years, developed a number of projects relating to indicators in the Mediterranean region. Currently there are two kinds of projects underway: a) The Environmental Performance Indicators Project (EPI) - this aims at promoting the use of environmental performance indicators as a means of assessment of policies or projects in relationship to environmental goals in the 13 Mediterranean countries or territories benefiting from the METAP programme. The project has focused on 4 topics (waste, air quality, water quality and water resources). b) The Indicators for Sustainable Development Project (ISD) – this aims more generally at developing indicators of progress towards sustainable development in the 20 Mediterranean-rim countries, the Contracting Parties to the Barcelona Convention. These indicators are not only environmental but encompass also economic and social development and future generations. This work has been undertaken through the Mediterranean Commission on Sustainable Development and has been tested at national level (Morocco, Slovenia and Tunisia) and local level (the Malta CAMP 3). This activity made it possible to arrive at the recommendations adopted in November, 1999, in Malta by the Contracting Parties, especially including the adoption of a "joint set" of 130 indicators for sustainable development in the Mediterranean. In their proposed set of 130 indicators, MAP/Blue Plan have currently outlined two air quality indicators. These relate to “Emissions of Greenhouse gases” and “Consumption of Ozone Depleting Substances”. 3 The Coastal Area Management Programme for Malta is a project financed by the Priority Actions Programme (PAP) of the United Nations Environment Programme (UNEP) and the Government of Malta. The indicator dealing with greenhouse gases is essentially an aggregate indicator of the main man-made green house gas (GHG) emissions. These include carbon dioxide (CO2), methane (CH4) and nitrous oxide (N20). These gases are those mainly responsible for the greenhouse effect. This indicator can also be expressed as a percentage of reduction in aggregated emissions since 1990. In this way, it offers an immediate view of each country’s efforts to reach the targets established by the Convention on Climate Change. The indicator on consumption of ozone depleting substances is the sum of annually consumed quantities of organic substances containing chlorine or bromine, which substances deplete the stratospheric ozone layer. Consumption here is the sum of production plus imports minus exports of controlled substances as defined by the Montreal Protocol4 (UNEP, 2000). The indicator is expressed in tonnes of ozone depleting substances weighted by their ozone depleting potential (ODP). This indicator essentially aims to highlight the decrease in the consumption of ozone depleting substances as envisaged in the timetables established by the contracting parties of the Montreal Protocol. The phasing out of damaging substances and their replacement by less reactive substances would bring about a recovery of the ozone layer. Other indicators having a bearing on air quality include the following: a) Annual energy consumption per inhabitant b) Number of passenger cars per 100 inhabitants5 c) Structure of transport by mode (i.e. road, rail and air) The European Union The first TEPI project of the European Union utilised a number of indicators related to Air Pollution and Climate Change. These are: Code Indicator Definition Air Pollution AP1 AP2 AP3 AP4 AP5 AP6 Emissions of nitrogen oxides (NOx) Emissions of non-methane volatile organic compounds (NMVOCs) Emissions of sulphur dioxide (SO2) Emissions of particles Consumption of petrol and diesel oil by road vehicles Primary energy consumption Kt NOx per year Kt NMVOCs per year Kt SO2 per year Kt of particles per year Kt of petrol and diesel oil per year Mtoe per year Climate Change 4 The Montreal Protocol on Substances that Deplete the Ozone Layer (1987) This indicator can be connected to other indicators like traffic congestion in urban surroundings, and gas and particle emissions into the atmosphere. 5 CC1 Emissions of carbon dioxide (CO2) Tonnes CO2 per year CC2 Emissions of methane (CH4) Tonnes CH4 per year CC3 Emissions of nitrous oxide (N2O) Tonnes N20 per year CC4 Emissions of Hydrofluorocarbons (HFCs) Tonnes CO2 per year CC5 Emissions of PerFluoroCarbons (PFCs) CC6 Emissions of Sulphurhexafluoride (SF6) Ozone Depletion Tonnes total emissions CFC-11 per year OD1 Emissions of bromofluorocarbons (halons) OD2 Emissions of chlorofluorocarbons (CFCs) Ditto OD3 Emissions of hydrochlorofluorocarbons (HCFCs) Ditto OD4 Emissions of nitrogen oxides (NOx) by aircraft Tonnes NOx per year OD5 Emissions of chlorinated carbons Tonnes total emissions CFC-11 per year OD6 Emissions of industrially produced methyl bromide Ditto Source: TEPI website, 