air quality progress report

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Transport and Environment Committeeansport and Environment Committee

10.00 am Friday 23 November 201210.00 am Friday 23 November 2012

Air Quality Progress Report 2012Air Quality Progress Report 2012

Item number

Report numberWards City wide

LinksLinks

Coalition pledges 51

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Coalition pledges 51

Executive summaryExecutive summary

Air Quality Progress Report 2012Air Quality Progress Report 2012

SummarySummary

This report updates the Transport and Environment Committee on the outcomesof monitoring and assessment of local air quality in Edinburgh during calendaryear 2011, in fulfilment of the Councils obligations under the Environment Act1995, the UK National Air Quality Strategy and Scottish Air Quality Regulations.

The report is based on the draft Updating and Screening Assessment for City ofEdinburgh Council 2012 Report (see Background Papers), which is prepared to

fulfil the Councils statutory obligations under the UK and Scottish GovernmentsLocal Air Quality Management Frameworks. The Updating and ScreeningAssessment Report will be submitted to the Scottish Government and theScottish Environment Protection Agency (SEPA) for approval.

The report describes actions and initiatives to improve air quality in the city.Further actions will be developed during review and revision of Air Quality ActionPlans and will be reported to the Committee.


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Recommendations

It is recommended that the Transport and Environment Committee:

a) notes the positive trends in improving air quality in the city, but that furtheractions are required in order that Air Quality Standards are achieved by thedue date of 2015;

b) notes and endorses the actions and initiatives being undertaken to improveair quality in Appendix 1;

c) notes that based on monitoring in 2010 and 2011, the current Air QualityManagement Areas must be extended by legal Order to include the locationsindicated in paragraphs 3.2 and 3.3;

d) notes that the city-wide Air Quality Action Plan should be reviewed andupdated, and that local Air Quality Action Plans should be developed toimprove air quality in the Air Quality Management Areas outwith the CityCentre.

e) agrees to recommend to Planning Committee that the current InterimPlanning Guidance on biomass installations be continued until the DetailedAssessment of PM10 is completed and reported;

f) agrees to receive a report on the options around low emission zones (LEZ) inthe city.


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Equalities impact

This report proposes no change to current policies or procedures and as such afull impact assessment is not required. The contents have no relevance to the

public sector Equality Duty of the Equality Act 2010.

Sustainability impact

This report does not in itself produce any direct environmental impact. Thebackground Updating and Screening Assessment 2012 for City of Edinburgh

Council Report provides an evaluation and assessment of air quality monitoringdata gathered by the Council in Edinburgh in 2011.

Consultation and engagement

Consultation with Scottish Government and the Scottish Environment ProtectionAgency following submission of the draft Updating and Screening Assessment2012 for City of Edinburgh Council Report;

Consultation with a range of stakeholders will take place during development ofrevised Air Quality Action Plans;

Consultation with stakeholders will take place on development of Low Emission

Zones


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ReportReport

Air Quality 2012Air Quality 2012

1. Background1. Background

1.1 Under the terms of the Environment Act 1995, the UK and ScottishGovernments Local Air Quality Management (LAQM) Frameworks require localauthorities to undertake a three year cyclical review and assessment of airquality within their area. The first year of the cycle is an Updating and ScreeningAssessment to review air quality and possible new pollutant sources in theirarea; in years 2 and 3 of the cycle, Annual Progress reports are required, whichassess the newly identified pollutant sources, as well as existing pollutant

sources. After 3 years, the cycle is repeated.

Where monitoring data in any year reveals exceedence of an Air QualityStandard for a particular pollutant, the next stage in the assessment process isinitiated. This is a Detailed Assessment, which entails additional monitoring atthe same location to ensure that the previous years data is not anomalous.Where the Detailed Assessment verifies the earlier findings, the local authority isrequired to declare an Air Quality Management Area (AQMA) and prepare an Air

Q alit Action Plan setting o t ho it proposes to red ce poll tant le els to


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1.3 The Councils Corporate Air Quality Working Group, comprising staff fromScientific and Environmental Services, Transport, Planning and CorporateGovernance is responsible for review of the outcomes of the air monitoringprogramme, assessment of key factors which may influence air quality, such as

local transport and planning strategies, and development of Air Quality ActionPlans.

