air quality - ec.europa.eu
TRANSCRIPT
Air Quality
- revision of EU Rules -
23 September 2021
European Commission
Clean Air Unit
Welcome and introduction
“The Commission will draw on the lessons learnt from the evaluation of the current air quality legislation.
It will also propose to strengthen provisions on monitoring, modelling and air quality plans to help local authorities achieve cleaner air.
The Commission will notably propose to revise air quality standards to align them more closely with the World Health Organization recommendations.”
Communication on the European Green Deal (COM/2019/640 final)
Agenda for first stakeholder meeting
09:30 Welcome and Introduction
09:45 Air quality: revision of EU Rules
10:15 WHO Air Quality Guidelines
10:45 Coffee break
11:15 Policy area 1 – policy options
11:30 Structured discussion
12:30 Lunch break
14:00 Policy area 2 – policy options
14:15 Structured discussion
15:15 Coffee break
15:30 Policy area 3 – policy options
15:45 Structured discussion
16:45 Next steps
17:00 End of meeting
Who is here today?
In total, 400 participants have registered, including representatives from public authorities,
non-governmental organisations, business and industry, academia, as well as engaged citizens.
• 6 participants plan to join in person (Charlemagne, Brussels); all others would join online;
• experts from the World Health Organization;
• team of consultants that support this process (Trinomics, Ricardo, IIASA, Met Norway, VITO);
• colleagues from the European Commission that work on ‘air quality: revision of EU rules’.
… thank you to all of you for joining us here today!
Before we start: some housekeeping (1)
• Please ensure you have logged onto WebEx using the same name with which you registered,
and please include your organisation name
• Microphones are automatically muted: please only unmute yourself when invited to do so
• Please turn off your camera when you are not speaking
• Please stay connected to the workshop throughout – even during the breaks
• During the coffee breaks we will randomly allocate you to one of multiple break-out rooms,
in case you wish to further discuss or network with other attendees
• Please note: The meeting will be recorded (but the coffee break-out rooms will not)
Before we start: some housekeeping (2)
• The high number of participants requires the following procedure for the discussion sessions:
• Raise your hand if you have a comment relevant to the content of the workshop session
• We will then explicitly invite individuals to contribute and unmute your microphone
• Please: enable video (if possible), and identify yourself prior to making your point
• Where there is insufficient time in the discussion session, attendees can also place comments
in the ‘chat’ window which will be picked up after the event (+ recorded as part of the meeting)
• Please ensure that any comments made in the ‘chat’ window are clear and stand-alone
• If you face connection issues, please let ‘Pavla Cihlarova (Trinomics)’ know via the ‘chat’
window, or via email to [email protected]
Air quality: revision of EU Rules
EU clean air policy
National Emission reduction
Commitments Directive
National emission totals
(SO2, NOx, NMVOC, PM2.5, NH3)
Ambient Air Quality (AAQ) Directives
Maximum concentrations of
air polluting substances
(PM10, PM2.5, SO2, NO2, O3 + 8 more)
Source-specific
emission standards
- IED Directive
- MCP Directive
- Eco-design Directive
- Energy efficiency
- Euro and fuel standards
REDUCING EMISSIONS
OF POLLUTANTS
SETTING OBJECTIVES
FOR GOOD AIR QUALITY
20%
40%
60%
0%
EU clean air policy works
Source(s): EEA Air Quality in Europe (2020) & https://www.eea.europa.eu/data-and-maps/daviz/percentage-of-urban-population-in-13
EU urban population exposed to air pollution
above EU standards from 2000 to 2018
PM2.5
PM10
O3
NO2
20%
40%
60%
0%
EU clean air policy works … but …
PM2.5
PM10
O3
NO2
1-4%
10-15%
3-4%
21-34%
EU urban population exposed to air pollution above
EU standards in 2018 / 2019
Source(s): EEA Europe’s air quality status 2021 & https://www.eea.europa.eu/data-and-maps/daviz/percentage-of-urban-population-in-13
EU urban population exposed to air pollution
above EU standards from 2000 to 2018
PM2.5
PM10
O3
NO2
20%
40%
60%
0%
EU clean air policy works … but …
PM2.5
PM10
O3
NO2
61-74%
36-48%
3-4%
98-99%
EU urban population exposed to air pollution above
WHO (2005) guidelines in 2018 / 2019
EU urban population exposed to air pollution
above EU standards from 2000 to 2018
PM2.5
PM10
O3
NO2
Source(s): EEA Europe’s air quality status 2021 & https://www.eea.europa.eu/data-and-maps/daviz/percentage-of-urban-population-in-13
• Air quality remains a major health and environmental concern;
• Air quality standards have been instrumental, and partially effective, to reduce pollution;
• Current EU standards are less ambitious than scientific advice;
• Limit values have been more effective than other types of air quality standards;
• Legal enforcement action by European Commission, and civil society, works (with some caveats);
• Scope to further harmonise monitoring, modelling, and air quality plans;
• Not all reported data equally useful, e-reporting allows for further efficiency.
