SHEFFIELD CITY COUNCIL
Cabinet Report
I
Report of:
Simon Green Executive Director- Place
______________________________________________________________
Date:
13th January 2010
______________________________________________________________
Subject:
AIR QUALITY MANAGEMENT IN SHEFFIELD
______________________________________________________________
Author of Report: Andy Elleker
Air Quality Officer
0114 2734655
Andrew.elleker@sheffield.gov.uk
And
Sue Greig
Public Health Consultant
Sheffield PCT
NHS
______________________________________________________________
Summary:
In common with national trends, there are still areas of Sheffield where
air quality is not improving, particularly areas adjacent to busy roads.
Government air quality targets are exceeded in these and other areas
of the city.
There is an existing urban-wide Air Quality Management Area (AQMA)
to control nitrogen dioxide. In response to Government legislation this
report recommends that the existing AQMA for nitrogen dioxide is
amended and also that the same area be designated as an AQMA to
control fine particles (PM10).
Following designation of AQMAs an Air Quality Action Plan (AQAP) for
nitrogen dioxide and PM10 will be required to be produced. The action
plan will have the aim of improving air quality in the city and will
contribute to the reduction of greenhouse gases.
Reductions in emissions of air pollution therefore would have a positive
impact in terms of the climate change indicators in the Sheffield First
Agreement and on some of the Corporate Plan Priorities, which
include;



Protecting and Enhancing the Environment- Reducing carbon
footprint.
A Better Life for Children and Young People- Improving children’s
health.
Supporting People to be Healthy and Independent- Improving public
health.
_____________________________________________________________
Recommendations:
Cabinet supports the recommendation to designate an urban wide Air
Quality Management Area (AQMA) for PM10 (fine particles) and to
amend the terms of the existing nitrogen dioxide urban wide AQMA.
Cabinet notes the need for a new Air Quality Action Plan (AQAP) for
nitrogen dioxide and PM10 and that a draft AQAP be taken to Cabinet,
at a later date, with a request that it be subject to stakeholder
consultation.
______________________________________________________________
Background
Papers: None
Category of
Report:
OPEN
Statutory and Council Policy Checklist
Financial implications
YES
Cleared by: Laura Pattman
Legal implications
YES
Cleared by: Frances Woodhead
Equality of Opportunity implications
YES
Cleared by: Ian Oldershaw
Tackling Health Inequalities implications
YES
Human rights implications
NO
:
Environmental and Sustainability implications
YES
Economic impact
YES
Community safety implications
NO
Human resources implications
YES
Property implications
YES/NO
Area(s) affected
All
Relevant Scrutiny Board if decision called in
Culture, Economy and Sustainability Board
Is the item a matter which is reserved for approval by the City Council? NO
Press release
YES
AIR QUALITY MANAGEMENT IN SHEFFIELD
1.
Summary
1.1
This report confirms that air quality levels still exceed Government air
quality objectives (targets) in many areas of the city.
1.2
It highlights the legal requirement to designate an Air Quality
Management Area (AQMA) for fine particles (PM10) and to amend the
terms of the existing urban wide AQMA for nitrogen dioxide.
1.3
It seeks Cabinet endorsement on the area to be designated.
1.4
The report sets out how we will aim to improve air quality across the
city through the production of an Air Quality Action Plan (AQAP) with
the ultimate aim being the achievement of all Government air quality
targets.
1.5
It highlights the health benefits, for the people of Sheffield, from
improving air quality.
2.
What does this Mean for the People of Sheffield?
2.1
Many people in Sheffield live in areas where air quality targets are
exceeded. These areas are predominantly near to arterial routes into
the city, as transport is the major source of air pollutants.
2.2
The designation of Air Quality Management Areas and production of
an Air Quality Action Plan are steps in a legal process which will enable
the Council and its partners to work towards the improvement of air
quality.
2.3
This in turn will help to improve health and quality of life for the people
of Sheffield and provide a more favourable environment for investment
in the city.
3.
Outcome and Sustainability
3.1
Measures to improve local air quality almost invariably result in
reduced carbon emissions and will contribute to the following
Corporate Plan Priorities;


Protecting and Enhancing the Environment- Reducing carbon
footprint.
A Better Life for Children and Young People- Improving children’s
health.

Supporting People to be Healthy and Independent- Improving public
health.
