Air Quality Strategy Statement
Introduction
Air Quality affects everyone in our Area whether or not they make journeys. It affects those who live and work in locations with poor air quality and it affects road users on routes that are congested and, therefore, subject to increased vehicular emissions and poorer air quality. Poor air quality not only degrades the overall quality of life but, more importantly, it undermines the national Shared Priority of promoting healthier communities and improving health inequalities.
Traffic is a major source of the gaseous emissions that contribute to poor air quality, especially when specific weather conditions either trap the pollution or sunshine causes pollutants to form smog. The principal pollutants, with regard to local air quality conditions, are Nitrogen Dioxide (NO2) and particles (PM10). There are other pollutants, particularly Carbon Dioxide, which are significant contributors to global warming.
The District Councils, with the exception of Solihull (who have not identified a problem), have declared Air Quality Management Areas (AQMAs) as a result of exceeding Nitrogen Dioxide (NO2) standards, and in the case of Birmingham for particulate matter as well. Our AQMAs are shown in Figure 1 ‘Air Quality Management Areas’.
The Plan illustrates the impact that parts of the M6 and M5 motorways have on the area where congestion is a regular occurrence. Indeed there is a strong correlation between congestion and poor air quality throughout our Area. It is also important to note that the whole of Birmingham, Sandwell and Wolverhampton are designated as an AQMA, whilst the Plan illustrates the ‘hotspots’. It is likely that exceedences will also be found in other areas in the future as traffic levels rise in certain places and EU objective levels become more stringent.
Our air quality target for this LTP2 concentrates on NO2 levels and seeks a 1% decrease in average NO2 levels between 2004 and 2010 in the areas where NO2 exceeds the national objective. This, therefore, relates to our AQMAs and areas which are yet to be declared as AQMAs.
The National Strategic Highway Network
The motorways that pass through and into our Area are the responsibility of the Highways Agency (HA). The motorways are part of the national strategic network and are, thus, essential to the needs of people and freight making longer-distance journeys. They are amongst the busiest sections of motorway in the country.
With regard to air quality issues, the HA’s Midland Motorway Box Route Management Strategy contains a Policy Objective: To reduce the impacts of traffic and transport on the environment including noise, light, air and water pollution (reference EN2). Another Policy Objective is: To work in partnership with road users, transport bodies, local authorities and developers (reference IN1). We will build on our existing very strong working relationship with the HA to work in partnership to tackle air quality issues. For example, we are working closely together to monitor the effects of the Active Traffic Management trials on the M42, between junction 3a (M40) and junction 7 (M6). One aim of these trials is to smooth traffic flows and, thereby, reduce congestion and its adverse effects, including the increased emissions that result from stop-start motoring.
Our operational partnership with the HA is captured within the framework of Detailed Local Operating Agreements (DLOAs) that have been in place since 2003. The DLOAs are working documents agreed between us and the HA. They are based upon a common framework that provide a process for continual improvement in our operational processes and procedures with the HA and its operating partners. The West Midlands DLOAs provide a framework that captures our joint network management agreements to meet a common aim of reducing the adverse air quality effects of congestion.
The Local Highway Network
With regard to air quality issues arising from traffic on roads within our control, we have set up a West Midlands Chief Officers Joint Pollution Group Working Party on Air Quality Planning. This brings together Transport Planning Officers and Environmental Health practitioners to ensure that effective transport policies at both the strategic and local levels contribute to successful action. This internal partnership helps us to share experience and gain maximum benefits from our efforts,
We have a two-pronged approach to improving air quality. Generally, our approach to tackling congestion will have a positive influence on local air quality issues. It is no coincidence that the AQMAs very much reflect congestion ‘hotspots’ found by our ITIS monitoring. Therefore, actions set out in our congestion strategy are extremely relevant.
Network-wide initiatives, such as our Hearts & Minds work, will help better inform motorists of the cost of car travel in congested areas and may contribute towards more sustainable travel choices. Expanding our Park & Ride facilities will take motorists off the busiest sections of routes into our centres, thereby contributing towards improved air quality in the especially vulnerable inner urban areas through which most radial routes pass.