1.4 This Committee report is based primarily on the Updating and ScreeningAssessment for City of Edinburgh Council 2012 Report, the Air QualityProgress Report for City of Edinburgh Council 2011 (see Background Papers)and the Action Plan Progress Report 2012 (in preparation).

2. Main report

2.1 Air quality is monitored for a range of pollutants by automatic air qualitymonitoring stations operating at specific locations across the city. In addition,nitrogen dioxide is monitored city-wide using Passive Diffusion Tube (PDT)

samplers.

Air quality monitoring stations measure air pollutants in real time and areexpressed as concentrations averaged over a one hour period. PDT samplersare exposed for 1 month and are then subject to laboratory analysis. Due to theempirical and variable nature of monitoring using PDT samplers, the monthlyconcentration data is subject to verification and bias correction at year end and

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2.3 Three Air Quality Management Areas (AQMAs) are currently in place inEdinburgh: City Centre; St Johns Road, Corstorphine; and Great JunctionStreet, Leith. All are due primarily to elevated concentrations of nitrogen dioxideassociated with exhaust emissions from road traffic. Nitrogen dioxideis

monitored at a number of locations within each AQMA and annual meanconcentrations vary between the individual monitoring locations. The highestannual mean concentrations measured in each of the three AQMAs arepresented in Table 1 for the years 2008 to 2011.

Annual mean concentration of nitrogen dioxide(g/m3)

AQMA

2008 2009 2010 2011City Centre 76 67 62 57

St JohnsRoad

75 70 71 65

Great

JunctionStreet

50 44 44 41

Annual mean objective = 40 g/m3

Table 1: Highest annual mean concentrations of nitrogen dioxide in the three AirQuality Management Areas, 2008 - 2011


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to continue until the tram system is in operation and traffic patterns have settleddown.

Monitoring

Year

Recorded breaches of

the NO2 hourlymean (200g/m3)

Number of breaches

exceeding permittedmaxima

2008 166 1482009 114 962010 60 422011 52 34

Permitted number of breaches of the 1-hour mean (200g/m3) = 18

Table 2: Number of breaches of the Hourly Mean Air Quality Standard fornitrogen dioxide recorded in the St Johns Road AQMA, 2008 - 2011.

2.6 Monitoring during 2010 and 2011 at a number of locations outwith the existingAQMAs continued to show exceedences of the annual nitrogen dioxide Air

Quality Standard. Consequently, the Council is required to extend the existingCity Centre and Great Junction Street (Leith) AQMAs, and to declare anadditional AQMA at Glasgow Road (Newbridge). The additional AQMAs areshown in Table 3 and fully outlined in Section 2.15.

City Centre(existing AQMA)

Great Junction Street(existing AQMA)

Glasgow Road(new AQMA)

London Road (to

J k L d )

Bernard Street/

C i l St t d

Glasgow Road (A9)

(N b id j ti t R th


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Monitoring in previous years has indicated a potential exceedence of the annualmean standard at Inverleith Row. Detailed Assessment work carried out during2011 has established that an AQMA is required at the junction between

Inverleith Row and Ferry Road. This is reported in the Updating & ScreeningAssessment 2012 Report. If the draft Report is approved by ScottishGovernment, the Council will be required to declare by legal Order an AQMA atthis location.

The exceedences identified from monitoring at the other three locationsspecified in Table 4 mean that further assessment of air quality is required, inorder to decide the appropriate actions to be taken at these locations. ThisDetailed Assessment work is being carried out during 2012 and will be reportedto Committee at a future date.

West End Nitrogen Dioxide Study

2.8 In response to ongoing concerns of local residents about potential impacts on airquality arising from altered traffic movements in the West End, monitoring

continued throughout 2011 at the additional nitrogen dioxide PDT sitesestablished in Great Stuart Street and St.Colme Street. This monitoring indicatedthat levels of nitrogen dioxide at these locations remained within Air QualityStandards in 2011. Monitoring is continuing and current-year data (2012) will bereported to Committee in 2013.

