2006-2011 Main LTP

Introduction

Air quality is a key issue for society, as it has the potential to impact on human health and the environment.  Air quality is determined in part by the emissions from activities such as energy production, industrial processes and road transport.  These activities contribute different pollutants at differing concentrations into the air.

Poor air quality can be particularly harmful for the most vulnerable members of society such as babies and young children, the elderly and those with pre-existing illnesses such as asthma, heart disease or other cardio-respiratory conditions.  Exposure to poor air quality, particularly over a long time scale and at elevated concentrations, is believed to play a role in diseases such as asthma and cancer.  Depending on the pollutant type, exposure to high levels over short time scales can lead to difficulties in breathing and acute symptoms such as wheezing, coughing, headache and nausea.

Poor air quality does not just impact upon human health; air pollution can also have an adverse effect upon wildlife and vegetation, including crops.  Some pollutants contribute to acid rain which can erode the facades of buildings and other structures.  Certain pollutants (specifically carbon dioxide in relation to road transport) are known to contribute to global climate change.

Activities such as those highlighted above can also affect the immediate environment and human health on a local scale.   An Air Quality Strategy for Warwickshire will help to manage potentially polluting actions and activities, particularly the use of road transport and to minimise the impact  on air quality thereby aiming towards a healthier environment.

The Air Quality Strategy aims to focus on air quality issues within Warwickshire, drawing strong links with the five District/Borough Councils, whilst also taking into account regional considerations and the UK National Air Quality Strategy objectives.  The Government’s targets on reducing greenhouse gas (carbon dioxide) emissions are also taken into consideration, as is the promotion of more sustainable lifestyles.

The Strategy focuses on road transport as this is the main contributor of polluting emissions in Warwickshire, and puts forward an Air Quality Action Plan for reducing these emissions.  Warwickshire’s air quality issues have been considered in an inclusive, multi-disciplinary fashion in order to achieve the most appropriate, realistic and practical solutions.

Many of the schemes and initiatives outlined in the Action Plan have common, interlinked approaches, answering directly to the most relevant air quality issues in the County, often seeking out the same end result.  These are also used to inform transport policy for the County and complement the LTP objectives.

The Need for an Air Quality Strategy

Improving local air quality delivers a number of benefits, the most important of which is the improvement of public health and quality of life.  In addition to influencing air quality, transport policy can determine other benefits including the improvement of road safety, increased provision, security and comfort of public transport, the improvement of public spaces and the promotion of healthier lifestyles through the encouragement of walking and cycling.  Addressing air quality issues can also help meet Governmental objectives on greenhouse gas emissions.

The Government has set out standards in legislation for seven key pollutants in its National Air Quality Strategy.  The standards are in place to protect human health and are based on European legislation and guidance from organisations such as the World Health Organisation.  In the UK each local authority is obliged to meet these standards within their respective areas.

The remainder of this Strategy sets out:

• The objectives of the Air Quality Strategy;
• Local, regional and national policy framework related to air quality;
• The current air quality in Warwickshire;
• Existing and potential air quality issues affecting the five Boroughs and Districts;
• The Air Quality Strategy developed in response to the cited issues;
• Constraints and limitations in carrying out the Air Quality Strategy;
• The Action Plan for delivering the proposed schemes and initiatives; and
• Monitoring of the Action Plan.

The Objectives of the Air Quality Strategy

The objectives for this Air Quality Strategy, which have been developed in conjunction with the Local Transport Plan, reflect local, regional and national policy on air quality and transport. The objectives of the Strategy are:

• To be primarily concerned with air quality issues that have, and will arise, due to transport-related issues;
• To create a general five-year Action Plan for Warwickshire with schemes and initiatives for improving air quality related to transport issues within the County;
• To inform the County Council's transport policy;
• To take a proactive stance, rather than a reactive one, foreseeing potential future problems and taking measures to minimise them before they occur;
• To integrate the Strategy fully within the Local Transport Plan, complementing the schemes and objectives contained within all other parts of the larger document; and
• To be able to act as a freestanding document on its own merits away from the Local Transport Plan.