In 2019, an evidence-based, retrospective evaluation offered a number of lessons learnt:
Fitness Check of the AAQ Directives
A decade of air data
For period 2008 to 2018
from all Member States
Stakeholder feedback
Open public consultation
and expert questionnaires
Seven case studies
BG,DE,ES,IE,IT,SE,SK
each with specific focus
Literature & analysis
600 scientific sources
& a cost-benefit model
Key shortcomings
Exceedances above
WHO Air Quality
Guidelines and
negative health
impacts persist
Lack of flexibility to
adapt to evolving
science and new
recommendations
Health outcome shortcomings
EU Standards are not fully aligned
with scientific advice …
Air quality health outcome shortcomings
Pollutants 2005 WHO AQ Guidelines
EU AirStandards
EU Exceptions
PM10 (year) 20 µg/m3 40 µg/m3 -
PM10 (day) 50 µg/m3 50 µg/m3 (35d a year)
PM2.5 (year) 10 µg/m3 25 µg/m3 -
PM2.5 (day) 25 µg/m3 - -
NO2 (year) 40 µg/m3 40 µg/m3 -
NO2 (hour) 200 µg/m3 200 µg/m3 (18d a year)
SO2 (daily) 20 µg/m3 125 µg/m3 3d a year
O3 (8-hour) 100 µg/m3 120 µg/m3 (75d in 3yr)
NOTE: Revised WHO Air Quality Guidelines on 22 Sep 2021
Premature deaths due to air pollution
halved during last two decades, but …
Source(s): Fitness Check of the Ambient Air Quality Directive SWD(2019) 427
Insufficient penalties
and compensation
linked to exceedances
Air quality plans and
measures have often
proven ineffective
Implementation shortcomings
Exceedances are not always addressed
sufficiently and/or on time …
Air quality implementation shortcomings
Frequency, extent and magnitude of
exceedances has declined, but …
As of September 2021, still 31 cases addressing 18
Member States (+ 1 vs UK) related to bad application:
particulate matter (PM10 and/or PM2.5)
nitrogen dioxide (NO2)
sulphur dioxide (SO2)
monitoring problems
Of these, 15 cases (i.e. 9 Member States + 1 vs UK)
have been referred to the Court of Justice of the EU.
With 8 rulings so far: BG, PL, RO, IT, HU (for PM10) and UK, DE, FR (for NO2) .
These cases address both exceedances of air quality
standards and not keeping these as short as possible.
15
13
1
1
2
Local air quality is
impacted by
emissions outside
local control
Some measures may
be ineffective, or
seem disproportionate
Governance shortcomings
Air quality plans do not always address all
sources effectively ...
Air quality governance shortcomings
To limit exceedances, competent
authorities develop plans, but …
This combination requires air quality plans to address
all sectors & all scales – in a coherent manner (!)
Example: Air pollution (here: PM2.5) in Frankfurt (DE) is a
combination of emissions in the city, its surroundings,
the rest of the country and from other parts of Europe:
Source(s): Urban PM2.5 Atlas: Air Quality in European Cities (JRC, 2017)
Monitoring rules
offering flexibility are
sometimes ‘stretched’
Modelling ability has
improved, allows for
much more detail
Assessment shortcomings
Flexibilities may sometimes impact
the comparability of data …
Air quality assessment shortcomings
More than 4.000 air quality monitoring
stations deliver robust data, but …Establish air
quality zones
Macroscale siting
Microscale siting
Example: Frankfurt, DE
(Friedberger Landstr.)
Source(s): https://ec.europa.eu/environment/air/quality/zones.htm
Concerns about
health impacts have
increased
Public information is
not always clear, and
not harmonised
Information shortcomings
Public feels under-informed about
poor air quality and its impacts …
Air quality information shortcomings
Reliable air quality information is widely
available, often even in real-time, but …
Source(s): Special Eurobarometer 497 (September 2019) & Air Quality Index
Health impacts, more than 400.000 premature deaths each
year across the EU, plus morbidity health impacts
Impacts on the EU’s international competitiveness, with
innovation potential, especially for clean air technologies
Measures to address air pollution may have effects on
employment
Environm
ent &
Health
Eco
no
mic
So
cia
l
Ecosystem impacts, eutrophication limits are being
exceeded in 62% of ecosystem areas across the EU territory
Links with climate change, as higher temperature are
associated with elevated ozone levels
Measures needed to meet EU air quality standards, with
costs for industry, transport, energy, and agriculture sector
Cost to society, EUR 20 bn direct cost to health-care, lost
work-days, crop losses, plus EUR 330-940 bn indirect costs
Inequalities and social sustainability, as groups of lower
economic status tend to be more negatively affected
Sensitive population groups (children, pregnant women,
elderly citizens) are more susceptible to air pollution
Synergies with other EU policies, and in particular with the
goals of the EU Zero Pollution Action Plan
Administrative burden of air quality management, in
particular as relates to air quality assessment regimes
Elevated concentration levels of air pollutants, both
general exposure of population and at pollution hotspots
The consequences of these shortcomings
Impact assessment
Problems DriversPolicy Context
Current
AAQDs
Fitness
Check
European
Green Deal
Zero
Pollution /
Climate
Neutrality
Recovery
plan
Exceedances above health
guidelines and negative
health impacts persist
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Interventions
Environment &
HealthEconomic Social
Consequences
Lack of flexibility to adapt to
evolving science’ and new
recommendations
Concerns about health
impacts have increased, not
addressed
Air quality plans and
measures have often proven
ineffective
Insufficient penalties and
compensation linked to
exceedances
Public information is not
always available, and not
harmonised
Local air quality is impacted
by emission outside control
Modelling ability has
improved, allows for much
more details
Monitoring rules offering
flexibility are ‘stretched’ in
instances
Health outcome
shortcomings
EU Standards are not fully
aligned with scientific
advice …
AQ Information
shortcomings
Public feels under-informed
about poor air quality and
its impacts …
Some measures may seem
disproportionate, ineffective
AQ Implementation
shortcomings
Exceedances are not
always addressed
sufficiently and/or timely …
AQ Governance
shortcomings
Air quality plans do not
always address all sources
effectively ...
