Foreword
West Midlands Combined Authority
Air Quality Framework
Framework Implementation Plan (2024 – 2026)
November 2023
Greener TogetherWEST MIDLANDS
Foreword
As Mayor of the West Midlands, I am
pleased to introduce the West Midlands
Combined Authorities’ new Air Quality
Framework Implementation Plan. Back
in 2019, the West Midlands Combined
Authority declared a climate emergency.
Since then, we have grown our energy and
environment programme to ensure we can
tackle it. This comprehensive framework
represents a vital step forward in our
ongoing commitment to improving the
quality of life for our residents, protecting
our environment, and building a healthier,
more sustainable future for our region.
I believe clean air is not a luxury but a
fundamental human right. Every breath
we take should be pure, safe and free from
pollutants. I am aware that, like many
regions across the globe, we have faced
a considerable challenge when it comes
to air quality. That is why this plan is the
result of intense collaboration between
our local authorities, key national and
regional stakeholders and the dedicated
teams within the Combined Authority
who share a commitment to addressing
air quality issues head-on. Through their
forward-thinking and evidence-based
approach, they have created something
that I genuinely believe will benefit the
lives of future generations.
Our existing Net Zero initiatives, such
as retrofit and our active travel network,
have demonstrated that we are first and
foremost delivery-focused, and our work
on air quality will be no different.
Through this plan, money secured from
central government will see the West
Midlands lead the way in tackling air
pollution, becoming home to one of
Europe’s largest low-cost air quality
sensor networks.
However, there remains significant
work to do - some of which will require
innovation in technology, policy,
regulation or approaches to behaviour
change. I hope this plan inspires not only
our local authorities and public servants
but also the entire community to join
us. Please see this as an invitation to
come forward and work with us at pace
to identify new solutions for tackling air
pollution. Together, we can create a West
Midlands where the beauty of our natural
landscapes is matched by the purity of
our air.
Andy Street
Mayor of the West Midlands and Chair of
the West Midlands Combined Authority
Foreword
Poor air quality remains the single biggest
environmental risk to public health. The
health impacts from poor air quality
are significant: bronchitis, asthma,
kidney disease, diabetes, dementia, and
stunted lung development in children,
and the list goes on. And poor air quality
disproportionately impacts people living
in deprivation, the very young and the old.
Therefore, we all have an obligation to
take action to reduce the sources of this
pollution so that the people of the city
and region can realise their full potential.
Birmingham City Council has made a
significant commitment to tackling this
issue through the introduction of the
Clean Air Zone and the Brum Breathes
Clean Air Strategy. Both these actions
focus on air pollution created by road
traffic, which is the dominant source of
air pollution in Birmingham and across the
region. However, air pollution from other
sources such as: biomass boilers, firework
displays, diesel generators, demolition
and construction, bonfires, wood burners,
industrial emissions will require different
solutions and more coordinated action
across the region.
The actions needed to improve outdoor
air quality are clear. However, there is
a growing need to better understand
the sources and impacts of indoor air
pollution. This is especially important
as we start to realise improvements to
outdoor air quality as the majority of our
days are spent indoors.
There are far fewer studies of indoor air
quality when compared with outdoor
air quality, and pollution that affects
indoor air quality is not just from indoor
sources, such as cooking and stoves, it
may also be due to outdoor pollutants. It
is also true that some indoor sources emit
pollutants that are found outdoors, such
as particulate matter (PM) and nitrogen
dioxide (NO2) from woodburning stoves
and open fires. Indoor air quality is also
impacted by works to reduce heat loss
from buildings and we need to ensure
important steps to improve the energy
efficiency of our built environment
incorporate appropriate ventilation. This
is particularly vital in older homes with
building-integrated air circulation via air
bricks, open fireplaces and suspended
floors.
Critically, we know that someone with a
pre-existing respiratory or cardiovascular
condition, or an allergy, is particularly
affected by poor indoor air quality, and
children are particularly at risk from
respiratory problems, such as wheezing
and asthma, eye and skin complaints and
reduced cognitive performance. Work to
improve air quality supports Birmingham’s
ambition to be a UNICEF Child-Friendly
City in which every child can enjoy the
same opportunity to be safe, healthy,
grow and develop.