2001 Data for the compilation of these indicators was obtained from the CORINAIR Inventories of the European Environment Agency (EEA). In the second edition, the number of indicators was brought down to 48 from 60, with some of the indicators being amalgamated into one. The World Bank In the case of air quality (referred to as “air pollution”), the World Bank indicators are restricted to a few of the more important indicators. These are: Carbon dioxide damage as share of GDP Carbon dioxide emissions per capita Carbon dioxide emissions per PPP dollar GDP Total Carbon dioxide emissions Nitrogen dioxide, selected cities Sulfur dioxide, selected cities Suspended particulates, selected cities Source: WDI2001, World Bank website, 2001b These are an improvement over the WDI2000 indicators, which only included the following indicators: Total suspended particulates Sulfur dioxide Nitrogen dioxide micrograms per cubic meter micrograms per cubic meter micrograms per cubic meter Source: WDI2000, World Bank website, 2001b Nonetheless, this list of indicators should be increased further to at least include indicators on other important pollutants, such as carbon monoxide and ozone. New Zealand The New Zealand Ministry for the Environment established an Environmental Performance Indicators Programme in the mid 1990s. This aimed to develop and implement a set of environmental indicators for the country. One such set of indicators was that relating to air quality. Air indicators provide key information with which to measure and report on: the state of New Zealand’s air quality, by comparing monitoring results to air quality guidelines and categories changes in air quality over time (e.g. changes in lead levels in air with the progressive introduction of unleaded petrol) the difference between air quality in urban areas and natural background areas (New Zealand Ministry for the Environment, 2001) In New Zealand, regional councils and unitary authorities are responsible for managing discharges into the air and for ensuring that outdoor air is clean and healthy to breathe. To do this they develop regional air quality plans under the Resource Management Act (1991). These plans contain policies and rules tailored to managing the particular causes of any air quality problems in the region. The ministry also runs an air quality management programme that aims to develop national policies and tools that maintain air quality where it is clean and enhance the air where it has been polluted (New Zealand Ministry for the Environment, 2001). The New Zealand indicators have been developed in two stages. In the case of air quality, Stage 1 indicators included the following: TABLE 2 - Stage 1 Air Indicators Indicator 6 Why it is important? Ambient Air Quality Guideline (1994)6 Ambient Air Quality Guidelines were issued in 1994 by the New Zealand Ministry for the Environment. A table describing the Air Quality Guidelines Categories used is reproduced in Appendix 2. Particles less than 10 Particles cause adverse effects 120 µg/m3 (24 hour average)** microns in diameter on human health and degraded (PM10) visibility such as regional haze Carbon monoxide CO CO causes adverse effects on 10 mg/m3 (8 hour average) human health Nitrogen dioxide NO2 NO2 causes adverse effects on 300 µg/m3 (one hour average)** human health and causes the brown colouration of hazes and smogs Sulphur Dioxide SO2 SO2 causes adverse effects on 125 µg/m3 (24 hour average) human health and on vegetation Ozone O3 Ground level ozone formed by 100 µg/m3 (8 hour average) reactions of other pollutants in the air can adversely affect human health and vegetation * The Ministry for the Environment is currently reviewing the Ambient Air Quality Guidelines to bring them up to date with the latest overseas research ** For regional air quality management, some regional councils have set guidelines or targets that are stricter than the Ministry’s Ambient Air Quality Guidelines Stage 2 indicators were subsequently proposed as possible future development. These are reproduced in Table 3 below: TABLE 3 – Stage 2 Indicators - Proposed Indicators Requiring Further Development Indicator Why is it important? Ambient Air Quality Guideline Visibility Good, clear visibility, Not yet determined unaffected by human sources of pollution, is an important asset for New Zealand that should be protected. Visibility is one of the most commonly used indicators of air quality. Benzene Long term inhalation of Not yet determined benzene can cause adverse effects on human health Particles with a These smaller particles are Not yet determined diameter less than believed to be the most 2.5 microns (PM2.5) important particles causing adverse effects on human health and visibility Lichen diversity/coverage Lichens are very sensitive to Not yet determined air pollution and they provide a