AQ Monitoring
shortcomings
Flexibilities may sometimes
impact the comparability of
data …
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Synergies with other EU policies, and in particular with the goals of the
(upcoming) EU Zero Pollution Action Plan
Administrative burden of air quality management, in particular as relates to air
quality assessment regimes
Elevated concentration levels of air pollutants
Inte
rvention L
ogic
of th
e IA
Policy Area 1‘EU standards
Policy Area 2‘legislative frame’
Policy Area 3‘monitoring,
modelling
and plans’
Based on the current Ambient Air Quality Directives focus on three policy areas
• Policy area 1: closer alignment of the EU air quality standards with scientific knowledge
including the latest recommendations of the World Health Organization (WHO).
• Policy area 2: Improving the air quality legislative framework, including provisions on
penalties and public information
• Policy area 3: strengthening of air quality monitoring, modelling and plans.
to be further developed into more detailed policy options / scenarios for each policy area
assess different levels of ambition for each policy option / scenario
Air policy revision: three policy areas
Annual mean level PM2.5
(µg/m3)
Mortality
Interim target 1 + 24 % above guideline level
Interim target 2 + 16 % above guideline level
Interim target 3 + 8 % above guideline level
Interim target 4 + 4 % above guideline level
AQ guideline level mortality at guideline level
Different levels of ambition (example: for PM2.5)
WHO – Air Quality guidelines and interim targets for PM (annual mean)
EU standards
today / baseline
Low ambition
Mid ambition
High ambition
-
AMBITION LEVEL
35
25
15
10
5
PM2.5 concentrations in 2019 by country
Source(s): EEA Europe’s air quality status 2021
IT-2
IT-3
IT-4
Guideline
WHO (2021)
Assessment of policy options per policy area
Low ambition
policy options
limited changes to legislative
framework
Mid ambition
policy options
some changes to legislative
framework
High ambition
policy options
comprehensive changes to
legislative framework
Policy Area 2‘legislative frame’
Baseline
no changes to
legislative framework
Low ambition
policy options
limited changes to monitoring,
modelling and plans
requirements
Mid ambition
policy options
some changes to monitoring,
modelling and plans
requirements
High ambition
policy options
comprehensive changes to
monitoring, modelling and
plans requirements
Policy Area 3‘mon-mod-plans’
Baseline
no changes to
monitoring, modelling and
plans requirements
based on assessment of consequences, combine different policy options to policy packages
Scenario 2: low ambition WHO
interim target by 2030Policy Area 1‘EU Standards’ Scenario 5: mid ambition WHO
interim target by 2050
Scenario 6: (high ambition)
WHO guideline levels by 2030
Scenario 3: low ambition WHO
interim target by 2050
Scenario 4: mid ambition WHO
interim target by 2030
Scenario 7: (high ambition)
WHO guideline levels by 2050
Baseline (Scenario 1)
no changes to
EU standards
PM2.5 at
20/25 µg/m3
PM2.5 at
15 µg/m3 PM2.5 at
10 µg/m3
PM2.5 at
5 µg/m3
Have your say
On 23 September 2021 (today), we have launched a twelve week online public consultation –
we invite you to reply to a four-part questionnaire until 16 December 2021:
• Part 1: About you – questions about yourself and why you are answering this questionnaire.
• Part 2: General questions section – 19 questions on your views on air quality issues.
• Part 3: Specialised questions section – 8 questions on your views on air quality measures.
• Part 4: Concluding questions & remarks – share your thoughts on key topics not covered.
your feedback today, and your feedback to the online public
consultation, will inform the impact assessment.
Clean Air Milestones 2020 to 2023 (indicative)
I / 2020 II / 2020 I / 2021 II / 2021 I / 2022 II / 2022 I / 2023
Fitness Check
(published in Nov 2019)
Council Conclusions
NEC Implementation Report
(Commission Communication)
Expert consultation
(on monitoring, modelling, plans)
WHO Guidelines publication
(postponed to II/2021)
Zero Pollution Action Plan
Finalisation of
Impact Assessment (air quality)
Council discussions of
legislative proposal
(air quality - revision of EU rules)
Submission of Second
National Air Pollution Control
Programmes begins
EEA Air Quality Report 2020
Inception Impact Assessment
(revising the Air Quality Directive)
Second Clean Air Outlook
(Commission Report)
EEA Air Quality Briefings 2021
WHO Guidelines publication
(22 September 2021)
Public consultation: air quality
(air quality - revision of EU rules)
3rd EU Clean Air Forum
(18 & 19 November in Madrid)
EEA Air Quality Briefings 2022
Adoption: legislative proposal
(air quality - revision of EU rules)
Review Gothenburg Protocol
(Air Convention)
Third Clean Air Outlook
(Commission Report)
II / 2023
EEA Air Quality Briefings 2023
4th EU Clean Air Forum
(location to be determined)
WHO Air Quality Guidelines (revised)WHO Regional Office Europe
Coffee breakAir quality – revision of EU rules
Please do
not
disconnect
Policy area 1 Closer alignment of the EU air quality standards with scientific knowledge
including the latest recommendations of the World Health Organization
Problems Drivers
Exceedances above health
guidelines and negative
health impacts persist
Interventions
Lack of flexibility to adapt to
evolving science’ and new
recommendations
Concerns about health
impacts have increased, not
addressed
Air quality plans and
measures have often proven
ineffective
Insufficient penalties and
compensation linked to
exceedances
Public information is not
always available, and not
harmonised
Local air quality is impacted
by emission outside control
Modelling ability has
improved, allows for much
more details
Monitoring rules offering
flexibility are ‘stretched’ in
instances
Health outcome
shortcomings
EU Standards are not fully
aligned with scientific
advice …
AQ Information
shortcomings
Public feels under-informed
about poor air quality and
its impacts …
Some measures may seem
disproportionate, ineffective
AQ Implementation
shortcomings
Exceedances are not
always addressed
sufficiently and/or timely …
AQ Governance
shortcomings
Air quality plans do not
always address all sources
effectively ...