There are some spaces that are fully
private, such as owner-occupied homes,
but there are many more public indoor
spaces, including health and education
settings, shops and workspaces. Local
authorities across the region provide
social housing to tens of thousands of
people. As with outdoor settings people
are exposed to air pollution indoors
but often feel unable to avoid it and
unsure how to improve it. Therefore, by
working collaboratively, across the region
with colleagues from the Combined
Authority, local authorities, public health
and others we need to develop a better
understanding of how we can prevent and
reduce air pollution. And we need to do
so as a matter of urgency. Alongside this
is a commitment to involve the public in
our work to improve air quality, so that
people know what air quality is all about,
why it is important, and what we can do
together to improve it.
Taking action to improve air quality can
also help to address carbon emissions
and enable some of the broader systemic
changes required to achieve carbon
neutrality within the next decade or
so. Transport remains a significant
contributor of carbon emissions, but
fossil fuel combustion for heating, and
those burned for electricity generation
consumed in buildings is an equally
large contributor. Therefore, by tackling
the issues around indoor air quality and
carbon emissions we have the opportunity
to create more sustainable, lower cost
homes for thousands of people across the
city and the region.
This Framework Implementation Plan
provides a starting point for this work.
We need more monitoring to better
understand the locations and sources
of air pollution. And we need to work
across the region to share data, improve
the understanding of the sources of air
pollution and to provide people and
organisations with the tools and support
to address this issue.
Councillor John Cotton
Leader of Birmingham City Council and
Chair of the West Midlands Combined
Authority Environment & Energy Board
Executive Summary
These priority measures have been identified and
narrowed down (from the full list of 145 measures
identified within the Air Quality Framework1) through
engagement and consultation with relevant partners,
charities, and organisations. This engagement included
a wide consultation event which sought the views of
attendees regarding the options/measures that should
be the focus of activities over the next two years. At
the end of this, there will be a further Framework
Implementation Plan developed.
The options have been categorised into the following
work packages:
¥ Monitoring and digital engagement;
¥ Air quality communications;
¥ Schools engagement;
¥ General air quality engagement and behaviour
change (including dedicated measures for
domestic combustion);
¥ Net zero and retrofitting;
¥ Planning and air quality assessment;
¥ Natural environment; and
¥ Research.
In addition, there are standalone measures that do
not fit into the above work packages at this stage.
The prioritised measures/work packages target
improvements in both nitrogen dioxide and particulate
matter and look beyond road transport emissions. This
reflects the shifting focus for protection of future health
in relation to particulate matter and associated effects
from both road transport and other sources. Notably,
WM-Air researchers estimate that annually in the West
Midlands, up to 2,300 early deaths are attributable
to long term PM2.5 (particles that are less than 2.5
micrometres (μm) in diameter) exposure.
The implementation of the priority measures will not
replace, but complement, the existing activities that are
being delivered by both Transport for West Midlands
(TfWM) and the region’s local authorities to support
improvements in air quality.
Whilst this document has been produced by the WMCA,
working with its constituent local authorities, the
Framework will need a collaborative approach to enable
delivery. This will include local and regional government,
but also the commitment of local businesses and
communities. The Framework will also need financial
investment in order to implement, and then sustain,
some of the measures identified. As air pollution is both
produced and experienced locally and regionally, any
emissions reduction (by industry, transport, and housing)
as a result of the implementation of the Framework will
have immediate local and regional benefits.
We have begun our path to delivery through a DEFRA-
funded air quality grant and look to continue working
with our regional partners, local businesses and
communities as the Framework is delivered.
This first Framework Implementation Plan has been
developed to summarise priority measures from the West
Midlands Combined Authorities (WMCA’s) Air Quality
Framework that will be progressed/delivered between
2024 and 2026. The implementation of these priority
measures will see progress towards WMCA’s vision:
“The West Midlands will have air
quality that is safe for all people,
no matter where you live in the
region, resulting in significantly
improved public health and
environmental outcomes.”
