Scrutiny Report of Cardiff’s Environmental Scrutiny Committee Improving Cardiff’s Air Quality April 2018 Cardiff Council CONTENTS 2 CHAIR’S FOREWORD Councillor Ramesh Patel Chairperson – Environmental Scrutiny Committee 3 INQUIRY METHODOLOGY Cardiff’s Environmental Scrutiny Committee reviewed the development of Cardiff’s Clean Air Strategy and considered a number of areas that had the most significant impact on air quality in the city. In doing this it explored the key themes that formed the basis of the Cardiff’s Clean Air Strategy, for example, the current air quality position; the Welsh Government position; transportation; planning & development; sustainable fuels and clean air zones. In reviewing the information the task group drew upon a number of witness contributions and information sources including: Cabinet Members from Cardiff Council; Officers from Cardiff Council including representatives from Planning, Transportation, Energy & Sustainability, Highways, Waste Management and Fleet Management; Officers from Shared Regulatory Services; Public Health Wales; Cardiff & Vale Local Public Health Team; University of South Wales; Society of Motor Manufacturers; Representatives from local taxi companies including Premier Taxis, Dragon Taxis and Uber; University of the West of England; Bus industry representatives including Cardiff Bus, New Adventure Travel, Stagecoach Bus, Bus Users Cymru and Confederation of Passenger Transport; Welsh Government; Natural Resources Wales; Cardiff University; For Cardiff (Cardiff BID). 4 From this body of evidence the Members drew key findings and the 30 recommendations made in this report. The Environmental Scrutiny Committee Task & Finish Exercise will report to the Environmental Scrutiny Committee on the 17th April 2017, and subject to approval of the draft report it will be commend to Cardiff Council’s Cabinet for consideration and response. 5 INQUIRY TERMS OF REFERENCE The aim of the inquiry is to provide Members with the opportunity to explore and consider how the Council can help to improve air quality in Cardiff. This will include reviewing: Current Air Quality Position - to include a report and analysis of the worst affected areas; the major contributing factors to air pollution in Cardiff; resources, monitoring arrangements & statutory responsibilities; the impact on public health; consider any existing air quality action plans for Cardiff; to consider air quality responsibilities placed on the Council. Development of Cardiff’s Clean Air Strategy – to include a report on the aims and objectives of the strategy; associated policies that support the development of the strategy; resources and timescale for delivering the strategy; desired impact of the strategy and the main areas that the strategy will target. Welsh Government Position on Air Quality – to gain a better understanding of the policy objectives of the Welsh Government in terms of air quality; to understand the applicable timescales and consequences of the Council not meeting these policy objectives; to identify the key areas that Welsh Government believes should be targeted to achieve the best outcomes for air quality. Transportation – to understand the positive and negative impacts that transport (and transport systems) can have on air quality in Cardiff; to establish a hierarchy of transport pollution sources and evaluate what can be done to better manage the worst polluting sources; to review transport schemes and infrastructure planned for development or in the process of being delivered in Cardiff; to explore the benefits of sustainable fleet management in Cardiff; to consider the impact that changes in technology and public perception can have on air quality. 6 Other Pollution Sources – to consider a range of pollution sources (excluding transport) and the impact that these have upon air quality in Cardiff; to establish a hierarchy of pollution sources (excluding transport) and evaluate what can be done to better manage the worst polluting sources; to review proposals currently being developed or delivered (excluding transport) to reduce pollution in Cardiff. Planning & Development – to understand how the planning and development process can be used to improve air pollution in Cardiff; to consider the current planning processes / policies and how these impact upon air pollution; the impact that the growth of the city might have upon air quality. Sustainable Fuels – to understand the challenges and opportunities that the growth of sustainable fuels can have upon air quality in Cardiff; to consider the role of the Council in terms of helping to establish the local market for sustainable fuels; to consider what the Council and its partners can proactively do to support the move to sustainable fuels. Clean Air Zones – to understand how Clean Air Zones work; the impact that a Clean Air Zone could have upon air quality in Cardiff and the wider implications for the city; the costs and opportunities of setting up a clean air zone; best practice in delivering Clean Air Zones (to include domestic and international examples). 7 RECOMENDATIONS The recommendations for this report are set out in this section of the document. They based on seven separate areas that the task group believe should be the basis for the development of Cardiff’s Clean Air Strategy. The seven areas are set out below: Clean Air Strategy – The Next Steps; Planning; Public Health; Transport; Sustainable Fuels; Council & Public Sector Partner Responsibilities; Consultation & Engagement. The recommendations are based on the evidence received during the task & finish exercise and the key findings that are documented on pages 31 to 156 of this report. Clean Air Strategy – The Next Steps Recommendation 1 - During the task & finish exercise it became apparent that achieving the EU air quality standards by 2022 was virtually impossible by using and / or accelerating existing practice, for example, by improving sustainable transport infrastructure and driving widespread public behaviour change. Not one of the many witnesses we asked was confident that the EU air quality target would be achieved in the short timescale available by carrying on with or accelerating the current approach. It was also clear in the evidence sessions that reaching the challenging target ‘in the shortest time possible’ would almost certainly involve the creation of some kind of clean air zone or low emission zone. 8 That said, working out what is best for Cardiff in terms of air quality is an evidence based scientific exercise that will be delivered in the form of a feasibility study. Such a study will review a range of alternative options for achieving the air quality standards and assess which is most likely to achieve the change needed ‘in the shortest time possible’. There are many different ‘Clean Air Zone’ options and variations, for example, congestion charging zones, low emission zones and low emission neighbourhoods. These are further complicated by geographical boundaries, emission levels, vehicle types, financial implications and time / date restrictions. Working out the best option to take is a significant challenge that will require time, expertise, clear guidance and financial resources - unfortunately based on the evidence provided Cardiff appears to be short on all four. With all of this in mind the task group recommends that the Council: . Continues to work with and lobby the Welsh Government for a clear direction and guidance on the next steps to take in terms of achieving air quality compliance ‘in the shortest time possible’; . Ask the Welsh Government to provide financial assistance to undertake the feasibility study and to deliver the option identified to improve air quality in the feasibility study; . Employ suitably qualified experts to deliver the feasibility study and help implement the option identified in the feasibility study to improve air quality; . Consider, evaluate and scrutinise the advice before taking a final decision as to the way forward; . Waste no further time in carrying out the feasibility study – the EU air quality limits need to be addressed by either 2022 or in the soonest time possible. The evidence presented suggests that feasibility studies take about two years to deliver and at the point of writing this report the Council had not started its feasibility study for Cardiff. 9 Recommendation 2 - All evidence presented to the task group identified nitrogen dioxide produced my motor vehicles to be the single biggest air quality pollutant in Cardiff - with diesel vehicles being the major offender in this category. As we are ultimately looking to reduce air pollution in the city the task group recommends that the new clean air strategy cites the reduction of nitrogen dioxide from diesel vehicles as one of its key aims and that whenever possible actions resulting from the clean air strategy specifically reflect this aim. Recommendation 3 - The task group believe that Cardiff on its own cannot fully address the air pollution issues facing the city. As has been explained in the report nitrogen dioxide is Cardiff’s largest pollutant and privately owned cars, particularly diesel, predominantly produce this. It is estimated that there are 81,800 commuter journeys into Cardiff each day from neighbouring local authorities and this volume of traffic undoubtedly has a negative impact on air quality. The two sections of road that when modelled breach EU emission limits and mandate that action is taken are located on two