Monitoring Data (2011): Fine Particles (PM10)

2 9 Ai lit t t t t d d f Fi P ti l PM10 i l


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Haymarket Y 20

(2)- - -

SalamanderStreet

N - 22*(2)*

26(19)

26(22)

QueensferryRoad

N - - - 21(2)

St Leonards N 15 17(2)

14(1)

15(0)

Currie N - - 11(0)

13(0)

Scottish annual mean objective = 18g/m3

Permitted number of daily breaches = 7* Based on monitoring data collected for less than one year

Table 4: Results of PM10 Automatic Monitoring 2011: Annual MeanConcentrations and Exceedences of Daily Mean Objectives

2.10 Monitoring data demonstrates that the UK/EU Standard for PM10 (40 g/m3) is

not being exceeded and PM10 levels across the city are well below thisStandard.


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2.13 The delay in completing the Detailed Assessment for PM10 has implications forthe Councils Interim Planning Guidance (IPG) Use of Biomass up to 50MW (e)in Edinburgh. Biomass combustion is a source of PM10 and nitrogen dioxide andthe current Biomass IPG provides the Council with a means of managing the

number of biomass installations in the city. The Transport, Infrastructure andEnvironment Committee at its meeting in November 2011 agreed to recommendto Planning Committee that the IPG should continue pending the outcome of thedetailed assessment for PM10. The IPG is currently under review to take accountof UK Governments Renewable Heat Incentive. Consultations with keystakeholders are in progress to ensure that the Council maintains an appropriateposition regarding biomass combustion installations in the city.

Air Quality Management Areas and Action Plans

2.14 Section 83 of the Environment Act 1995 requires the Council to declare an AirQuality Management Area (AQMA) where it is established that Air QualityStandards are not being achieved, or are unlikely to be achieved withinappropriate timescales.

2.15 Three Air Quality Management Areas (AQMAs) are currently declared inEdinburgh: City Centre; St Johns Road, Corstorphine; and Great JunctionStreet, Leith. The AQMAs are due primarily to emissions of nitrogen dioxidefrom road traffic. Monitoring carried out during 2010, reported to Committee on29 November 2011 identified a requirement to extend the City Centre and GreatJunction Street AQMAs and to declare an additional AQMA at the westernportion of Glasgow Road (A9) at Newbridge. Monitoring carried out during 2011identified a requirement to declare an additional AQMA at the junction of

I l ith R d F R d bj t t S tti h G t l f th


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bus fleets. The current AQAP is being reviewed and a revised draft will be readyfor consultation during 2013.

The AQMAs currently declared and proposed, excluding the City Centre AQMA,

may be influenced by local traffic management arrangements. Therefore, it isintended to develop specific Action Plans to address these local areas. It isanticipated that these will be available for consultation in early 2013.

2.17 Monitoring in 2011 has demonstrated that further actions and initiatives toimprove air quality are required in order to meet Air Quality Standards by 2015,the due date specified by EU legislation. A range of current and future actionsare described in Appendix 1, which will improve air quality across the city andcontribute to achieving Air Quality Standards by the due date.

2.18 The Capital Coalition Pledges include the investigation of the possibleintroduction of low emission zones (LEZ). In addition Transport, Infrastructureand Environment Committee in November 2011 requested consultation as soonas practicable after the publication of forthcoming guidance by Defra/ScottishGovernment on the potential introduction of a mandatory low emission zone in

Edinburgh as a means of improving air quality. The Guidance is not nowexpected until 2013. It is therefore proposed following the publication of thisguidance a report be brought to Committee outlining possible models andimplications of a LEZ and a proposed consultation strategy.

3. Conclusions


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4. Recommendations

4.1 It is recommended that the Transport and Environment Committee:

a) notes the positive trends in improving air quality in the city, but that furtheractions are required in order that Air Quality Standards are achieved by thedue date of 2015;

b) notes and endorses the actions and initiatives being undertaken to improveair quality in Appendix 1;

c) notes that based on monitoring in 2010 and 2011, the current Air QualityManagement Areas must be extended by legal Order to include the locationsindicated in paragraphs 3.2 and 3.3;

d) notes that the city-wide Air Quality Action Plan should be reviewed andupdated, and that local Air Quality Action Plans should be developed toimprove air quality in the Air Quality Management Areas outwith the CityCentre.

e) agrees to recommend to Planning Committee that the current InterimPlanning Guidance on biomass installations be continued until the DetailedAssessment of PM10 is completed and reported;

f) agrees to receive a report on the options around low emission zones (LEZ) inthe city.