Pollutants, Sources and Effects

There are seven key pollutants considered in the UK National Air Quality Strategy, and each of these have objectives set on them as threshold concentrations in the air to protect human health.  All of these substances are present in the atmosphere, at 'background' levels.  It is human activities that contribute to excess or elevated concentrations of these substances in quantities enough for them to become polluting.  These seven pollutants, their primary sources and effects are briefly described below.

Nitrogen dioxide

The main source of nitrogen dioxide (NO₂) in the UK is road transport (around 43% of total emissions).  It is the primary pollutant of concern in Warwickshire and gives rise most frequently to the declaration of Air Quality Management Areas. 

The health effects of exposure to nitrogen dioxide at levels above normal ambient concentrations include irritation of the lungs and an increase in the symptoms felt by those with existing lung conditions such as asthma and also those with heart conditions. Exposure of young children to high levels of nitrogen dioxide can increase the risk of respiratory conditions and can even limit lung growth, leading to poor lung function in the long-term.

Particles (PM₁₀)

Particles less than 10 µm (0.01 mm) are considered a pollutant because they are easily inhaled into the human lungs and airways, potentially causing damage.  In Warwickshire there are currently no exceedances of the PM₁₀ objective, although it is still a pollutant of some concern in the County.

Carbon Monoxide

Carbon monoxide levels have dropped considerably in the UK in the last 30 years and it is not a significant pollutant for Warwickshire.

Benzene

Benzene levels in Warwickshire are appreciably below the UK objective and this is not considered to be a pollutant of concern in the County.

1,3-Butadiene

1,3-butadiene levels in Warwickshire are not significant.

Lead

As a result of the introduction of unleaded fuels and the catalytic converter the emissions of lead from road transport have significantly reduced in the last 30 years and lead is not an air pollutant of significant concern in Warwickshire.

Sulphur Dioxide

The principal sources of sulphur dioxide in the UK are energy production and industrial combustion and road transport is a comparatively insignificant source.

Policy and Guidance Context

National Policy

National air quality policy comes in the form of the Local Air Quality Management Policy Guidance Note LAQM. PG(03) (2003), which provides guidance and assists local authorities in working towards meeting the UK air quality standards and objectives.

LAQM. PG(03) (2003) also provides guidance on the development of local and regional air quality strategies. Chapter 5 of the document includes particular points of guidance such as:

• Co-operation between local authorities, neighbouring authorities and local authority departments in the devising of air quality strategies to ensure a fully-integrated, “corporate” approach;
• Linking strategies to other local initiatives and strategies;
• Linking the strategy to plans such as the Local Transport Plan;
• Setting out measures to maintain or further improve areas with existing air quality as well as seeking to improve areas with poor air quality; and
• Following the same principles in developing an air quality strategy as one would in developing an Air Quality Action Plan for an Air Quality Management Area.

Advice is also given in the LAQM document to consider the National Society for Clean Air (NSCA) documents “Air Quality Action Plans: Interim Guidance for Local Authorities” and “Air Quality: Planning For Action”. These documents advise that objectives and targets within schemes and initiatives are:

• Practicable, to ensure that they can actually be carried out as desired;
• Measurable, in order to determine their success;
• Set to be carried out within a reasonable timescale; and
• Have the involvement and support of key stakeholders as well as ensuring that the wider benefits of a Strategy are given greater emphasis to the public.

It is also recommended that longer-term objectives and targets be considered as well as the more medium and short-term ones.

UK national policy also exists in terms of climate change and the emission of greenhouse gases.  Following the Kyoto Protocol, the UK Government has committed itself to reducing carbon dioxide emissions by 20% below 1990 levels by 2010, and to cut overall greenhouse gas emissions by 12.5% below 1990 levels by 2008 – 2012. Some of these cuts will come from the transport sector with agreements with European car manufacturers to increase fuel efficiency, and for Government to invest in transport, aiming to cut congestion and pollution.

Regional Policy

There are a number of regional policies in the Regional Spatial Strategy (RSS11) relating directly to transport and therefore impacting on air quality. Policies include increasing the awareness of “alternative travel choices”, reducing current levels of car use (Policy T4) and encouraging more walking and cycling journeys (Policy T3).

Other policies that have positive implications for air quality include reducing the need to travel (Policy T2), improving access to public transport and providing attractive alternatives to the private car (Policy T5), putting in place Park and Ride schemes where viable (Policy T6) and addressing the issues of road freight, tackling problems with through traffic and encouraging the movement of freight away from the roads (Policy T10).