AQ Monitoring
shortcomings
Flexibilities may sometimes
impact the comparability of
data …
Policy Area 1‘EU Standards
Policy Area 2‘legislative frame’
Policy Area 3‘monitoring,
modelling
and plans’
Key Objectives
Policy Area 1 - Closer alignment of the EU air
quality standards with scientific knowledge
including the latest recommendations of the
World Health Organization:
• to improve ambient air quality to the greatest
extent possible taking into account the latest
scientific advice, feasibility, costs, benefits.
Policy area 1 Presentation of policy options and preliminary analysis
Policy area 1:
Closer alignment of air quality standards with scientific knowledge, including WHO recommendations
International Institute for Applied Systems Analysis (IIASA)Zbigniew Klimont, Gregor Kiesewetter, Chris Heyes
Norwegian Meteorological Institute (MET Norway)Bruce Rolstad Denby, Agnes Nyiri, Qing Mu and Hilde Fagerli
Study to support the impact assessment for a revision of the EU Ambient Air Quality Directives
Workshop #1, 23/09/2021
Limit values
on annual
mean ambient
PM2.5
concentrations
Activity projectionsCurrent plans on emission
control legislation
Emissions of SO2, NOx, PM2.5, NH3, VOC, BC, OC;
Ambient PM2.5 background
concentrations
Fine scale ambient concentrations of
PM2.5, NO2, O3, SO2, CO, BaP, benzene*
Health
impacts from
PM2.5, NO2,
O3
Compliance at hot spots /
contributions to non-compliance
GAINS
EMEP model + uEMEP
*Do not include HM
Ecosystem
impacts
Emission control costs
Co-be-
nefits
Costs to society
(monetised impacts
Impacts on
international
competitiveness
and
employment
Societal impacts
and
Effects of air pollution on
sensitive population
groups
Administrative burden
SCM
JRC-GEM-E3
5
6
7
8
9
10
1
2
3
4
11
12
12
5
2
8
9
1 3 11
6
4
7
10
1
Impact Assessment Modelling
Method/Approach
Develop several cost-effective policy scenarios with different ambition levels (considering both concentration level and time of attainment)
36
• Key tools/models: GAINS, EMEP, uEMEP
• GAINS check feasibility at background locations and provide
quantification of emissions and costs at MS level
• GAINS emissions used in EMEP/uEMEP models to estimate
concentration of all pollutants
• When attainment not feasible, additional analysis with
GAINS and uEMEP to identify local source contributions
Preparatory analysis with GAINS
37
Emission inputs for preparatory analysisused in GAINS and EMEP/uEMEP models for ambient concentrations
• Nationally reported emissions for 2018
• GAINS baseline emissions (2020-2050) for PM2.5 as well as PM and ozone precursors considering
• 2nd Clean Air Outlook (including NAPCP),
• Green Deal (Fit for 55),
• For non-EU – based on the recent World Energy Outlook and FAO
• GAINS maximum mitigation cases (MFR) for 2030 and 2050• Only EU-27 and shipping,
• For the rest of Europe, emissions follow the baseline assumptions
38
39
Emission trends in the EU-27
0
200
400
600
800
1000
1200
1400
1600
1800
SO2 [kt SO2]
0
1000
2000
3000
4000
5000
6000
NOx [kt NO2]
0
200
400
600
800
1000
1200
1400
PM2.5 [kt]
0
500
1000
1500
2000
2500
3000
3500
4000
NH3 [kt NH3]
PM2.5 concentrations from GAINS model (incl. natural sources)
Baseline - 2030
Population exposure> 5 µg/m3 = 367 million
> 10 µg/m3 = 39 million
> 25 µg/m3 = 0 million
2020
Map legend
Population exposure> 5 µg/m3 = 399 million
> 10 µg/m3 = 136 million
> 25 µg/m3 = 5 million
PM2.5 concentrations from GAINS model (incl. natural sources) MFR for EU-27 only
Baseline - 2030
Population exposure> 5 µg/m3 = 367 million
> 10 µg/m3 = 39 million
> 25 µg/m3 = 0 million
2020
Map legend
Population exposure> 5 µg/m3 = 399 million
> 10 µg/m3 = 136 million
> 25 µg/m3 = 5 million
MFR (EU27) - 2030
Population exposure> 5 µg/m3 = 289 million
> 10 µg/m3 = 13 million
> 25 µg/m3 = 0 million
42
PM2.5 Population exposure - Summary of preliminary scenario calculations using the existing GAINS methodology
Preparatory calculations with EMEP/uEMEP
43
• EMEP calculates on a 0.1o grid for a large range of pollutants and 13 GNFR sectors, plus
natural emissions
• Total emissions per sector and country are provided by GAINS for the scenarios and these are
spatially distributed using the country submitted EMEP 0.1o gridded emissions
• uEMEP downscales a selected number of sectors using high resolution emission proxies
• Maps are produced at 250 m resolution
• Monitoring sites are calculated at 25 m resolution
44
EMEP and uEMEP calculations
45
High resolution calculations for Europe using EMEP/uEMEP (2018)
NO2 EMEP (0.1o) NO2 uEMEP (250 m)µg/m3
Brussels Wrocław Brussels Wrocław
46
High resolution calculations of NO2 around Brussels using EMEP/uEMEP
NO2 EMEP (0.1o) NO2 uEMEP (250 m)