living, easy to see indicator of the effects of air pollution Each of the above indicators is supported by specific indicator details (see examples in Appendix 3). United Kingdom The United Kingdom too has established air quality indicators. In 1996 a report entitled “Indicators of Sustainable Development for the United Kingdom was published. This dealt with the three pillars of sustainable development – social progress, economic growth and environmental protection - and established a number of indicators, including health, transport, energy and urban issues. The indicators are divided into headline indicators (15), National Indicators (147), Regional Indicators (9), and Local Indicators (29). Air quality indicators were included under Climate Change, Ozone Layer Depletion, Air Quality, Tropospheric Ozone and Urban Issues. Within the United Kingdom, further indicators were developed in Scotland. The examples quoted below are those established by the Scottish Environment Protection Agency (SEPA, 2001). The air quality indicators used in Scotland are the following: a) b) c) d) e) f) g) h) Sulphur dioxide Benzene 1,3-Butadiene Carbon Monoxide Lead Oxides of Nitrogen Ozone Particulates As is usual, these pollutants have been chosen as indicators from among a host of other pollutants in view of their toxicity, their widespread occurrence and/or history of monitoring (and therefore availability of data). The Scottish Environmental Indicators Strategy (SEPA, 2001), establishes an annual mean value for the pollutant to be reached by a certain date (e.g. 31 December 2003). In some cases, other mean values are given. The different values for the various indicators are reproduced in Appendix 4. Applicability in the local context As with all indicators, those that should ultimately be used should have a sound scientific basis and be representative of the issue being monitored. In the case of air quality, indicators are normally based on a few representative pollutants, some of which being aggregates for a suite of similar types of contaminants (e.g. particulates, oxides of nitrogen, etc.). It is also important that any data collected on which to base the indicator (or to take action following the establishment of the indicator) is representative. In particular air quality indicators must ensure that: (i) the number of days above the Standard recorded at a site in each year are representative of pollutant conditions at the sites; i.e., that on days where Low Pollution is recorded at a site this was not due to the absence of measurements for one or more key pollutants; (ii) there are adequate days of data in each year for data provided from each site to be considered representative of the year as a whole; and (iii) there are adequate sites for these to be representative and a robust trend produced. Locally, two institutions – the Environment Protection Department and the University of Malta, have systematically collected air quality data. The parameters collected by the Atmospheric Research Station of the University of Malta are Ozone and, more recently, Carbon Monoxide (University of Malta, 2001), whereas since 1999, the Environment Protection Department has been undertaking a routine National Air Monitoring Programme. This programme aims: to provide a preliminary assessment of air quality based on scientific criteria; to enable air pollution mapping in the Maltese Islands; and to provide an initial basis for more comprehensive monitoring. This programme involves monitoring of a number of key air pollution parameters, amongst which are sulphur dioxide, nitrogen oxides, ozone, carbon monoxide and particulate matter. This monitoring is carried out using automatic equipment mounted on a mobile station7, which is periodically stationed at 31 different localities in the Maltese Islands (EPD, 2001). The results obtained from the monitoring is then compared with internationally accepted air quality standards as reproduced in Table 4 below: 7 The Environment Protection Department has recently issued a call for tender for the supply for a further mobile station. Apart from the parameters measured to date, the specifications include measurements for BTX (Benzene, Toluene and Xylene). TABLE 4 – Air Quality Standards used in Malta AIR QUALITY STANDARDS Parameter Standard Reference SO2 L)imit V)alue A)lert T)hreshold 44ppb (24hr average) 175ppb (hourly average over 3 consecutive hours) EU Directive 99/30/EC NO2 A)lert T)hreshold 213ppb (hourly average over 3 consecutive hours) EU Directive 99/30/EC O3 P)op. I)nfo. T)hreshold P)op. W)arn. T)hreshold 90ppb (hourly average) 180ppb (hourly average) EU Directive 92/72/EEC CO G)uideline V)alue 9ppm (8 hourly average) WHO PM10 L)imit V)alue 50µg/m3 (24 hour average) EU Directive 99/30/EC Parameter Description SO2 Sulphur Dioxide NO2 Nitrogen Dioxide O3 Ozone CO Carbon