4. AIR QUALITY
Context
4.1 The analysis of relevant environmental objectives of plans, programmes and strategies showed that key relevant priorities include the following:
- As a result of the EC Directive on Air Pollution 2008, air quality objectives aim to ensure that stated targets are not exceeded.
- Priority is given to areas where there are concentrations of air pollution at present (Air Quality Management Areas). Most of these areas have been declared as a result of transport sector emissions.
- The national Air Quality Strategy 36 introduces new policy framework for tackling fine particulates and identifies potential new measures which modelling indicates could provide further health benefits and move closer towards meeting the Strategy's objectives.
Baseline and key environmental problems
4.2 Air pollution can have repercussions for many aspects of quality of life, including human health and biodiversity. Air quality objectives outlined in the Air Quality Strategy for England, Scotland, Wales and Northern Ireland have been met over much of the country, but there are still a number of pollution hotspots in some urban areas where objectives for NO 2 and particulates continue to be exceeded. In Scotland, the energy sector and transport are the key sources of air pollution.
4.3 Local Air Quality Management Areas ( AQMAs) have been declared in Aberdeen, Edinburgh, Dundee, Falkirk, Fife, Glasgow, Midlothian, Perth and Kinross, Renfrewshire and South Lanarkshire. 37 All but two of these have been declared as a result of transport related emissions of NO 2 and/or particulates. The local authorities concerned are developing action plans outlining how they intend to tackle the issues identified.
4.4 Sulphur dioxide (SO 2) and Nitrous oxides (NO x) can affect respiratory health and result in acidification, thereby damaging the natural environment. Emissions of SO 2 and NO x from large combustion plants declined between 1996 and 2008, although there was a temporary increase during 2006 resulting from an increase in the use of coal. The overall downward trend, facilitated by a European Directive on Large Combustion Plants, has brought emissions back down to the lowest levels recorded since 1996 when collecting this information began. 38 Electricity supply accounted for the majority of these emissions, with SO 2 declining from 99.1 ktonnes in 1996 to 39.5 ktonnes in 2008, and NO x falling from 44.7 ktonnes to 29.1 ktonnes in 2008.
The likely evolution of the baseline in the absence of the EEAP
4.5 There are a number of factors that will influence current and future trends in air quality including choice of fuels and power sources, efficiency of machinery and vehicles, and actions contained within local air quality action plans. For the purposes of this assessment the overall trend for falling levels of SO 2 and NO x are expected to continue in the absence of the EEAP.
Key questions for the assessment
4.6 Taking into account the environmental baseline and review of wider environmental objectives, the key questions that have been considered under this heading are:
- Is the consultation on the EEAP likely to have any specific implications for existing AQMAs?
- Will the consultation on the EEAP have adverse effects on air quality more generally?
Assessing the options within the consultation on the EEAP
4.7 Table 2 in Section 1 showed that different parts of the consultation on the EEAP could have implications for air quality. As a result, the assessment has focused on the following key elements of the plan:
- Measures to improve energy efficiency in housing ( Section 6 and 7)
- Approaches to promoting energy efficiency in non-domestic buildings and processes ( Section 8).
- Discussion of potential approaches to improve energy efficiency in a range of sectors ( Section 9 and 10).
- Issues surrounding transport in terms of related schemes, efficiencies in personal and business travel, and alternative fuels ( Section 11).
Is the consultation on the EEAP likely to have any specific implications for existing AQMAs?
4.8 For the EEAP to have particular implications for existing AQMAs it must influence levels of Nitrous Oxides or particulate matter, these being the pollutants that have led in the AQMA designations, as indicated within the baseline. Furthermore, changes would be required to occur in close proximity to the AQMA itself.
4.9 The consultation on the EEAP discusses a range of proposals and activities across several sectors that in combination will help to reduce demand for energy. In turn, this will contribute to a reduction in fossil fuel combustion for energy which is a key source of such pollutants. Whilst any direct effects on AQMAs will be influenced predominantly by proximity to the source of pollutants and dispersion of pollutants from their source, it is reasonable to expect that the EEAP could have at least a minor positive impact on reducing background levels of pollutants.
4.10 Although the consultation on the EEAP does not at this stage propose specific measures for the industrial and transport sectors, it acknowledges that efficient use of energy within these sectors is an important part of reducing emissions. Energy savings within plant and equipment in sectors such as the textile industry, paper production, engineering and the chemical industry are encouraged. Furthermore, the EEAP discusses transport efficiencies, including energy efficiency in personal travel (including walking, cycling and car sharing) and business travel and alternative fuels are discussed. The emissions reductions from these sources of pollutants (particularly transport) are likely to have direct benefits for AQMAs by reducing pollutants within the AQMA boundary.
4.11 Therefore there is potential for the measures discussed within the consultation on the EEAP to improve air quality within designated AQMA. Many of the more specific options and proposals within the EEAP will have a positive although possibly insignificant impact on pollutants within AQMAs.
Will the consultation on the EEAP have effects on air quality more generally?
4.12 As discussed in the sections above, the options and proposals within the consultation on the EEAP will help to reduce the combustion of fossil fuels and as a result will reduce emissions of pollutants such as SO 2 and NO x. This will help to improve background levels of pollutants. Other measures promoted and discussed within the consultation on the EEAP, including existing programmes, will together help to reduce a general level of pollutants.
4.13 However, as identified in the consultation on the EEAP there is also a possibility of some increase in emissions and pollutants through a 'rebound effect'. This is where cost savings achieved by improved efficiency can lead to greater consumption of goods domestically, increase industrial output and encourage economic growth that will in turn drive up consumption. Thus, there is potential for emissions reductions to be limited by created demand. The degree of 'rebound' which is likely to occur and the uncertainty of this particular unintended effect at this stage means that its influence cannot be defined within this assessment, but it is nevertheless an important consideration.
4.14 The targets and programmes promoted in the finalised EAAP are expected to achieve a net reduction in emissions and associated pollutants. Although there is potential for some localised improvements in air quality including in AQMAs and other areas where pollution is concentrated, a more general improvement in background levels of pollutants is expected to be the most likely result. Consequently, insignificant but positive effects are predicted from the EEAP in relation to air quality objectives overall.
Recommendations and mitigation
4.15 On the basis of this SEA, it is recommended that the following changes to the consultation on the EEAP are considered further, as part of any amendments which are made on the basis of consultee views:
1. From an air quality perspective the, proposals to improve on the energy efficiency contribution of the domestic sector to meet the 42% target scenario performs strongly. It is therefore suggested that, from an environmental perspective, this scenario is be taken forward within the finalised EEAP.
2. Further consideration should be given to any proposals for the transport and industrial sectors which emerge during the consultation process. In light of the baseline information presented in the assessment, improvements to these sectors have the most significant potential to generate beneficial effects on air quality within the finalised EEAP.