µg/m3
47
PM2.5 EMEP (0.1o) PM2.5 uEMEP (250 m)
High resolution calculations of PM2.5 around Wrocław using EMEP/uEMEP
µg/m3
Preparatory calculations at monitoring sites
(all Airbase station classifications)
48
49
PM2.5 exceedance calculations at monitoring sites (25 m)using EMEP/uEMEP: validation using country submitted emissions
uEMEP bias = -9%
50
PM2.5 exceedance calculations at monitoring sites (25 m) using EMEP/uEMEP: scenarios using GAINS emissions
51
NO2 exceedance calculations at monitoring sites (25 m) using EMEP/uEMEP: validation using country submitted emissions
uEMEP bias = -18%
52
NO2 exceedance calculations at monitoring sites (25 m) using EMEP/uEMEP: scenarios using GAINS emissions
Preparatory calculations of population exposure
53
54
Maps showing the change in PM2.5 from baseline 2020 to 2030
2020 base: PM2.5 uEMEP (250 m)µg/m3
55
2030 base: PM2.5 uEMEP (250 m)µg/m3
Maps showing the change in PM2.5 from baseline 2020 to 2030
56
PM2.5 exceedance calculations for population (250 m)using EMEP/uEMEP: scenarios using GAINS emissions
57
PM2.5 exceedance calculations for population (250 m)using EMEP/uEMEP and GAINS: scenarios
EMEP/uEMEP
GAINS
58
Maps showing the change in NO2 from baseline 2020 to 2030
2020 base: NO2 uEMEP (250 m)µg/m3
59
2030 base: NO2 uEMEP (250 m)µg/m3
Maps showing the change in NO2 from baseline 2020 to 2030
60
NO2 exceedance calculations for population (250 m)using EMEP/uEMEP: scenarios using GAINS emissions
• Significant reductions in exposure in Baseline and MFR scenarios, much larger than model
uncertainties
• Wide-spread compliance with current AAQ limit values expected for NO2 and PM2.5 in the baseline
• Model slightly underestimates both PM2.5 and NO2 – will be taken into account
• Scale matters for exceedance calculations, particularly for NO2
• Large reductions in traffic emissions for NOX will lead to other sources dominating NO2 exposure
• Residential combustion will remain a key source of PM2.5 exposure
61
Summary of preliminary analysis
Next steps
62
• Further development and assessment of the emissions and modelling system is ongoing
• Improve consistency between uEMEP and GAINS results; important for cost-effectiveness analysis
• Similar analysis will be performed for SO2, O3, CO, BaP and Benzene
• For heavy metals, a simplified assessment will be performed
• Final set of scenarios will be assessed early 2022, including
• Validation of 2015-2020 emissions from 2021 round of national submissions
• Reviewing NAPCP submissions from 2020/21 and comments from the stakeholder consultations
• New baseline for non-EU countries
• Euro VII [?]
• Development of the cost-effective scenarios to achieve AAQ limit values of varying stringency
• Analysis of local sources leading to non-compliance
63
Way forward
Lunch breakAir quality – revision of EU rules
Please do
not
disconnect
Policy area 2 Improving the air quality legislative framework, including provisions on
penalties and public information
Problems Drivers
Exceedances above health
guidelines and negative
health impacts persist
Interventions
Lack of flexibility to adapt to
evolving science’ and new
recommendations
Concerns about health
impacts have increased, not
addressed
Air quality plans and
measures have often proven
ineffective
Insufficient penalties and
compensation linked to
exceedances
Public information is not
always available, and not
harmonised
Local air quality is impacted
by emission outside control
Modelling ability has
improved, allows for much
more details
Monitoring rules offering
flexibility are ‘stretched’ in
instances
Health outcome
shortcomings
EU Standards are not fully
aligned with scientific
advice …
AQ Information
shortcomings
Public feels under-informed
about poor air quality and
its impacts …
Some measures may seem
disproportionate, ineffective
AQ Implementation
shortcomings
Exceedances are not
always addressed
sufficiently and/or timely …
AQ Governance
shortcomings
Air quality plans do not
always address all sources
effectively ...
AQ Monitoring
shortcomings
Flexibilities may sometimes
impact the comparability of
data …
Policy Area 1‘EU Standards
Policy Area 2‘legislative frame’
Policy Area 3‘monitoring,
modelling
and plans’
Key Objectives
Policy Area 2 - Improving the air quality
legislative framework, including provisions
on penalties and public information
• To improve the quality and timely implement-
tation of air quality plans to achieve air quality
objectives, and strengthen public participation
in the development of air quality plans.
• To include clearer provisions on access to
justice, penalties and compensation linked to
clean air in EU legislation.