3.2
National estimates of the health impact of air pollution translate locally
into between 240 and 325 deaths brought forward each year in
Sheffield, with estimated health costs of around £95 million per year.
3.3
Poor air quality has short and long term health impacts. Episodes of
air pollution make respiratory problems worse, increase hospital
admissions and lead to some cardiovascular deaths.
3.4
Chronic exposure to air pollution from fine particles, in particular, is
associated with decreased lung function in children and adults, and
with deaths from heart and lung disease. Long term exposure to poor
air quality in the womb and in childhood has been linked to low weight
births, and to high blood pressure, diabetes and heart disease in later
life.
3.5
Air pollution is estimated to reduce life expectancy at birth by 7-81
months on average for the population as whole. However the health
impact falls very unequally and is therefore much greater on the young,
the old, those with existing heart and lung problems, and those living in
areas where air quality standards are regularly exceeded.
3.6
Sheffield is aspiring to be a city where health inequalities are reduced
and air is healthy for all to breathe.
4.
Background and Progress
4.1
All Local Authorities are legally required to review and assess the air
quality in their areas. In Sheffield an extensive network of air pollution
stations enabled this to be carried out.
4.2
Previous assessments showed that Sheffield had areas with raised
nitrogen dioxide levels (the Government annual mean objective was
exceeded2).
4.3
Nitrogen dioxide is a pollutant which in cities is largely associated with
traffic.
4.4
Consequently Sheffield has had an Air Quality Management Area since
2001. The physical boundary of the current AQMA for nitrogen dioxide
is the whole of the Sheffield area except the peak park area to the west
1
The Air Quality Strategy for England, Scotland, Wales and Northern Ireland 2007 (HMG,
June 2007, Forward by Jonathan Shaw, Parliamentary Under Secretary of State and Minister
for the South East)
2 LAQM Technical Guidance TG(09) Feb 2009 Table 1.1 objectives included in AQ Regs for
the purpose of LAQM
of the city. Therefore it is the urban area of Sheffield where the vast
majority of residents live.
4.5
An Air Quality Action Plan was published in 2003 with measures
designed to improve nitrogen dioxide levels.
4.6
Recent reviews of air quality show that annual average targets for
nitrogen dioxide are still not being achieved ( a further nitrogen dioxide
target, the one hour objective was also found to be exceeded) and the
target levels for fine particles (called PM10) are also exceeded.
4.7
Fine particles (PM10) are associated with traffic (especially diesel
engines) and some industrial processes.
4.8
Air pollution levels have not improved as had been expected. The
Government predictions that new vehicle technology would lead to
improved air quality have been shown to be overly optimistic. Increases
in traffic levels and also the increasing proportions of diesel vehicles
have negated any benefits of new engine technology.
4.9
There is a legal requirement therefore to amend the terms of the
existing AQMA for nitrogen dioxide and to designate an AQMA for fine
particles (the 24 hour mean objective for PM10).
5.
Designation of AQMA
5.1
It is considered that the most practical approach is to designate an
urban wide AQMA for PM10 following the same physical boundaries as
the existing AQMA for nitrogen dioxide. This has the advantage of
having a simple and readily identified boundary, as required by
Government guidance. The approach provides clarity for the
application of planning, development and transport policy, and for the
implementation of the AQAP itself on an urban wide basis.
5.2
The existing nitrogen dioxide AQMA also needs to be amended to
include reference to exceedence of the hourly objective.
5.3
Air quality is already a material consideration in the planning process;
designation of an AQMA for PM10 will ensure that any future
development proposals are considered not only for their effects on
nitrogen dioxide levels but also on fine particle levels.
5.4
Designation of an AQMA for PM10 could have some implications for
some industrial processes in the city. Processes emitting fine particles
and in an AQMA for PM10 could be required, in accordance with the
polluter pays principle, to pay a higher permit fee as part of pollution
control legislation enforced by the Environment Agency and Sheffield
City Council.
5.5
In Sheffield a handful of processes are controlled by the Environment
Agency and up to 56 smaller processes, which emit fine particles, by
the Council.
5.6
Each process is assessed separately by the EA or the Council. The
permit fee currently ranges from £731 to £1653; the pollution element
is just one part of the overall risk assessment. The majority of
processes will be unaffected but some could have to pay an increase in
permit fee of up to £555 per annum.
5.7
The companies however have the option to reduce their permit fees by
implementing measures to improve their overall environmental
performance, management systems and regulatory compliance.
6.