WolverhamptonWalsallBirminghamDudleySandwellSolihullCoventry
6
Contents
1. Introduction: Purpose and Scope of the Plan............................................................................7
2. Air Quality, Policy, and Regional Summary...............................................................................10
2.1 Pollutants of Concern..........................................................................................................10
2.2 National Legislation, Policy, and Targets.............................................................................10
2.3 Impacts, Sources and Regional Picture...............................................................................12
3. Framework Overview................................................................................................................15
4. Wider West Midlands Strategic Approach...............................................................................16
5. Our Priorities 2024 – 2026.......................................................................................................17
6. Delivery and ways of working...................................................................................................31
7. Governance and financing.......................................................................................................32
8. How you can get involved........................................................................................................33
Appendices....................................................................................................................................35
Appendix A – Glossary............................................................................................................35
Appendix B – Proposed Government Priorities and Actions...................................................39
Appendix C – Framework Contributors and Consultees..........................................................41
Greener TogetherWEST MIDLANDS
1. Introduction: Purpose and Scope of the Plan
The Air Quality Framework and need for a
Framework Implementation Plan
The West Midlands Combined Authority (WMCA)
has developed an Air Quality Framework2. This
comprehensive document comprises a list of 145
potential ‘options’ that could be enacted to address
poor air quality and inequality of exposure. The options
vary in terms of their likely impact, timescale for
implementation and cost but focus on measures that
can be implemented at a regional level. The Air Quality
Framework recognises the role and responsibility of the
West Midlands constituent3 and non-constituent local
authorities4 on Local Air Quality Management (LAQM)
and seeks to support and amplify their efforts through
the provision of a strategic framework for the region.
This directly aligns with the Environment Act 20215
which suggests that more regional co-operation should
be undertaken.
Given the scale of the task, this Framework
Implementation Plan has been developed alongside the
main Framework document to provide focus for work
packages and measures to be prioritised during the
initial two-year work programme.
It has been developed in conjunction with organisations
from the public sector (including health, public health,
and local authorities); research organisations and
third sector organisations that have an interest in
environment, health and air quality. Their feedback and
input were gained through an interactive consultation
process that allowed the identification of priority
measures for implementation.
The outcomes that we hope to achieve through the
implementation of the Framework include, but are not
limited to:
Reduced exposure to nitrogen dioxide
(NO2) and particulate matter (PM10 and
PM2.5 - particles that are less than 10 and 2.5
micrometres (μm) in diameter respectively)
striving to achieve better health outcomes
for people living and working in the West
Midlands.
Increased awareness amongst people,
communities, developers, businesses,
politicians, and policymakers of the need to
tackle poor air quality in the West Midlands.
Improved monitoring, data collection and
communication of the data to local groups,
especially those at risk. The resulting insights
should be used to understand the impact of
various policy measures. Findings can then be
used to inform discussions concerning future
prioritisation to address poor air quality
(including soft measures such as behaviour
change campaigns and/or infrastructure
solutions).
Increased regional and national co-working
and cooperation to improve air quality and
health outcomes in the most efficient way
possible. This will build upon the work
undertaken by local authorities and use the
lessons learned to make the implementation
and outcomes as effective as possible.
The delivery of this Framework Implementation
Plan will require collaboration across a wide range
of stakeholders; it cannot be delivered by any one
organisation (i.e. WMCA) acting alone. As a result,
we plan to establish a Framework Delivery Group
(FDG) that will complement existing governance
arrangements. This will enable wider integration of
regional stakeholders through focused task and finish
groups tackling particular issues. More on this is
outlined in Section 7.
Finally, the engagement and involvement of the West
Midlands people and communities is fundamental to
helping assess, prioritise, and implement measures. The
Greener Together Citizens’ Panel has already provided
input into the things we should consider when deciding
to move forward with a particular measure or policy. We
plan to continue working with the Panel to support the
roll out of the Framework Implementation Plan.