Monoxide PM10 Particulate Matter (less than 10µm) Source: Environment Protection Department website, 2001 Examples of the type of air quality data available from the Environment Protection Department is reproduced in Appendix 5. From this information, and assuming that the National Air Monitoring Programme (NAMP) is continued, one can safely say that enough robust data should be available to measure air quality values and to monitor the performance of these indicators. Hence, it would be logical to utilise the values provided by the NAMP and use these as the indicators, basing the values on EU directive or WHO criteria as outlined in Table 4 above. Apart from the above, the measurement of CO2 levels should be actively considered. Secondary level indicators could also be utilised if data is or becomes available. These could include indicators such as: Emissions Emissions of CO2, SOx and NOx per capita Emissions of CO2, SOx and NOx per unit of GDP Economic measures/Incentives Percentage of car fleet equipped with catalytic converters Capacity of SOx and NOx abatement equipment at stationary sources Expenditure for air pollution abatement Amenity/Regulation Traffic density Exposure of population to air pollution Reduction (-ve) / Increase (+ve) changes in area of green space as a percentage of the total urban area/total urban population Regulations on emissions for new cars Percentage of days with good visibility Indicator assessment & classification The above first-level and second-level indicators were assessed on the basis of their ease of computation and availability of data. The following table outlines the results: TABLE 5 – Assessment of Air Quality Indicators and their applicability in the local context Indicator Data availability Ease of computation Source of data Computational Improvements FIRST LEVEL SO2 concentration NO2 concentration O3 concentration CO concentration PM10 levels CO2 concentrations Easily computed EPD Easily computed EPD Easily computed EPD, UoM Easily computed EPD, UoM Easily computed EPD Impossible to compute N/A Only through further investment and extension of monitoring programme Indicator Data availability Ease of computation Source of data Computational Improvements SECOND LEVEL Emissions of CO2 per capita Impossible to compute N/A Emissions of SOx per capita Easily computed EPD, NSO, PA Emissions of NOx per capita Easily computed EPD, NSO, PA Emissions of CO2 per unit of GDP Impossible to compute N/A Emissions of SOx per unit of GDP Easily computed EPD, NSO Emissions of NOx per unit of GDP Easily computed EPD, NSO Percentage of car fleet equipped with catalytic converters ? Somewhat difficult to compute NSO (?) Capacity of SOx and NOx abatement equipment at stationary sources Easily computed EPD Expenditure for air pollution abatement ? Somewhat difficult to compute NSO (?) ? Easily computed PA Somewhat difficult to compute EPD, PA, NSO May require data interpolation from different datasets and organisations and possibly establishment of further monitoring stations ? Somewhat difficult to compute PA Additional data capture to establish baseline and trends Traffic density Exposure of population to air pollution Reduction (-ve) / Increase (+ve) changes in area of green space as a percentage of the total urban area/total urban population Indicator Data Ease of Source of data Only through further investment and extension of monitoring programme Only through further investment and extension of monitoring programme Collection of information from a number of entities and industrial concerns Computational availability computation Regulations on emissions for new cars Impossible to compute (no regulations to date) Percentage of days with good visibility ? Somewhat difficult to compute Lichen Diversity/Coverage (in specific urban localities) ? Symbol ? ? ? Improvements Depends on new regulations Met Office UoM ? Depends on the quality of existing data and the exact definition of “good visibility” in the indicator Requires a baseline survey of lichens in the Maltese Islands (unless available) and a systematic monitoring programme based on an agreed number of monitoring locations Meaning Data readily available Data not available No information Data possibly available Data probably not available CONCLUSIONS & RECOMMENDATIONS Sustainability indicators have a number of inherently positive characteristics. These include: a) provision of detailed and up-to-date information on the state of the environment in line with the recommendations of the Rio Declaration and the Aarhus convention; b) improving public awareness about environmental and sustainability issues, which may lead to lifestyle changes; c) provision of a tool for environmental and economic policy-making within a sustainability framework; This report has assessed the suitability of including air quality indicators