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Appendix 1

I i i i d A i


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1.5 Lothian Buses, with Scottish Government support funding, acquired 15hybrid diesel-electric double-deck buses. These vehicles wereintroduced in September 2011, and are currently being operated on the

No.10 Service, a high-frequency service that traverses the City CentreAQMA.

1.6 The City Tour fleet operated by Lothian Buses are, with one exception,all Euro 2 buses. This issue is currently being reviewed with LothianBuses and mechanisms of securing additional funding are beingexplored. The composition of the fleet is shown in Table 2.

BusStandard

Lothian busCity Tour Fleet

Sept 2010

Lothian BusCity Tour Fleet

May 2011

Lothian BusCity Tour FleetAugust 2012

Pre Euro 9 0 0Euro 1 0 0 0Euro 2 37 45 38Euro 3 0 0 1

Euro 4 0 0 0Euro 5 0 1 1Total 46 46 40

Table 2: Euro Standard of City Tour Bus Fleet (Lothian Buses) 2010-2012)

1.7 Lothian Buses are currently operating five Euro 3 and two Euro 2

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Euro Standard 2011 (Current) 2015 (Projected)

Euro I 7% 0

Euro 2 45% 5%

Euro 3 35% 35%

Euro 4 10% 35%

Euro 5 3% 25%

Table 3: First bus fleet operating in Edinburgh

1.9 Stagecoach operates approximately 39 buses into Edinburgh. Thecurrent fleet profile is shown in Table 4, which shows that 84% of thefleet is Euro 4 standard or better.

Scottish Citylink fleet comprises 72 buses operating throughoutScotland. The breakdown of the fleet is shown in Table 4, whichshows that 95% of the fleet is Euro 4 standard or better.

EuroStandard

Stagecoach2012

Scottish Citylink2012

Euro 1 0 0Euro 2 2 (5%) 0Euro 3 4 (10%) 4 (6%)Euro 4 27 (69%) 1 (1%)Euro 5 6 (15%) 67 (93%)T t l 39 72


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2.2 The Council submitted a successful bid to the Scottish Government ina joint venture with NHS Lothian, Lothian and Borders Fire and RescueService and Police to obtain funding from the Low Carbon Vehicle

Procurement Support Scheme. The Scheme provides funding for thedifference in costs between low carbon vehicles and their conventionalequivalents.

In 2010-11 under the Scheme, the Council obtained 3 vehicles (2 xNissan Leaf, 1 x Mitsubishi) and Lothian and Borders Fire and RescueService obtained 2 x Ashwood diesel electric hybrid vans. Four

charging points were installed.

In 2011-12 under the Scheme, the Council obtained 7x Kangoo electricvans, Lothian and Borders Police obtained 2 vehicles (1x Ampera, 1xConnect) and NHS Lothian obtained 2x Citroen C Zeros. Ten chargingpoints were installed.

2.3 A Scottish Government grant was awarded to the Council in 2011 to

facilitate a trial of enhanced telematics technology in a number of itsvehicles. The trial aims to reduce fuel consumption through moreefficient driving and better route planning/improved utilisation ofvehicles.

Fifteen vehicles from the Council fleet which operate within the AQMAsof the city have been selected for this trial. The system has run for

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3.2 ECOSTARS Europe was formally launched in Edinburgh in June 2011and will run for 3 years. The project will assist in reducing emissionsfrom road freight vehicles that serve Edinburgh, by introducing an

audited self-certification scheme for operators, based on driver training,age and Euro emissions standards of vehicles, type of fuel used anddelivery scheduling/routing techniques applied.

3.3 The ECOSTARS Europe scheme can be extended to other commercialroad vehicle sectors e.g. public service buses, coaches, taxis, LGVs.Ambitious targets have been agreed for each member organisation.

The targets for the number of freight vehicles operating in Edinburghbecoming scheme members are:

Year 1: 3000 vehiclesYear 2: 4000 vehicles

To date 18 operators have joined ECOSTARS Edinburgh and a total of1805 vehicles have been registered. The majority of member operators

are from the freight haulage sector, but there are plans to try to recruitmore passenger transport fleets to the scheme.