Policy area 2 Presentation of policy options
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Policy area 2 – Elements to consider to address shortcomings
Adding an explicit mechanism
for adjusting EU air quality
standards to the evolving
technical and scientific progress,
including for air pollutants
that are at present not covered
(cf. Directive 2008/50, Article 32;
Directive 2004/107, Article 8)
Further defining the different types
of air quality standards
(especially average exposure
indicators) and the actions
their exceedances would trigger
(cf. Directive 2008/50,
Articles 2, 12 to 16 and
Annexes VII, XI to XIV;
Directive 2004/107,
Articles 2, 3 and Annex I)
Expanding the requirements for
action required in case of
exceedances, including the role
of air quality plans and
short-term action plans
(cf. Directive 2008/50
Articles 17, 18, 19, 23 and 24;
Directive 2004/107, Article 3)
Specifying provisions to guide
the development of
air quality plans, including
on who to involve and
on vertical and horizontal
coordination between levels of
governance in their implementation
(cf. Directive 2008/50,
Article 23 and Annex XV)
Expanding the provision on
sanctions and penalties,
and adding additional provisions
on access to justice and
compensation related to damage
suffered from air pollution
(cf. Directive 2008/50 Article 30;
Directive 2004/107, Article 9)
Expanding the requirements on
the provision of information,
especially related to information
on health impacts, harmonisation
of air quality indices and
reporting deadlines
(cf. Directive 2008/50,
Articles 26, 27 and Annex XVI;
and Directive 2004/107, Articles 7)
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Policy area 2 – long-list of potential interventions – some examples
Elements to consider Examples of interventions
Adding an explicit mechanism
for adjusting EU air quality
standards to the evolving
technical and scientific
progress, including for air
pollutants that are at present
not covered
1. Introduce a mechanism for adjusting air quality standards upon publication of new WHO
guidelines or based on emergency response type trigger i.e. latest scientific advice.
2. Introduce a provision to allow EU Member States to adopt more stringent standards in light of
the new technical and scientific progress coupled with a notification mechanism to the European
Commission.
3. Require the priority pollutant list to be updated periodically (e.g. every 5 years) to add emerging
pollutants to it (I.e. Ultra-Fine Particulates, pesticides)
Further defining the different
types of air quality standards
(especially average exposure
indicators) and the actions their
exceedances would trigger
4. Introduce ‘limit values’ for all pollutants, replacing ‘target values’.
5. Add short-term standards (daily- or hourly- mean) for all relevant pollutants for which currently
only long-term standards (annual-mean) exist e.g. PM2.5.
6. Require Member States to take short-term action plans if daily or hourly limit values are
exceeded.
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Elements to consider Examples of interventions
Expanding the requirements for action
required in case of exceedances,
including the role of air quality plans
and short-term action plans
7. Maintain and further specify the obligation to set out “appropriate measures, so that the
exceedance period can be kept as short as possible”
8. Introduce the obligation to adopt effective short-term action plans for all pollutants to
prevent / tackle pollution events.
9. Clearer coordination with the development and implementation of short-term action plans
under Article 24 and air quality plans under Article 23, obliging Member States to report on
the implementation of their air quality plans.
Specifying provisions to guide the
development of air quality plans,
including on who to involve and on
vertical and horizontal coordination
between levels of governance in their
implementation
10. Issue guidance on the information to be included in air quality plans
11. Define the requirements in terms of air quality plans vs air quality zones to ensure
harmonisation (avoiding zones with multiple plans and plans for multiple zones)
12. Introduce the requirement for Member States to develop specific legislative instruments
to ensure clear allocation of responsibilities and coordination between national / regional /
local levels of governance
Policy area 2 – long-list of potential interventions – some examples (II)
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Elements to consider Examples of interventions
Expanding the provision on sanctions
and penalties, and adding additional
provisions on access to justice and
compensations, that exceedances of air
quality standards could lead to
13. Introduction of minimum penalty levels (to be adjusted per Member State living
standards)
14. Set a fund to be fed by the payment of penalties and which can be used to
compensate material damage or finance air quality measures.
15. introduction of an ‘access to justice’ clause in the Ambient Air Quality Directives. .
Expanding the requirements on the
provision of information, especially
related to information on health impacts,
and on harmonisation of air quality
indices and reporting deadlines
16. Define specifically what kind of air quality and health information needs to be made
available to the public; also how that should be made available (standardisation)
17. Establish alert thresholds for all air pollutants at EU level
18. Require Member States to use harmonised air quality index bands.
Policy area 2 – long-list of potential interventions – some examples (III)
72Ricardo Confidential© Ricardo plc
• Are the six broad elements or areas to be considered sufficient or are there elements missing?
• Feedback on the examples of interventions:
– Do the interventions presented sound appropriate?
– What interventions are we missing?
– Feedback on the feasibility of the different measures?
– Are there measures that stand out in terms of importance, potential effectiveness?
Discussion Questions
73Ricardo Confidential© Ricardo plc
Summary
Elements to consider Possible interventions
Adding an explicit mechanism for adjusting EU
air quality standards to the evolving technical
and scientific progress
• Mechanism to adjust air quality standards to new WHO guidelines / latest scientific advice;
• allow EU MS to adopt more stringent standards reflecting technical and scientific progress + notify EC;
• require the priority air pollutant list to be updated periodically and add emerging pollutants to it.
Further defining air quality standards (average
exposure indicators) and exceedances actions
• Introduce ‘limit values’ for all air pollutants, replacing ‘target values’;
• add short-term standards for all air pollutants with currently only long-term standards, e.g. PM2.5;
• require Member States to take short-term action plans in case of exceedances of short-term
standards.
Expanding actions required to address
exceedances (air quality plans and short-term
action plans)
• Further specify the obligation for measures to keep exceedance period as short as possible;
• introduce obligation for effective short-term action plans to prevent / tackle air pollution events;
• clearer coordination between short-term action plans and air quality plans.
Specifying provisions to guide the development
of air quality plans, including on governance
• Guidance on the information to be included in air quality plans;
• define requirements in terms of air quality plans vs air quality zones to ensure harmonisation;
• introduce legislative instruments for clear responsibilities between different levels of MS governance.
Expanding the provision on sanctions and
penalties
• Introduction of minimum penalty levels;
• create a fund from penalties and use proceeds to compensate for damages / fund AQ measures;
• ‘access to justice’ clause in the AAQD.
Expanding the requirements on the provision of
information
• Standardisation of necessary health related air quality information provisions, including air quality
indices, timelines, or air pollutant alert thresholds.