in a prospective list of sustainability indictors for the Maltese Islands and also identified the potential list of indicators to be used in such a list. It is the opinion of the author that the indicators so identified can be utilised locally and that the data can be obtained with relative ease assuming that the current data collection and monitoring exercise are sustained and adequately funded. A set of second-tier air quality indicators can also be considered for future development. It is also suggested that the University of Malta and the Environment Protection Department collaborate further in their research and monitoring endeavours to minimise duplication of work and to try to set up complimentary monitoring structures or a more formal partnership. REFERENCES Blue Plan, 2001. Official website. Available online at http://www.planbleu.org Environment Protection Department, 2001. Official website. Available online at http://www.environment.gov.mt European Communities, 1994. Directions for the European Union on Environmental Indicators and Green National Accounting (COM(94)670 final). European Environment Agency, 1996. CORINAIR 90 Emissions Data. European Topic Centre on Air Emissions. European Environment Agency, 2001. http://eea.eu.int Official website. Available online at EUROSTAT, 1999. Towards Environmental Pressure Indicators for the EU. EUROSTAT, 2001. Official http://europa.eu.int/comm/eurostat/ website. Available online at New Zealand Ministry for the Environment, 2001. Official website. Available online at http://www.mfe.govt.nz OECD, 1993. OECD Core Set of Indicators for Environmental Performance Reviews. A synthesis report by the Group on the State of the Environment. OECD Environment Monographs No. 83. OCDE/GD(93)179. OECD, Paris; 39pp. OECD, 1994. Environmental Indicators. OECD Core Set. Economic Co-Operation and Development, Paris; 157 pp. Organisation for OECD, 1998. Towards Sustainable Development – Environmental Indicators. Organisation for Economic Co-Operation and Development, Paris; 130 pp + 33 tables + 33 graphs. Organisation for Economic Co-Operation and Development, 2001. Official website. Available online at http://www.oecd.org Plan Bleu, 2000. 130 Indicators for Sustainable Development in the Mediterranean Region. Plan Bleu – Centre d’Activites Regionales, Mediterranean Action Plan, UNEP, Valbonne, France; 50 sheets. Planning Authority, 1997. Sustainability Indicators for Malta – A Proposal. Final Draft report. Planning Authority, Floriana; 36 pp. Scottish Environment Protection Agency (SEPA), 2001. Official website. Available online at http://www.sepa.org.uk TEPI, 2001. Official website. Available online at http://www.e-m-a-i-l.nu/tepi/ UNEP, 2000. The Montreal Protocol on Substances that Deplete the Ozone Layer as adjusted and/or amended in London 1990, Copenhagen 1992, Vienna 1995, Montreal 1997, Beijing 1999. Ozone Secretariat, United Nations Environment Programme, Kenya. University of Malta, http://www.um.edu.mt 2001. Official website. Available online at World Bank, 2000. University Press. World Development Indicators 2000. New York: Oxford World Bank, 2001a. University Press. World Development Indicators 2001. New York: Oxford World Bank, 2001b. Official website. Available online at http://www.worldbank.org APPENDIX 1 Criteria for Selection of Indicators Organisation for Economic Cooperation and Development Table A. Criteria for Indicator Selection * Policy relevance and utility for users An environmental indicator should: • provide a representative picture of environmental conditions, pressures on the environment or society’s responses; • be simple, easy to interpret and able to show trends over time; • be responsive to changes in the environment and related human activities; • provide a basis for international comparisons; • be either national in scope or applicable to regional environmental issues of national significance; • have a threshold or reference value against which to compare it so that users are able to assess the significance of the values associated with it. Analytical soundness An environmental indicator should: • be theoretically well founded in technical and scientific terms; • be based on international standards and international consensus about its validity; • lend itself to being linked to economic models, forecasting and information systems. Measurability The data required to support the indicator should be: • readily available or made available at a reasonable cost/benefit ratio; • adequately documented and of known quality; • updated at regular intervals in accordance with reliable procedures. *These criteria describe the "ideal" indicator and not all of them will be met in practice. Source: OECD Core Set of Indicators for Environmental Performance Reviews. A synthesis report by the Group on the State of the Environment. OECD, 