Geographical Scope
The Air Quality Framework, and subsequent Framework
Implementation Plan, are applicable to the seven
constituent local authorities and 11 non-constituent
local authorities which make up the WMCA region. For
the purposes of this work, we have focused on the role
of the constituent local authorities but, as with many
other environmental issues, there is scope to collaborate
across different geographies. For example, the Coventry
and Warwickshire Air Quality Alliance have been a
stakeholder in developing the Framework.
Anything that can be delivered by WMCA, constituent
local authorities or partners is considered within the
scope of the Framework. Options which fall outside of
the scope of the Framework typically are those which
rely upon national government to promote or are not
implementable within the current powers. If we identify
any powers that would benefit air quality and public
health, then they could form part of a future devolution
deal.
Scope of the Plan
¥ Coventry
¥ Solihull
¥ Birmingham
¥ Sandwell
¥ Walsall
¥ Dudley
¥ Wolverhampton
Roles and Responsibilities
Table 1.1 lists the organisations involved within the development of the Air Quality
Framework and their respective roles and responsibilities. There is a need to form
a multi-disciplinary approach when considering measures to be implemented to
improve air quality and health within the region (from transport, environmental and
public health to planning etc.).
Role of WMCA
Each option within the Framework has an indicative WMCA role assigned to it,
which is as follows:
Lead
WMCA would have direct responsibility and would take action;
Enable
WMCA can enable the option to go forward in some capacity
(e.g. undertaking preliminary assessment work, providing
physical items (e.g. trees) to enable the work to go forward);
Convene
Bring parties together to discuss an issue/option and how it can
be resolved. This could include providing inputs on challenging
issues and then finding the mechanisms to address them (such as
mitigation or adaptation).
The workplan in Section 5 is a combination of Framework options in
complementary packages and standalone measures. It captures proposed
ownership and delivery partners, as well as the targeted progress/delivery stage
by the end of the initial two-year period. One of the strengths of a framework
approach is that options within the Framework can be initially assessed, and
experience drawn upon when required for more comprehensive and targeted
assessment on a case-by-case basis.
Table 1.1: Roles and Responsibilities Within the West Midlands
Organisation
Responsibilities
Transport
Planning
Public
Health
Environment
(excluding
air quality)*
LAQM
Clean
Air Zone
(CAZ)
WMCA
✓
✓
✓
Local
Authorities
✓
✓
✓
✓
✓
✓
Environment
Act (2021)
Air Quality
Partners**
✓
✓
✓
✓
✓
✓
Notes:
* This is a responsibility that is shared across regional and local authorities. There
are currently no statutory obligations (that sit outside planning), but the WMCA
is expecting to be appointed responsible authority for the Local Nature Recovery
Strategy (as outlined in the Environment Act, 2021).
** Air Quality Partners may be a neighbouring local authority; a designated Relevant
Public Authority (such as National Highways); the Environment Agency.
2. Air Quality, Policy, and Regional Summary
2.1 Pollutants of Concern
This Framework is primarily dealing with two ambient
(i.e. outdoor) pollutants:
Nitrogen Dioxide NO2 is essentially a
primary pollutant (directly emitted to
the air). As such, it is typically emitted
directly from or formed following high-
temperature combustion (notably, road
transport).
Particulate Matter (particularly PM2.5)
- Particulate matter has both primary
and secondary elements (pollutants
which are formed in the atmosphere,
from the processing of other primary
emissions). Direct emission sources
include biomass (wood) burning,
combustion, road traffic, resuspended
dust and dust from construction;
secondary sources include particle
formation from the atmospheric
processing of NO2, sulphur dioxide
(SO2), volatile organic compound
(VOC) gases, and ammonia (NH3).
2.2 National Legislation, Policy, and Targets
There are several regulatory and advisory limits on air
pollutants, as well as suggested policy approaches
and measures for tackling poor air quality. For local
authorities and the region, the most recent update to
air quality limits and policy was part of the Environment
Act 2021, its subsequent regulations (The Environmental
Targets (Fine Particulate Matter) (England) Regulations
20236) and other strategies such as the Environmental
Improvement Plan 20237.
