STAGE 4 REVIEW AND ASSESSMENT OF AIR QUALITY ENVIRONMENT ACT 1995 PART IV FINAL REPORT JULY 2003 Translations of this report into languages read by local residents can be made available. Audio tape and large print versions can also be provided. For more information about translations contact 01454 865682 - 1 - EXECUTIVE SUMMARY On 1st November 2001, South Gloucestershire Council declared an air quality management area (AQMA) for nitrogen dioxide 110 metres either side of the M4, M5, M32 and M49 motorways. The basis for the declaration was screening work undertaken at Stages 1, 2 and 3 of the local air quality management process where traffic flows along the motorways were identified as likely to cause exceedences of the annual mean nitrogen dioxide objective. The act of declaring an AQMA placed duties on the local authority to carry out a further, “Stage 4” review of the air quality within the AQMA to confirm that the decision to declare was correct and also to draw up Action Plans that would lead to improvements in air quality within the AQMA. This report summarises the work undertaken at stage 4, and includes the early stages of the Action Planning process. In the main, stage 4 involved monitoring levels of nitrogen dioxide at a range of distances from the motorways. Monitoring was also undertaken at Gloucester Road, Filton and Regent Street, Kingswood where stages 2 and 3 had shown levels of nitrogen dioxide to approach the objective limit. Monitoring near the M4 (the busiest section of motorway), showed that the area originally declared an AQMA was very much over precautionary (ie the area of exceedence was over predicted). When the results of the monitoring programme were adjusted (following statutory guidance) to give levels that would be predicted in 2005 (the date the objective is to be met), the standard was not predicted to be exceeded as close as 30 metres from the motorway. Along this section of motorway there are no houses or other so called “relevant receptors” this close to the motorway. The commentary attached to the appraisal of the Stage 4 report by DEFRA suggested an interim step could be to reduce the AQMA to 30 metres. Following completion and publication of the “Updating and Screening Assessment” for 2003 however, further evidence to support the revocation of the AQMA has been gathered. The full commentary to the Stage 4 report appraisal is attached at Appendix 3. Following consultation on this Stage 4 report it is therefore proposed that the AQMA for the motorways is revoked. Along other, less heavily trafficked, sections of the declared motorway network, there are a few isolated properties closer than 30 metres to the motorway (mostly at 20 metres – 30 metres from the carriageway). Due to the lower flows of vehicles on these sections it is unlikely the objective will be exceeded at these locations. It is therefore proposed that monitoring continues at these locations to ensure the objective is not exceeded at relevant locations. Monitoring at Gloucester Road, Filton and Regent Street, Kingswood showed there were no exceedances of the nitrogen dioxide objective predicted in 2005 at “relevant receptors”. Levels were however close to the objective at the kerb, particularly at Regent Street, Kingswood. Since the monitoring exercise finished however, there have been significant “environmental enhancement” works on Regent Street and the surrounding area. The road has been made one- way and pavements have been widened, both reducing the numbers of vehicles on the road, and increasing the distance from the traffic to building facades. These improvements will have - 2 - reduced nitrogen dioxide concentrations in this area. The Council is therefore not under a duty to declare this area an AQMA, it is however recommended that monitoring is continued at these locations to confirm pollutant levels have fallen. This stage 4 report was the subject of consultation between November 2002 and March 2003. Comments received during the consultation process are attached at Appendix 2. The Department of Environment Food and Rural Affairs accepted the conclusions of the report. The process of local air quality management will be ongoing. Updated statutory guidance issued in early 2003 progresses air quality reviews up to 2010 to ensure continuity of the process. The first progress report was completed in May 2003. Annual reports on the situation are now required. When the AQMA for the motorways is revoked, it will not be mandatory to produce action plans. Improvements in air quality will be encouraged through the production and implementation of an Air Quality Strategy for South Gloucestershire. This strategy is now in preparation. Much of the stage 4 work was undertaken by consultants Atkins. Anyone wishing to read their reports in full should telephone 01454 863485 for