Local Policy

On a local level, the Warwickshire Structure Plan 1996 – 2011, in line with the Regional Spatial Strategy, also contains policies relating to transport, which have the potential to impact positively on air quality. Policy T1 aims to “reduce the impact of traffic on residential areas and the countryside whilst recognising travel needs”, and “encourage industry to develop distribution arrangements, including the use of rail, pipeline and canal, which minimise environmental damage.”

Other policies within the Warwickshire Structure Plan seek to promote alternative modes of transport, encourage the use of public transport, improve facilities for walking and cycling, reduce the number of short car journeys and encourage an overall modal shift away from the private car.

Air Quality in Warwickshire

Air quality across the County is largely good. There are a few areas however, where the air quality objective for nitrogen dioxide is not being met. In these locations Air Quality Management Areas (AQMA) have had to be declared or will soon be declared by the relevant District/Borough Council.  In each of these AQMAs road transport has been identified as the most significant contributor to elevated air pollution levels.

North Warwickshire Borough

A declared AQMA for NO₂ at Coleshill in North Warwickshire has been in place since March 2001, and relates to one relevant residential property adjacent to Junction 4 of the M6. The AQMA is bounded by Stonebridge Road, Coleshill Heath Road, the M42 and the M6, and relates directly to the traffic on these major roads.  The AQMA was declared for a marginal exceedance (42 µg/m³) of the annual NO₂ objective (40 µg/m³).

It is possible that the AQMA may be revoked in the near future, although continued monitoring, as set out in the North Warwickshire Borough Air Quality Action Plan will dictate the possible timescale of this. This monitoring programme will also assess the possible influence of the new M6 Toll Road on the AQMA.

Nuneaton and Bedworth Borough

There is a possibility that an AQMA may be declared on the Leicester Road gyratory, specifically around the Weddington Road/Old Hinckley Road and Old Hinckley Road/Leicester Road junctions.  Modelling predicts the highest 2005 concentrations to occur at the junction of Weddington Road and Old Hinckley Road, with a value of 47.8 µg/m3. This road network is known to be particularly congested and recent works have been carried out to ease the flow of traffic. It is possible that the ambient air quality in the immediate area surrounding Weddington Road and Old Hinckley Road may improve slightly due to a freer flow of road traffic.

The County Council will work with Nuneaton and Bedworth Borough Council to put together an Air Quality Action Plan if/when an AQMA is declared.

Rugby Borough

An AQMA for exceedances of the NO₂ objective came into force across the entire urban area of Rugby in December 2004. The AQMA is bounded by the M45, M6, A45, minor roads to the west of Long Lawford and the boundary with Daventry District.  Air quality problems in Rugby are directly related to the large number of peak hour vehicles and HGVs travelling through the town centre.

Exceedances of the NO₂ objectives (with concentrations of between 40 and 44 µg/m³) for the objective year of 2005 are predicted to occur around the gyratory in the centre of Rugby, specifically next to and approaching the Bilton Road, Lawford Road and Dunchurch Road junctions. It is on the basis of these predicted exceedances that the Rugby AQMA has been declared.

It is also possible that exceedances of the NO₂ objective could occur in the centre of the village of Dunchurch, although at present the highest predicted 2005 concentration is reported as being 40 µg/m³ at the façade of a property closest to the central crossroads in the village.

An Air Quality Action Plan to address the AQMA is currently being prepared by Rugby Borough Council in conjunction with the County Council, and is due for publication in July 2006.

Warwick District

There are a number of areas in Warwick District where there are potential exceedances of the 2005 NO₂ objective.  As a result of this, three AQMAs were declared in December 2004 covering the following areas:

• Leamington Spa around the junctiojn of Bath Street, High Street and Clemens Street. The highest predicted concentration at a roadside property is 56.9 µg/m³ and the lowest predicted concentration is 49.4 µg/m³;
• Warwick town centre, where exceedance of the 2005 NO₂ objective have been predicted in High Street, Jury Street, Church Street and Castle Street. The highest predicted concentration is at the corner of Jury Street and Castle Street (55.7 µg/m³); and
• Barford, where the highest 2005 concentration (59.1 µg/m³) is predicted to occur around Church Street and Bridge Street.