Coffee breakAir quality – revision of EU rules
Please do
not
disconnect
Policy area 3 Strengthening of air quality monitoring and modelling, and air quality plans
Problems Drivers
Exceedances above health
guidelines and negative
health impacts persist
Interventions
Lack of flexibility to adapt to
evolving science’ and new
recommendations
Concerns about health
impacts have increased, not
addressed
Air quality plans and
measures have often proven
ineffective
Insufficient penalties and
compensation linked to
exceedances
Public information is not
always available, and not
harmonised
Local air quality is impacted
by emission outside control
Modelling ability has
improved, allows for much
more details
Monitoring rules offering
flexibility are ‘stretched’ in
instances
Health outcome
shortcomings
EU Standards are not fully
aligned with scientific
advice …
AQ Information
shortcomings
Public feels under-informed
about poor air quality and
its impacts …
Some measures may seem
disproportionate, ineffective
AQ Implementation
shortcomings
Exceedances are not
always addressed
sufficiently and/or timely …
AQ Governance
shortcomings
Air quality plans do not
always address all sources
effectively ...
AQ Monitoring
shortcomings
Flexibilities may sometimes
impact the comparability of
data …
Policy Area 1‘EU Standards
Policy Area 2‘legislative frame’
Policy Area 3‘monitoring,
modelling
and plans’
Key Objectives
Policy Area 3 - Strengthening of air quality
monitoring and modelling, and air quality
plans
• To further improve the reliability and
comprehensiveness of air quality
assessments undertaken by national,
regional and local authorities.
• To ensure that the public in all Member States
receive the same high quality and timely
information about their air quality.
Policy area 3 Presentation of policy options
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Policy area 3 – Elements to consider to address shortcomings (1)
Augmenting the rules on the
Establishment of assessment
Regimes, and on the scope to
combine monitoring, modelling
other assessment methods
(cf. Directive 2008/50, Chapter II;
Directive 2004/107, Article 4)
Changing requirements for the
number and type of sampling
points required for measuring
air pollution concentrations
(cf. Directive 2008/50,
Annexes II, V and IX;
Directive 2004/107,
Annex I)
Expanding the requirements for the
continuity of measurements in the
same location, in particular in the
case of elevated pollution levels –
and adding requirements for the
discontinuation or relocation of
sampling points
(cf. Directive 2008/50
Annex V)
Changing and clarifying
requirements for micro- and
macro-scale siting of sampling
points for measuring air
pollutant concentrations
(cf. Directive 2008/50,
Annex III, IV, VIII,
Directive 2004/107 Annex III)
79Ricardo Confidential© Ricardo plc
Policy area 3 – Elements to consider to address shortcomings (2)
Altering approaches to assess
the contributions from natural
sources, the exceedances
attributable to winter sanding
or –salting of roads, or the
transboundary contributions
to exceedances
(cf. Directive 2008/50
Articles 20 and 21)
Adding requirements on the
minimum elements required for
air quality plans, and the methods
used to estimate the impact
of measures, for example as regard
the use of modelling and/or
costs benefits assessment
(cf. Directive 2008/50,
Annex XV)
Expanding requirements for which
air pollutants to monitor and how
to measure these
(cf. Directive 2008/50 Annex VI, X;
Directive 2004/107, Annex V) and
adding requirements to
monitor additional air pollutants
such as ultrafine particles
Consolidating requirements for
data quality objectives (and for
modelling quality objectives) for
assessments and reference
measurement methods
(cf. Directive 2008/50,
Annex I, Annex VI; and Directive
2004/107 Annex IV, Annex V)
80Ricardo Confidential© Ricardo plc
Policy area 3 – Strengthening of monitoring, modelling & plans
Elements to consider Examples of interventions
Augmenting the rules on the
establishment of assessment
regimes, and on the scope to
combine monitoring, modelling
and other assessment methods
1. Address the ambiguity regarding the use of indicative measurements for compliance
assessment
2. Improve the explanation for the use of models in compliance assessment
3. Clarify the role of industrial point source sampling monitoring within compliance assessment
Changing requirements for the
number and type of sampling
points required for measuring
air pollution concentrations
4. Redefine the requirements on the number of sampling points per air quality zone
5. Clarify the proportion of type of sampling points
6. Clarify the use of indicative monitoring
81Ricardo Confidential© Ricardo plc
Policy area 3 – Strengthening of monitoring, modelling & plans
Elements to consider Examples of interventions
Expanding requirements for the
continuity of measurements in
the same location, in particular
in case of elevated air pollution
levels – and adding
requirements for the
discontinuation or relocation of
sampling points
7. Setting requirements on continuity of monitoring, once a site is established, for a fixed amount
of years following compliance is achieved (to account for meteorological influences).
Includes a protocol to follow if it is essential that a monitor has to move.
Changing and clarifying
requirements for micro- and
macro-scale siting of sampling
points for measuring air
pollutant concentrations
8. Consideration of spatial representativeness analysis to define sampling locations using a tiered
approach1 Relevant metadata are required
9. Provision of further definition of micro siting criteria required for reporting
1 https://ec.europa.eu/environment/air/quality/documents/Report%20on%20Application%20of%20Siting%20Criteria%20and%20Sampling%20Point%20Classification.pdf
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Policy area 3 – Strengthening of monitoring, modelling & plans
Elements to consider Examples of interventions
Consolidating requirements for
data quality objectives (and for
modelling quality objectives)
for assessments and reference
measurement methods
10. FAIRMODE Modelling Quality Objective to be incorporated into compliance assessment
procedures
11. Further define how the Modelling Quality Objective should be applied in practice (number
and types of stations, time periods covered, size of model domain)
12. Changes to the data quality objectives and introduction of a protocol when data capture
<90%
Expanding requirements for
which air pollutants to monitor
and how to measure these and
adding requirements to
monitor additional air
pollutants such ultrafine
particles
13. Require an increase in monitoring of ozone and volatile organic compounds. Remove the
other pollutant dependences on the rules on number sampling sites for all pollutants.