1993 APPENDIX 2 Ambient Air Quality Guidelines (1994) - Ministry for the Environment, New Zealand. Description of Air Quality Guidelines Categories Category Percent of Guideline Comment Excellent Less than 10% of the Is of little concern, if maximum values guideline are less than a tenth of the guideline, average values are likely to be much less Good Between 10% and 33% of Peak measurements in this range are the guideline unlikely to impact air quality Acceptable Between 33% and 66% of A broad category, where maximum the guideline values might be of concern in some sensitive locations but generally at a level which does not warrant dramatic action Alert Between 66% and 100% of A warning level, which can lead to the guideline exceedences if trends are not curbed Action More than 100% of the Exceedences of the guideline are a guideline cause for concern and warrant action if they occur on a regular basis Source: New Zealand Ministry for the Environment website, 2001 APPENDIX 3 New Zealand - Ministry for the Environment Environmental Performance Indicators Programme Air Quality Indicators Particulate Matter Particulate matter refers to numerous substances that exist in a solid or aerosol (suspended in gas) state at ambient conditions. Particles range over several orders of magnitude in size, from over 100µm down to aggregations of molecules. Smoke consists of the products of incomplete combustion, carbon, and organics. Depending on the combustion source, it can contain both deposited particulate and finer matter in suspension and therefore poses both a nuisance and a health effect. Deposited particulate consists of the larger diameter portion of combustion process exhausts or dusts naturally occurring in the environment. Generally it is larger than 20 µm in size and can pose a nuisance from deposition on property and also has some potential health effects. Suspended particulate consists of particles mostly smaller than 20 µm. The coarse fraction, larger than 2.5 µm, originates from combustion and naturally occurring dusts and salt spray. The fine fraction, smaller than 2.5 µm, is also produced naturally and from industrial processes and can cause health effects as it falls within the respirable range. Visibility-reducing particulate consists of the fine particles in the size range 0.1 to 2.0 µm. These particles have the ability to scatter and absorb light, thereby impairing visibility. Although particles smaller than 0.1 µm do not affect visibility directly, they are important because they can react chemically and physically in the atmosphere to produce larger particles. Since 1987 in the United States, the principal air quality indicator for adverse health effects from particulates has been PM10, which represents the portion of the particulate matter which is smaller than 10 µm in diameter. This has been adopted by New Zealand’s Ministry for the Environment, as it indicates the fraction of the particles that can enter the upper respiratory tract. Adverse Effects Humans exposed to particulate in the air they breathe may experience some discomfort from irritation by specific compounds as they are filtered by the nose and mouth. Particles larger that 10µm are removed at this stage. Smaller particles penetrate into the lungs where they may be deposited and subsequently cleared. Acute exposure to inhalable particulate can result in loss of lung function, onset of respiratory symptoms, aggravation of existing respiratory conditions, and loss of capacity to resist infection. These problems occur particularly in the sensitive populations of asthmatics, small children, and the elderly. Typical PM10 Concentrations NZ Ambient Air Quality Guideline 120 µg/m3 for a 24 hour period Typical New Zealand Urban Actual 25-35 µg/m3 for a 24 hour period Typical New Zealand Rural Actual 2-10 µg/m3 for a 24 hour period Typical New Zealand Peak >500 µg/m3 for a 24 hour period Source: New Zealand Ministry for the Environment, 2001 New Zealand - Ministry for the Environment Environmental Performance Indicators Programme Air Quality Indicators Carbon Monoxide Carbon Monoxide (CO) is a colourless, odourless gas that can be poisonous to humans. CO is a trace constituent of the atmosphere, produced by both natural processes (such as volcanoes, bushfires, and metabolism of organisms) and human activities (such as incomplete combustion of fuels, milling, and foundries). CO occurs both indoors and outdoors. Heating and cooking appliances that are fuelled by anything other than electricity are sources of CO, but the most significant source is undoubtedly motor transportation (from fossil fuel combustion). Places where transport emissions accumulate such as traffic jams, tunnels, and car parks are locations of potentially significant exposure. Office buildings and shops located along congested motorways or above or