4 Park and Ride Sites

4.1 The city is served by a series of park and ride sites situated at locationsaround its periphery (see below). Substituting car trips by bus travel

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4.3 Data on usage rates for bus-based Park & Ride sites in Edinburgh iscollected by automated counting equipment and verified by twice-dailymanual counts.

Hermiston has the highest utilisation levels, which at times reaches100% of existing spaces. Plans to double the capacity of the site are atan advanced stage, with final design complete. Finance to acquire thenecessary additional land is also in place.

Ingliston currently has utilisation of around 56%, but this is after

expansion and there is evidence of recent growth to fill the additionalcapacity.

Midlothian Council report that the proposed expansion at Sheriffhallhas not progressed. Current average peak occupancy rates varybetween 60 and 75% but near-capacity occupancy is observed duringthe Edinburgh Festival and Christmas periods. The vast majority ofusers are Edinburgh-bound.

Straiton and Newcraighall (operated by Network Rail) currently havelower utilisation levels, but offer the opportunity of spare capacity tomeet future demand.

Ferrtytoll (operated by Fife Council) has shown steady increases inpatronage since it was established in 2007 (expanded 2010). Usage

d f 2011 h h h i i hi i d i


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5.3 The boundary of the city centre Controlled Parking Zone (CPZ) wasextended in 2006-2007. By allocating a proportion of on-road parking toresidents, CPZs discourage car commuting into the city centre and

neighbouring areas. An alternative form of CPZ, a Priority ParkingZone (PPZ) is being trialled in the south central area of the city. This isexpected to have a positive influence on the number of commuterstravelling in by car as operational times of PPZs will be set during peaktravel periods. This trial will be reviewed after a year when outcomeswill be assessed and reported. Introduction of new CPZs or PPZs andextensions will be kept under review.

6 Electric Charging Facilities

6.1 The Council has recently reviewed its Planning Policy on ParkingStandards. The Policy now states that developers should considerprovision for electric vehicle charging infrastructure as part of all typesof development. Currently, this is being progressed by the inclusion ofan informative on planning consents, rather than use of Section 75

legal agreements or the application of planning conditions. It may benecessary to review this position if increased vehicle charging provisionin Edinburgh is to be realised.

6.2 The UK Office for Low Emission Vehicles (OLEV) has provided fundingfor a second wave of its Plugged in Places programme, which partfunds electric vehicle charging infrastructure. The programme is

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SCOOT Status Location In AQMA

Fully operational (loops allfunctional)

Causewayside, Dalkeith Road

Gorgie Road junction ChesserAvenue /Balgreen Road

N

Y

Running in part; loopsfunctional, but revalidationrequired

North & South Bridges,

St John's Road

Y

Y

Loops needing to be repaired,validation not required

Lothian Road, London Road,Slateford/Shandon, Ardmillan,Queensferry Road, New Town,Ferry Road

Y

Loops and validation needed Roseburn, Slateford near UnionCanal, Bristo Triangle

Y

Unlikely to be reinstalled, dueto tram receiving priority

Queen Street, Princes Street,Haymarket, Leith Walk, Leith, St

Andrew Square

Y

Table 7: Current status of SCOOT Systems within Edinburgh

7.2 The Council has secured Scottish Government grant funding to supportdeployment of a real-time remote sensors system (MOTEs) to monitornitrogen dioxidelevels in St Johns Road. The system providesqualitative real-time data, and can be linked to the SCOOT system.

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will promote cycling through marketing and promotional activities,development and distribution of publicity materials, planning anddelivery of workplace initiatives. These are likely to include travel

planning, possibly mobile bike mechanics, cycle training for employeesetc. The project will also assist with initiatives to promote use of theQuality Bike Corridor and other similar initiatives. The projectcommenced in October 2011 and will end September 2014.

9 Edinburgh Tram Project

9.1 The Edinburgh Tram Project will introduce trams running from theairport to the city centre, commencing in 2014. Operation of the tramswill provide a positive impact on air quality in the west of the city andcity centre, as emissions at point of use are zero. Review of trafficmanagement and bus routing will be necessary to avoid creating localair quality issues, particularly in the city centre.

10 Local Transport Strategy

10.1 Local authorities are advised in DEFRA Technical Guidance documentLAQM TG (09) to refer to measures, which are outlined in the LocalTransport Strategy (LTS) specifically relating to producingimprovements in air quality.