copies. - 3 - CONTENTS Page 1. Introduction 6 1.1 Consultation on Stages 2 & 3 and Stage 4 Reports 6 1.2 Declaration of an AQMA in South Gloucestershire 6 1.3 Appraisal of Stage 2 & 3 Review and Assessment 7 1.4 Appraisal of Stage 4 Review and Assessment 7 2. Stage 4 Review and Assessment 8 2.1 Aims of Stage 4 Review and Assessment 8 2.2 Further Reviews of Air Quality 9 3. Stage 4 In-depth Assessment 10 3.1 Monitoring of M4 Motorway 10 3.2 Results of preliminary 6-month monitoring 11 3.3 Further 6-month monitoring along the M4 11 3.4 Results of motorway monitoring 11 3.5 Re-adjustment of predictions to take account of higher traffic 12 growth 3.6 Discussion regarding motorways 12 3.7 Conclusion regarding motorways 12 4. Stage 4 Review of busy High Streets 13 4.1 Monitoring at high street locations 13 4.2 Results 13 4.3 Gloucester Road, Filton 13 4.4 Regent Street, Kingswood 13 4.5 Re-adjustment of predictions to take account of higher traffic 14 growth 4.6 Discussion regarding high street locations 14 4.7 Conclusion regarding high streets 15 5. Developments since Declaration of South Gloucestershire’s AQMA 16 5.1 Action Planning 16 5.2 National Policy Developments 17 5.3 New air quality standards 17 5.4 Local Developments 17 5.5 Neighbouring local authorities 17 5.6 Working in Partnership 18 5.7 Future monitoring 18 5.8 Quality assurance and quality control 18 5.9 Air Quality Strategies 18 - 4 - 6. Conclusions 20 Appendix 1 – Developments in Legislation 21 Appendix 2 – Responses to consultation on Stages 2 & 3 22 Outcomes of the Local Agenda 21 Forum 27 Appendix 3 - Responses to Consultation on Stage 4 37 Appendix 4 – DEFRA commentary on appraisal of Stages 2 & 3 39 South Gloucestershire Council’s response to commentary 41 Appendix 5 - DEFRA commentary on appraisal of Stages 4 43 Appendix 6 – Scoping of potential Action Plans in South Gloucestershire 44 - 5 - 1. INTRODUCTION Local air quality management was an initiative introduced in 1997 aimed at improving air quality in the UK. Local authorities were given duties to review their current air quality and forecast whether government set targets for particular pollutants might be exceeded at certain dates in the future. Appendix 1 summarises the developments in legislation. The process of “Reviewing and Assessing” the air quality in South Gloucestershire has continued and reports on Stage 11 and stages 2 and 32 of the process were published in February 1999 and November 2000 respectively. The detail of these reports is not reproduced here and it is assumed the reader is aware of the contents of these documents. Copies are available at www.southglos.gov.uk or telephone 01454 863485 for hard copies. The result of the initial review process, highlighted nitrogen dioxide as being the main pollutant of concern to South Gloucestershire, predominantly as a result of pollution emitted by traffic. The results of monitoring and modelling indicated that properties close to the motorways could be exposed to levels of nitrogen dioxide above the annual average national standard in 2005 (the date the standard should be achieved by). Monitoring also indicated that properties close to certain busy high streets might only just comply with the target standard. 1.1 Consultation on Stages 2 & 3 and Stage 4 Reports The reports for Stages 2 and 3 and Stage 4 of South Gloucestershire’s Review and Assessment were widely consulted on. The Reports were circulated to the Department of Environment, Food and Rural Affairs (DEFRA); neighbouring local authorities; relevant departments of the Council and Council Members; the Environment Agency; the Highways Agency; local interest groups; libraries etc. A presentation of the Stage 2 & 3 report was also made to the councils local agenda 21 forum, following which a series of workshops were run to explore the implications of the proposed air quality management area (AQMA) and assess the relative merits of declaring a wider precautionary area or a minimum predicted area of exceedance. Appendix 2 summarises the responses of the consultation processes and outcomes of the workshops. 1.3 Declaration of an AQMA in South Gloucestershire On the basis of the conclusions of the stage 3 work and following public consultation, on 1st November 2001, South Gloucestershire declared an AQMA along the M4, M5, M32 and M49 motorways, covering a distance of 110 metres either side of the carriageways along their entire length within South Gloucestershire. A corridor of 110 metres was based on the outcomes of the consultation process and early findings of monitoring which had been installed as part of stage 4 of the review. 1 Local Air Quality Management – Stage 1 Review and Assessment, South Gloucestershire Council, Feb 1999. 2 Local Air Quality Management – Stage 2 and 3 Review and Assessment Consultation Draft, November 2000.