below car parks can also accumulate CO. Adverse Effects CO is readily absorbed from the lungs into the bloodstream where it competes with oxygen for attachment to haemoglobin (Hb). The presence of CO in the blood reduces its oxygen carrying capacity which in turn impairs oxygen release into tissue, seriously affecting the functioning of both the brain and the heart. The amount of COHb in the blood can be measured and serves as an indicator of exposure to CO. While the formation of COHb is a reversible process, it takes time for the body to metabolise the CO and eliminate it. Effects associated with CO exposure range from impairment in abilities that require sustained attention and performance, headaches, dizziness, weakness, nausea, confusion, disorientation, visual disturbances, unconsciousness up to death in extreme cases. Typical CO concentrations Air Quality Guideline Concentrations NZ Ambient Air Quality Guideline 10 mg/m3 for 8 hour period Typical New Zealand Urban Actual 5-10 mg/m3 for an 8 hour period Typical New Zealand Rural Actual <0.1 mg/m3 for an 8 hour period Typical New Zealand Peak up to 12 mg/m3 for an 8 hour period Source: New Zealand Ministry for the Environment, 2001 New Zealand - Ministry for the Environment Environmental Performance Indicators Programme Air Quality Indicators Nitrogen Oxides Nitrogen oxides exist in the atmosphere as a number of species - nitric oxide (NO), nitrogen dioxide (NO2), and nitrous oxide (N2O). Of these, NO2 (a reddish brown gas that is soluble in water) is of most concern due to its resultant health effects. NO is also significant, however, as it rapidly transforms to NO2 so NO and NO2 are often grouped together under the heading nitrogen oxides (NOx). Although NOx are produced naturally (from bacterial and volcanic action) in far greater total quantities than from man-made activities, the natural quantities are widely dispersed over the whole earth resulting in low background concentrations. In comparison, man-made production can result in high local concentrations and is typically associated with the combustion of fossil fuels (both stationary sources and mobile sources, such as transportation), and some industrial processes (such as nitric acid production, the use of explosives, and welding). NO2 in the human respiratory system causes increases in both the susceptibility to and the severity of infections and asthma. Long term exposures can also weaken the effectiveness of the lung's defences against bacterial infection. In combination with other pollutants (notably sulphur dioxide and particulates), NO2 does have some synergistic effects but the mechanisms at work are poorly understood. NO2 has been reported as toxic to plants, especially in the presence of sulphur dioxide and ozone. Typical NO2 Concentrations NZ Ambient Air Quality Guideline Typical New Zealand Urban Actual Typical New Zealand Rural Actual Typical New Zealand Peak 100 µg/m3 for 24 hour period 5-30 µg/m3 for 24 hour period 0-1 µg/m3 for 24 hour average up to 50 µg/m3 for 24 hour period Source: New Zealand Ministry for the Environment, 2001 New Zealand - Ministry for the Environment Environmental Performance Indicators Programme Air Quality Indicators Sulphur Dioxide (SO2) Sulphur Dioxide (SO2) is a colourless gas that reacts with moisture in the atmosphere to form sulphuric acid aerosol (H2SO4). SO2 is produced during the combustion of fossil fuels, especially coal and oil. Oil refining, steel making and aluminium smelting are the industries mostly responsible for SO2 emissions. Although generally not a significant problem in New Zealand, SO2 may be a significant pollutant in regions where coal is used on domestic fires during winter. SO2 is detectable by odour between 1300-3000 µg/m3. At concentrations above 10000 µg/m3, it has a pungent irritating odour. At concentrations exceeding 10 000 µg/m3 SO2 becomes a significant human health concern, increasing the likely hood of bronchitis and tracheitis. Unlike Europe and the United States, sulphur dioxide is not believed to cause acid rain in New Zealand. Maximum Recommended Concentrations The MfE Ambient Air Quality Guidelines set the following levels for SO2 (Covered by Australian Standard AS 3580.4.1.