The current legally binding targets set are higher than
the WHO Air Quality Guideline Values in Table 2.1,
and therefore seen by many as not being sufficiently
ambitious to maximise protection of health. It was noted
in legislation that all areas within England should be able
to reach the revised PM2.5 target within the timescales
set. However, transboundary pollution, especially in
London and the south-east arising from continental
Europe, was used to justify not setting a more ambitious
target. As such, there is a disparity between what the
Government considers an achievable target for all of
England (a requirement of the Environment Act) and
what the World Health Organization recommends
governments should set as their PM2.5 target, based on
current evidence.
Table 2.1: Key Ambient Air Quality Standards (for England) and Guideline Values Set by the World Health Organization
Pollutant
Averaging Period
Government Objectives and
Targets in England (μg/m3)
WHO Air Quality Guideline
Values (μg/m3)
Annual mean
40
10
1-hour (hourly) mean
200 (not to be exceeded
more than 18 times a year)
N/A
24-hour (daily) mean
N/A
25 (not to be exceeded more
than 3 to 4 times a year)
Annual mean
40
15
24-hour (daily) mean
50 (not to be exceeded more
than 35 times a year)
45 (not to be exceeded more
than 3 to 4 times a year)
Annual mean (in 2023)
20
5
Annual mean (2028 interim
target)
12
5
Annual mean (2040 target)
10
5
Local Air Quality Management
Local authorities have had long standing responsibilities
due to the LAQM regime under the Environment Act
1995. There were amendments to the LAQM regime
in the Environment Act 2021, alongside more defined
responsibility for tacking local air pollution. The
responsibility for addressing local air quality is now
shared between designated relevant public authorities,
all tiers of local government and neighbouring
authorities. The key expectations have been further
defined within a DEFRA policy paper8 which includes
statements such as “If the government considers
local action has not gone far enough, we will consider
introducing a statutory duty on local authorities”. For
context, Appendix B details what the government’s
priorities and actions are and provides some context on
what will be done nationally.
The LAQM regime requires every district and unitary
authority to review and assess air quality in their area
on a regular basis and present the findings in an Annual
Status Report (ASR). The ASRs will identify if objectives
have been, or will be, achieved at relevant locations by
the required date. If an Air Quality Management Area
(AQMA) is designated on the back of an ASR, an Action
Plan should be prepared within 12 months following the
declaration of the AQMA.
There have been varying mechanisms and measures
to reduce pollutant concentrations in areas with
exceedances of the air quality objectives. However,
typically these are in the form of transport schemes,
smaller scale mitigation, behaviour change and wider
geographical controls such as Smoke Control Areas
(SCAs).
More recently there have been measures such as Clean
Air Zones and Zero Emission Zones (ZEZs) that can be
used as a mechanism to meet the legally binding NO2 air
quality objective in the shortest possible time. However,
measures such as CAZs can have varying impacts on
concentrations depending on the restrictions imposed,
but typically the impact on NO2 is greatest. For example,
the Birmingham CAZ area includes approximately 5% of
the city population, which is one of the major limitations
in achieving any significant health benefit (for major
cost). CAZs can also exacerbate social and economic
inequality, however, if funds are used efficiently,
changes in behaviour and modal shift can provide wider
benefits which may not be immediately apparent.
With the clarified responsibility to improve local air
quality, it is imperative that regional solutions are
implemented. This is a departure from most previous
LAQM approaches, which have been primarily locally
targeted when not included within a regional plan (such
as a Local Transport Plan (LTP)). Most local authorities
have extensive experience in improving air quality within
their area, focusing on NO2; however, there are potential
benefits to using this knowledge to expand measures
across the region and implement new ones.