Consideration of changes to heavy metal and PAH monitoring requirements.
14. Introduction of mandatory supersites in urban areas to complement EMEP rural sites with
emphasis on monitoring for emerging issues
15. Introduce requirements for minimum monitoring standards for monitoring ultrafine particles,
black carbon, ammonia and methane and align micro and macro siting criteria
83Ricardo Confidential© Ricardo plc
Policy area 3 – Strengthening of monitoring, modelling & plans
Elements to consider Examples of interventions
Altering approaches to assess
the contributions from natural
sources, the exceedances
attributable to winter-sanding
or -salting of roads, or the
transboundary contributions to
exceedances
15. Provision of clearer guidance on estimating the contribution from winter sanding/salting or
roads with worked examples
16. Provision of clearer guidance on estimating the contribution from natural sources, sea-salt,
volcanic eruptions and wild-land fires with worked examples
17. Provision of guidance on modelling the transboundary contribution to exceedances.
Mandate estimation of transboundary contribution.
Adding requirements on the
minimum elements required
for air quality plans, and the
methods used to estimate the
impact of measures, for
example as regard the use of
modelling and/or cost benefit
assessment
18. Adding guidance on methods to estimate source apportionment, or references to use
existing FAIRMODE guidance
19. Provision of guidance on how to develop an air quality plan e.g., development of long list of
interventions and screening to reduce to short list. Clear methodology for use of modelling to
assess measure impact
20. Provision of guidance on the cost benefit assessment of measures
84Ricardo Confidential© Ricardo plc
• Are the eight broad elements or areas to be considered sufficient or are there elements missing?
• Feedback on the examples of interventions:
– Do the interventions presented sound appropriate?
– What interventions are we missing?
– Feedback on the feasibility of the different measures?
– Are there measures that stand out in terms of importance, potential effectiveness?
Discussion
85Ricardo Confidential© Ricardo plc
Augment assessment
regime rules
# / type of sampling
points
Continuity /
discontinuation /
relocation of sampling
points
Micro and macro-
scale siting of
sampling points
Which pollutants to
measure and how
Assessment of natural
/ winter sanding /
transboundary
contributions
Data qualityRequirements around
developed AQ plans
In compliance assessment:
1. Address ambiguity around
indicative measurements
2. Clarify use of models
3. Clarify role of industrial
point source monitoring
4. Redefine requirements on #
sampling points
5. Clarify % split sampling point
type
6. Clarify use of indicative
monitoring
7. Requirements on monitoring
for x years after compliance
8. Spatial representativeness
to define locations
9. Further define micro siting
criteria
10. Incorporate FAIRMODE
Modelling Quality Objective
11. Define how Quality
Objective is applied in practice
12. Protocol when data
capture <90%
13. Increased monitoring of
ozone and VOCs. Changes to
HM and PAH requirements.
14. Mandatory urban supersites
15. Monitoring standards for
emerging pollutants
15. Clearer guidance on
estimating contribution from
winter sanding/salting and/or
natural sources
16. Mandatory estimation of
transboundary contribution
Guidance on:
18. Source apportionment
19. Developing AQ plans
20. Cost benefit analysis
Next steps
Immediate next steps
• We will share by email a ‘curated’ chat protocol with all registered participants that gave us
permission to mail (pls indicate to us today if you do NOT wish to have your contribution included)
• We will upload the slides presented at this meeting on our website
• Please have your say via the online public consultation (by 16 Dec 2021)
• Please do not hesitate to share evidence also via [email protected]
• Join us at the EU Clean Air Forum (on 18-19 Nov 2021, Madrid – please register)
• Meanwhile the impact assessment work will continue …
• … and we hope to see you at our second stakeholder meeting during first half of 2022
Clean Air Milestones 2020 to 2023 (indicative)
I / 2020 II / 2020 I / 2021 II / 2021 I / 2022 II / 2022 I / 2023
Fitness Check
(published in Nov 2019)
Council Conclusions
NEC Implementation Report
(Commission Communication)
Expert consultation
(on monitoring, modelling, plans)
WHO Guidelines publication
(postponed to II/2021)
Zero Pollution Action Plan
Finalisation of
Impact Assessment (air quality)
Council discussions of
legislative proposal
(air quality - revision of EU rules)
Submission of Second
National Air Pollution Control
Programmes begins
EEA Air Quality Report 2020
Inception Impact Assessment
(revising the Air Quality Directive)
Second Clean Air Outlook
(Commission Report)
EEA Air Quality Briefings 2021
WHO Guidelines publication
(22 September 2021)
Public consultation: air quality
(air quality - revision of EU rules)
3rd EU Clean Air Forum
(18 & 19 November in Madrid)
EEA Air Quality Briefings 2022
Adoption: legislative proposal
(air quality - revision of EU rules)
Review Gothenburg Protocol
(Air Convention)
Third Clean Air Outlook
(Commission Report)
II / 2023
EEA Air Quality Briefings 2023
4th EU Clean Air Forum
(location to be determined)
Thank you
Contact us:
Have your say:
https://ec.europa.eu/info/law/better-regulation/have-your-say/initiatives/12677-Revision-of-EU-Ambient-Air-Quality-legislation