The application of our Network Information and Management Systems, described in the Network Management Statement will be an important tool in tackling problems. Also our UTC Major Scheme will influence travel along some of our busiest roads by enhanced traffic management.
However, many problems need to be tackled in specific locations in line with the Action Plans developed following the declaration of each AQMA. This is the second and more specific approach of our strategy.
Short Term Strategy
This is based on the actions already programmed, most of which aim to smooth or ease traffic flows, avoid stop-start motoring and, thus, contribute towards improved air quality. Examples include enhanced network management, our ‘Red Routes’ programme. The next phase aims to improve traffic flows along the A34 Stratford Road which features as one of Birmingham’s air quality ‘hotspots’. Later ‘Red Routes’ include one along the A457 Birmingham Road that is part of one of Sandwell’s AQMAs.
The Brierley Hill Sustainable Access Major Scheme contains a range of proposals that will help reduce pollution in this locality which was Dudley’s first AQMA. It is envisaged that the Action Plan will reflect the proposals contained within the Major Scheme which are predicted to lead to a marked improvement in NO2 levels.
The Selly Oak Relief Road Major Scheme will take through traffic away from this local centre and, therefore, will not only take vehicular emissions away from where people congregate, but will also lead to less stop-start motoring. Both aspects of this Scheme will contribute to improved air quality in another area identified as one of Birmingham’s ‘hotspots’.
One of the key outputs from the Walsall Town Centre Transport Package Major Scheme is reduced congestion in this locality, through junction improvements and traffic management changes, with subsequent improvements in local air quality in one of this Council’s AQMAs.
Ongoing efforts to promote increased use of Metro Line 1 by motorists will be directly beneficial to air quality along the corridor.
In these and other specific localities, care will be exercised to produce the appropriate priority between road users balanced with the objective of improving air quality. In some locations and/or at certain times, for example along parts of the principal road network during peak periods, priority will need to be given to vehicular traffic in order to cope with demand in line with economic regeneration and reduced congestion objectives. At other locations and/or times, priority will need to be given to pedestrians, for example in and around local centres or educational establishments, in line with accessibility, road safety and quality of life objectives. Getting the appropriate balance will be a key factor and will influence our progress towards better air quality.
Our short-term strategy is under-pinned by on-going work with the Highways Agency to find measures that might mitigate the immense effects of pollution caused by traffic on the motorway network, particularly the sections of the M6 in Walsall, Sandwell and Birmingham, the section of the M5 in the vicinity of and between junctions 1 and 2 and the A38(M) in Birmingham. This includes maintaining a balance between local traffic accessing the motorway network and through traffic, through access controls at key junctions. Joint operational agreements and agreed network management procedures that support this short term strategy will be developed and implemented within the DLOA framework for operational activities.
Longer Term Strategy
The extension of the Metro, into and through Birmingham city centre, will provide better journey opportunities because the trams will serve several city centre facilities. Projections show a strong modal shift from car to tram that should ease traffic along specific roads approaching and within the city centre. Less traffic will lead to less congestion, more efficient motoring and reduced emissions. As Metro is non polluting at point of use increased use in the congested urban area by former motorists will be particularly beneficial in helping mitigate local air quality problems.
Other Metro extensions will similarly contribute towards improving air quality beyond the LTP2 period.
Our work to investigate innovative solutions to congestion problems, through the TIF initiative, will include assessments of options against the improving air quality theme of the Transport Shared Priority.
The Target
Understandably, there were initial criticisms that our air quality strategy and target were not ambitious enough. We recognise this and would wish to achieve more but we have to work within the constraints of societal travel demands, combustion technology and available resources, together with changing and variable weather patterns. DfT feedback on the Provisional LTP2 also sought greater partnership working in setting the relevant target.
In the circumstances, our target of a 1% decrease in average NO2 levels between 2004 and 2010 in the area where NO2 exceeds the national objective, is a challenging target. DEFRA have now accepted the target proposed in Provisional LTP2 following further representations made by the West Midlands Chief Officers Joint Pollution Group Working party on Air Quality. However as we monitor progress, we will review the 1% target to ensure that it remains a realistic challenge. If necessary proposals to alter the target will be submitted to DEFRA.