An Air Quality Action Plan to address these three AQMA's is currently being prepared by Warwick District Council in conjunction with the County Council, and is due for publication in July 2006.

Stratford-on-Avon District

There are currently no AQMAs declared within Stratford District. Monitoring undertaken by the District Council suggests that an AQMA is likely to be declared in the near future in Studley. This relates directly to the high traffic volumes carried by the A435 trunk road between the M42 and the A46 at Alcester. Further monitoring will continue to be undertaken by the District Council to identify other air quality problems as they arise, including within Stratford-upon-Avon town centre.

The County Council will work with Stratford District Council to put together an Air Quality Action Plan if/when an AQMA is declared.

Air Quality Challenges

There are a number of other air quality issues or potential issues that will need to be observed and monitored closely. It is partly the purpose of this Strategy to assist areas such as this and ensure that air quality does not deteriorate further and fail to achieve national objectives. The Strategy also aims to assist areas that have already declared AQMAs to help regain the UK standards for air quality.

If policies and action plans to improve and maintain air quality in Warwickshire are not put in place then problem areas may degrade further and areas that are seen as potential future problems may become real and significant problems.  All the potentially emerging air quality issues in Warwickshire are related to road traffic in and around the county’s town centres and along major commuter arterial routes and junctions.

There are a number of challenges related to air quality in Warwickshire that need to be addressed in the immediate future which this Strategy seeks to tackle. These include:

• Discerning whether movement of congested traffic to other areas is merely moving the entire problem, including air quality, to other areas;
• Continuing monitoring in areas that may emerge as significant air quality problem areas;
• Solving existing or potential air quality problems related to main arterial routes in the County;
• Assessing whether traffic problems are a result of localised traffic or through traffic in order to allow the best approaches to traffic and air quality management;
• Increased road traffic in the County associated with increased use of Coventry Airport;
• Dealing with town centre traffic, (both commuter and visitor/ tourist traffic in towns such as Warwick, Leamington Spa, Rugby and Nuneaton) where many air quality problems occur, including the presence of HGVs in town centres;
• School related traffic; and
• Assessing the impact that the newly opened M6 Toll will have on the AQMA at Coleshill. The real effect of this will not be fully realised for a number of years, as patterns of usage on the road need to become established.  However, continued monitoring of air quality in the area for the foreseeable future will help establish any improvements or otherwise in air quality at Coleshill.

The Air Quality Strategy

The vision of Warwickshire County Council’s Air Quality Strategy is:

'To take a proactive approach to maintaining and improving air quality within the County where transport is causing unacceptable levels of air pollution, in order to improve quality of life for all'.

The overall aim of the Air Quality Strategy is to work to improve areas of existing air quality problems, maintain areas with good air quality and to promote and support practices, activities and lifestyles, including modes of transport that can achieve this.  The Air Quality Strategy also aims to support and promote all transport policies that contribute to improving air quality within Warwickshire.

The Air Quality Strategy seeks to present a number of broad ranging policies, highlighting the air quality problems specific to Warwickshire. These inform the specific schemes and initiatives in the Action Plan.

The major themes of the Air Quality Strategy are:

• To improve areas with poor air quality and maintain those areas that currently experience good air quality
• To encourage sustainable forms of transport, which reduces reliance on private cars and minimises emissions to air; and
• To promote awareness of alternative travel choices.

Air Quality Strategy Policies

Schemes and initiatives put in place to tackle poor air quality, by reducing the impact of road traffic on air quality, will assist in improving quality of life across Warwickshire.

The County Council will also make a commitment to increase it’s own awareness of air quality issues, in order to assist in improving air quality. The County Council will take greater involvement in local and regional air quality action groups.

The figure below highlights the key links between the Air Quality Strategy and the other LTP strategies.

Constraints to Delivering the Strategy

There are a number of constraints on the delivery of the Air Quality Strategy, due to transport schemes that are already planned and are being implemented, or which are due to be implemented in the near future. Constraints also exist because motorways and trunk roads are outside the control of the County Council.