-1990): Averaging Time 10 minute average Hourly average of 10 minute means 24-hour average Annual average Ambient Air Quality Guideline 500 µg/m3 350 µg/m3 125 µg/m3 50 µg/m3 Source: New Zealand Ministry for the Environment, 2001 New Zealand - Ministry for the Environment Environmental Performance Indicators Programme Air Quality Indicators Ground Level Ozone (O3) Ozone (O3) is a very reactive compound present in both the outer reaches of the atmosphere (stratosphere) and the closest parts of the atmosphere (troposphere). Human activities can lead to increased tropospheric (ground level) ozone levels. When nitrogen oxides and volatile organic compounds react in the presence of sunlight, ozone is formed. Stratospheric ozone (measured in the Ozone Indicator) is not a pollutant, but tropospheric ozone has been shown to have adverse health and environmental effects. In humans, ozone causes changes to pulmonary function within 1 - 3 hours exposure, and coughing, thoracic pain, eye, nose and throat irritation. Crop exposure to ozone levels of 100 µg/m3 can cause up to 22% yield losses. Because O3 takes some time to form, highest concentrations tend to occur away from large cities in rural and forest areas. Also, ozone formation requires significant ultra violet light so harmfull quantities of )3 are only likely to form during summer. O3 is not usually discharged directly into the air. Sources of precursor gases (volatile organic compounds and nitrogen oxides that form ozone as a product of chemical reactions) include vehicles, vegetation, industry and domestic fires. Current Levels Conditions suitable for photochemical reactions may occur on up to 10, 15 and 4 days per year in Auckland, Hamilton and Christchurch. On two days during 1977/78 ozone measured in Auckland exceeded the MfE one hour guideline. Highest concentrations were measured away from the city. More monitoring is required to gain a better understanding of the potential for ozone formation in New Zealand. Averaging Time Ambient Air Quality Guideline 1 hour 150 µg/m3 8 hour 100 µg/m3 Source: New Zealand Ministry for the Environment, 2001 APPENDIX 4 Scottish Environmental Indicator Series Air Quality Indicator Strategy Objectives Indicator Sulphur dioxide Strategy Objective 15-min mean of 266 µg/m3 (100 ppb) not to be exceeded more than 35 times per year by 31 December 2000. 1-hr mean of 350 µg/m3 (132 ppb) not to be exceeded more than 24 times per year by 31 December 2004. 24-hr mean of 125 µg/m3 (47 ppb) not to be exceeded more than 3 times per year by 31 December 2004. Annual mean for the protection of vegetation 20 µg/m3 (8 ppb) by 31 December 2000 and 20 µg/m3 (8 ppb) winter average (October to March) by 31 December 2000. Annual mean of 16.25 µg/m3 (5 ppb) by 31 December 2003. Annual mean of 2.25 µg/m3 (1 ppb) by 31 December 2003. Running 8-hr mean of 11.6 mg/m3 (10 ppm) by 31 December 2003. Benzene 1,3-Butadiene Carbon Monoxide Lead Oxides of Nitrogen Annual mean of 0.5 µg/m3 by 31 December 2004 and 0.25 µg/m3 by 31 December 2008. 1-hr mean of 200 µg/m3 (105 ppb) not to be exceeded more than 18 times per year by 31 December 2005. Annual mean of December 2005. 40 µg/m3 (21 ppb) by 31 Annual mean for the protection of vegetation of 30 µg/m3 (16 ppb) by 31 December 2000. Ozone Particulates 8-hr mean of 100 µg/m3 (50 ppb) not to be exceeded more than 10 times per year by 31 December 2005. Annual mean of 40 µg/m3 by 31 December 2004. 24-hr mean of 50 µg/m3 by 31 December 2004. Source: SEPA website, 2001 APPENDIX 5 MALTA Ministry for the Environment Environment Protection Department AIR QUALITY MONITORING RESULTS LOCALITY MONITORING PERIOD ACTUAL DAYS MONITORED PARAMETERS MONITORED EXCEEDANCE(S)* days % of days monitored parameter Vittoriosa 8-Sep-1999 to 23-Sep-1999 13 SO2, NO2, O3, PM10 3 23 PM10 LV Siggiewi 1-Oct-1999 to 8-Oct-1999 8 SO2, NO2, O3, PM10 5 63 PM10 LV Mosta 9-Oct-1999 to 19-Oct-1999 9 SO2, NO2, O3, PM10 3 33 PM10 LV Fgura 17-Oct-1999 to 25-Oct-1999 6 SO2, NO2, O3, PM10 3 50 PM10 LV Paola 27-Oct-1999 to 30-Oct-1999 3 SO2, NO2, O3, PM10 2 67 PM10 LV Zabbar 1-Nov-1999 to 2-Nov-1999 2 SO2, NO2, O3, PM10 2 100 PM10 LV Qormi 18-Nov-1999 to 26-Nov-1999 9 SO2, NO2, O3, PM10 6 67 PM10 LV Kalkara 27-Nov-1999 to 9-Dec-1999 12 SO2, NO2, O3, CO, PM10 2 17 PM10 LV Mellieha 10-Dec-1999 to 20-Dec-1999 11 SO2, NO2, O3, CO, PM10 6 55 PM10 LV Ghajsielem 1-Jan-2000 to 20-Jan-2000 20 SO2, NO2, O3, CO, PM10 4 20 PM10 LV Munxar 6-Feb-2000 to 9-Feb-2000 4 SO2, NO2, O3, CO, PM10 0 0 Mellieha 11-Feb-2000 to 21-Feb-2000 11 SO2, NO2, O3, CO, PM10 0 0 Qormi 22-Feb-2000 to 2-Mar-2000 9 SO2, NO2, O3, CO, PM10 1 11 PM10 LV Kalkara 6-Mar-2000 to 10-Mar-2000 5 SO2, NO2, O3, CO, PM10 5 100 PM10 LV Zabbar 11-Mar-2000 to 20-Mar-2000 9 SO2, NO2, O3, CO, PM10 6 67 PM10 LV Rabat 15-Apr-2000 to 1-May-2000 17 SO2, NO2, O3, CO, PM10 3 18 PM10 LV Marsa 2-May-2000 to 20-Aug-2000 50 SO2, NO2, O3, CO, PM10 38 76 PM10 LV Marsa 2-May-2000 to 20-Aug-2000 50 SO2, NO2, O3, CO, PM10 3 6 SO2 LV Marsa 2-May-2000 to 20-Aug-2000 50 SO2, NO2, O3, CO, PM10 1 2 SO2 AT Swieqi 21-Aug-2000 to 7-Sep-2000 15 SO2, NO2, O3, CO, PM10 13 87 PM10 LV Dingli 8-Sep-2000 to 28-Sep-2000 19 SO2, NO2, O3, CO, PM10 4 21 PM10 LV San Gwann 16-May-2001 to 25-May-2001 9 SO2, NO2, O3 0 0 Floriana 26-May-2001 to 3-Jun-2001 8 SO2, NO2, O3, CO 0 0 Birzebbuga 4-Jun-2001 to 8-Jun-2001 5 SO2, NO2, O3, CO 0 0 * occurrence when air quality standards were exceeded Source: Environment Protection Department website, 2001