Production of an Air Quality Action Plan
6.1
DEFRA guidance3 requires that a new AQAP be produced within 18
months of declaration of new AQMAs. The new AQAP will need to
consider both nitrogen dioxide and PM10.
6.2
A Steering Group of senior Council managers and representatives from
partner organisations has been set up to oversee, facilitate and direct
production of an Air Quality Action Plan with the aim of achieving the
Government air quality targets.
6.3
In general terms the AQAP will include measures aimed at promoting
public transport and more sustainable modes of transport together with
reducing the need to travel. It is apparent that if air quality targets are
to be met ambitious measures will need to be included in the AQAP.
The Steering Group has considered such ambitious proposals as the
introduction of gas and electric vehicles to the council fleet, bus
retrofitting and development of a low emission strategy.
6.4
The intention is to take a subsequent paper, detailing the proposals of
the new AQAP, to Cabinet at a later date.
7.
Financial Implications
7.1
There is no budget specifically for the AQAP. Most actions to improve
air quality are funded from existing budgets, particularly those relating
to transport, such as the Local Transport Plan (LTP). Limited funding is
made available yearly through DEFRA Air Quality Grant for specific
AQAP projects.
7.2
There are no financial implications at this stage of designating an
AQMA. Ultimately measures in the proposed AQAP may require
funding at which stage further member approval will be sought.
3
Timescales for Review and Assessment- Review and Assessment LAQM.TG(03).
8.
Environmental Implications
8.1
The Air Quality Action Plan aims to protect areas of good air quality
and to improve areas of poor air quality, having regard to national
health-based objectives. Reduction in the emissions of air pollution
can be brought about by the reduction in the burning of fossil fuels
(particularly in internal combustion engines). This will also contribute to
the corporate objectives of reducing carbon emissions.
9.
Equal Opportunities
9.1
The most vulnerable members of the community i.e. those with health
problems, the old and the very young are those most affected by poor
air quality. The implementation of the Air Quality Action Plan will
contribute by helping to restore environmental equity to individuals
most affected. Consultation will be conducted by referring proposals for
development of the AQAP to the established Clean Air Partnership4,
the Chamber of Commerce and to the representatives of the
Community Assemblies.
9.2
The proposed AQAP will need an equality impact assessment, which
will be carried out on completion of the AQAP in 2010.
10
Conclusions
10.1
Sheffield has a very extensive network of air quality monitoring, which
formerly showed that nitrogen dioxide levels are above target levels.
To fulfill legal obligations, Sheffield has an urban-wide Air Quality
Management Area for nitrogen dioxide. Current levels of fine
particulate (PM10) and nitrogen dioxide exceed Government targets.
10.2
Sheffield is therefore required to declare a new Air Quality
Management Area (AQMAs) for PM10 and amend the terms of the
existing nitrogen dioxide AQMA.
10.3
Retaining the existing urban-wide AQMA boundaries is considered the
most practical approach.
10.4
DEFRA guidance5 requires that the new Air Quality Action Plan details
measures to improve air quality, together with an assessment of their
likely effectiveness and timescales for their implementation.
10.5
A Steering Group of senior managers and representatives from partner
organizations has been set up to oversee AQAP production.
Consultation will be central to development of the AQAP.
4
The Clean Air Partnership was set up to improve air quality in Sheffield and to act as key
consultees and stakeholders around major air quality decisions.
5 Local Air Quality Management Technical Guidance TG(09) February 2009.
10.6
To a great extent sources of local air pollution are also sources of
carbon emissions. Measures to reduce air pollution will therefore assist
in reducing carbon emissions.
10.7
Impact on business is expected to be minimal and can be mitigated by
the businesses themselves, by improving their environmental
performance.
11.
Recommendations
It is recommended that;
11.1
Cabinet supports the recommendation to designate an urban wide Air
Quality Management Area (AQMA) for PM10 (fine particles) and to
amend the terms of the existing nitrogen dioxide urban wide AQMA.
11.2
Cabinet notes the need for a new Air Quality Action Plan (AQAP) for
nitrogen dioxide and PM10 and that a draft AQAP be taken to Cabinet,
at a later date, with a request that it be subject to stakeholder
consultation.
Authors:
Date:
Tel:
Andrew Elleker
Air Quality Officer
Carbon Reduction and Air Quality
and
Sue Greig
Public Health Consultant
Sheffield PCT
NHS
November 2009
0114 2734655