In terms of planned schemes, the Leamington Urban Mixed Priority (LUMP) scheme in the Parade, Victoria Terrace and Bath Street, is being implemented during 2006/07. One element involves traffic signal management to promote smoother traffic flow. This scheme in itself may have a positive impact on air quality in this area, although clearly monitoring and modelling work will have to be carried out to confirm this. Given that the LUMP scheme is a demonstration project being undertaken in partnership with DfT, it is unlikely that any further schemes to address air quality in this area will be implemented given the need to monitor the impact of the project over the next few years.

With regard to motorways and trunk roads passing through Warwickshire, these and any schemes related to them are the responsibility of the Highways Agency.  The County Council will maintain regular contact with the Highways Agency to ensure that it is fully aware of any future schemes which could impact on any declared AQMAs or air quality issues generally on the strategic network.

The Action Plan

Actions for delivering the Air Quality Strategy are as follows:

Action AQA1 - Improving poor air quality through partnership working

Improving air quality in the County will include assisting the District/Borough Councils in drawing up Air Quality Action Plans as required (if and when Air Quality Management Areas are declared) and providing support in implementing the Plans.

Regular communication with the District/Borough Councils, as well as neighbouring authorities and other organisations such as the Highways Agency, will be carried out to ensure maximum awareness of all air quality issues.

The County Council will seek to implement traffic management schemes where air quality is poor, particularly within town centres.

Air quality monitoring will be carried out in support of the District/Borough Councils, in order to foresee any potential air quality problems, improve the local and regional air quality data set, and improve the knowledge and understanding of the air quality situation in the County.

The County Council has recently published a Lorry Route Map for Warwickshire, which aims to take road freight vehicles away from sensitive locations, such as residential areas and onto more appropriate routes.

The Council also aims to operate a “cleaner” vehicle fleet by introducing alternative-fuel vehicles, as they become economically viable. The Council currently operates 344 vehicles, of which 222 are diesel, 94 are petrol (largely motor scooters used in the “Wheels To Work” scheme) and 28 are rebated diesel. Fleet vehicles are currently purchased according to the carbon dioxide performance of the vehicle.

Action AQA2 - Maintaining areas of good air quality

Maintaining on-going communication with the District/Borough Councils to ensure full awareness of potential future air quality issues.

Implementation and promotion of a Lorry Route Map for the County, encouraging goods vehicles to remain on designated routes.

Action AQA3 - Education and information

Increasing public awareness of road transport-related air quality issues, through a number of initiatives, including a dedicated air quality page on the Warwickshire County Council website.

Promoting the use of public transport and alternative methods of transport to the private car, including TravelWise initiatives and travel plans for schools and workplaces. Promotion of cycling and walking as alternative methods of transport, highlighting the health benefits that both these modes can bring.

Continued promotion of the Safer Routes to School initiative, including Walk to School Weeks throughout the County and possible introduction of Car Free Days to the main town centres of the County.

Improving route signage, particularly in town centres, in order to alert drivers to more preferable, possibly less congested routes.

It is anticipated that the Council’s use of “cleaner” vehicle technology will encourage other employers to make use of similar types of vehicles.

Action AQA4 - Strategy review

The Air Quality Strategy is to be reviewed no less than once a year and is to be informed by the District/Borough Council reviews of air quality.

Action AQA5 - Integration of air quality and transport planning goals

Traffic will be managed, where possible, to take account of the need to minimise impacts on local air quality. In new developments, air quality issues will be considered in all situations, including the consideration that all new developments are to have reasonable access to public transport and sufficient provision is made for pedestrians and cyclists.

Local bus services will be improved, by increasing the accessibility, affordability and safety of services.

The County Council will contribute to the national targets on greenhouse gases, which includes an overall reduction of 20% in CO₂ emissions by 2010.

Targets, Indicators and Monitoring

Targets and indicators are described in the table below. These have been set within the context of other LTP strategies that impact on air quality, including:

• Congestion Strategy;
• Sustainable Freight Distribution Strategy;
• Public Transport Strategy;
• Cycling Strategy;
• Walking Strategy;
• Safer Routes to School/School Travel Plan Strategy;
• Changing Travel Behaviour Strategy; and,
• Land Use and Transportation Strategy.

Extensive modelling has been carried out to ascertain the degree of change in traffic levels that will be required to address the current AQMAs and return air quality to within national guidelines for NO₂.  This data, plus predictions related to improvements in vehicle emissions, have been instrumental in developing appropriate targets.