10.2 The Councils current LTS covers the period 2007-2012. The LTScontains a framework and policy measures that mirror those in the


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12 Smoke Control Areas

12.1 Although Smoke Control Orders cover the entire Edinburgh city area; ithas become apparent that more residents are burning coal and woodin open fires. The Council has adopted a pro-active approach toaddress this issue and each year at the end of the summer a campaignis run to draw attention to the air quality impacts and legalrequirements under the Clean Air Act.

13 Transport 2030 Vision

13.1 The Councils Transport 2030 Vision provides an overarching approachfor the development of transport in Edinburgh over the next 20 years.The Transport 2030 Vision will complement and inform the regularlyupdated LTS. The Vision has a number of measures which willcontribute to improving air quality:

Low emission zones, if other measures do not achieve thenecessary progress towards improved air quality.

Working with operators towards an emission-free publictransport fleet by supporting initiatives for electric and hybridvehicles.

Air quality improvements in partnerships with the public


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A Quality Freight Corridor is a designated key route where the efficientmovement of goods vehicles will be facilitated in partnership with roadfreight operators. A Quality Freight Corridor may also reduce the

environmental and road safety impacts of their operations.

Stakeholder consultations on the concept of Quality Freight Corridorsin the Edinburgh area will concentrate on the principle of the concept,whether single or multiple corridors are preferable and the type ofmeasure that could form part of a Quality Freight Corridor.

14.3 Freight Consolidation Centre

A Freight Consolidation Centre is a facility set up on the edge of anurban area, where incoming goods vehicles unload part loads. Thesepart loads are consolidated to make a full load on another vehiclespecifically used for urban deliveries. By combining loads, the numberof vehicle movements can be reduced and low emission vehiclesdeployed within the urban area.

14.4 A report by Halcrow Group suggested that these facilities are beneficialfor air quality and reducing congestion, but require revenue to operate.It is estimated that annual income will only cover around 40% to 50% ofoperators costs; therefore, some form of public subsidy is likely to berequired.

14.5 Automated Loading and Unloading Systems


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targeting vehicles over 3.5 tonnes. Methods of enforcement varydepending on the type of LEZ in place or the classification of vehiclesincluded.

15.3 For buses the Traffic Commissioner for Scotland can apply conditionsto bus operators licences specifying emission standards. The Councilwould need to satisfy the Traffic Commissioner that there is a case toimpose such conditions; subsequent enforcement would be theresponsibility of the Traffic Commissioner.

15.4 To enforce mandatory controls for road freight vehicles, the LEZ wouldrequire a Traffic Regulation Order. Enforcement could then take anumber of forms including manual, fixed CCTV, Automatic NumberPlate Recognition. This is likely to require significant capital andrevenue investment by the Council. An alternative method ofenforcement might be to authorise Council Parking Wardens to enforcea scheme for road freight.

15.5 Taxis are licensed under the Civic Government (Scotland) Act 1982.An option to control emissions from this vehicle class would be toimpose conditions on the operators licence.

15.6 At its meeting in November 2011, the Transport, Infrastructure andEnvironment Committee instructed the Director of Services forCommunities to consult as soon as practicable after the publication offorthcoming guidance by Defra/Scottish Government and report on the


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This mapis reproducedfrom OrdnanceSurvey material withpermissionof Ordnance Survey on behalfofthe Controller of HerMajesty's Stationery Office CrownCopyright. Unauthorisedreproductioninfringes Crown Copyright andmay lead toprosecutionor civil proceedings. Licence Number 100023420. City ofEdinburgh Council2011.

Newbridge Roundabout to Ratho Station - Air Quality Management Area

Produced by City of Edinburgh Council, Corporate Governance,Policy and Public Affairs, on 19 January 2012.NOT TO BE REPRODUCED

0 390 780 1,170 1,560195Meters

Legend

AQMA


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Central Air Quality Management Area


0 840 1,680 2,520 3,360420Meters

Legend

AQMA per the order

AQMA - extended area per the variation


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Great Junction Street extension - Air Quality Management Area


0 220 440 660 880110Meters

Legend

AQMA per the order

AQMA - extended area per the variation

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Reproduced by permission of Ordnance Survey on behalf of HMSO.

Indicative AQMA : Ferry Road - Inverleith Row

air quality progress report

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