2.3 Impacts, Sources and Regional Picture
Air Quality Impacts on Health and the Environment
Traditionally for ambient air pollution, the focus has
been on NO2 and the larger particle sizes (such as
PM10). However, there is a substantial evidence base
that concludes9 PM2.5 is more dangerous to human
health, as the particles can penetrate more deeply into
the body, lungs and even bloodstream; and is causally
associated with a broader range of health outcomes
than NO2. This is reinforced within the Public Health
Outcomes Framework (PHOF), where the ‘Fraction of
mortality attributable to particulate air pollution’ only
includes PM2.5. As such, the Framework options have
a particular focus on reducing emissions and exposure
to PM2.5. However, pollutants such as NH3 should not
be ignored as they have both a direct impact on the
natural environment and play a part in secondary
PM2.5 formation, with emissions largely coming from
agriculture.
The mortality burden of long-term exposure to outdoor
air pollution (i.e., an estimate of how many people die
from long-term outdoor air quality exposure) in England
is estimated to be equivalent to 26,000 to 38,000
deaths a year10.
Most of these deaths attributable to outdoor air
pollution are related to long-term exposure to PM2.5.
WM-Air estimate that annually in the West Midlands, up
to 2,300 early deaths are attributable to long term PM2.5
exposure. In addition to the mortality burden, there is
the causation and exacerbation of both avoidable and
unavoidable chronic illnesses, such as asthma, along
with associated impacts on mental health and cognitive
function. As such, exposure to poor air quality has a
significant impact on quality of life, public health, and
the economy, when considering associated healthcare
costs. As shown in Figure 1, the impact of poor air
quality can affect anyone during their lifetime, and
impacts are typically not equal. Air quality inequality
can stem from a variety of factors including socio-
economics, ethnicity, age and other medical factors
(such as pregnancy and pre-existing conditions).
Ambient air pollution also has an impact on the natural
environment, with pollutants such as nitrogen oxides
(NOX) and NH3 having an impact on sensitive plants
through the formation of nitric acid in sunlight, which is
a major constituent of acid rain, tropospheric ozone and
smog. Through processes such as nitrogen deposition
and direct toxicity, increased pollution can lead to a
decrease in biodiversity and even crop damage, because
some plants can adapt to the changes better than
others.
Indoor air pollution is affected by both actions that
happen indoors, and the quality of the air outdoors
entering the space in question. Sources of indoor
air pollution include combustion sources (such as
gas boilers/hobs and solid fuel appliances like log
burners), household products, furniture mould, cooking
and outdoor pollutants. Indoor air quality is a less
mature field of study than outdoor air quality. With
improvements to outdoor air quality, it is expected that
there will be an increased focus on indoor air quality,
given the time that people spend indoors, and the
range of behavioural and other interventions which
can mitigate exposure. This can include advice on
better ventilation, change to electric cooking methods,
having a smoke free home (no smoking and log
burners), reducing the use of harsh cleaning chemicals
and keeping your home heated/ventilated to prevent
condensation leading to damp and mould.
Figure 1: Health effects of air pollution throughout life.
Adapted from the Chief Medical Officer’s 2022 Annual Report: Air Pollution11
Pregnancy
◦Low birth weightChildren
◦Asthma
◦Slower development of
◦lung function
◦Development problems
◦More wheezing and coughs
◦Start of atheroscleroisAdults
◦Asthma
◦Coronory Heart Disease
◦Stroke
◦Lung Cancer
◦Chronic obstructive
pulmonary disease
◦DiabetesElderly
◦Asthma
◦Accelerated decline
in lung function
◦Lung cancer
◦Diabetes
◦Dementia
◦Heart attack, heart failureand stroke
Pollutant Sources Within the West Midlands
Primary NO2 and NOX emissions in the West Midlands
are dominated by road transport. Within this, as
typical for UK urban environments, emissions are
dominated by older diesel vehicles. Particulate matter,
with a lifetime of a few days, bridges this divide: PM
concentrations in the West Midlands reflect both local
emissions, and transported pollution from elsewhere
(i.e. transboundary pollution). Primary particulate matter
emissions in the West Midlands also have a much wider
spread of sources – including commercial and domestic
combustion, industrial production and road transport.
The largest single source of particulate matter emissions
in the West Midlands is domestic and commercial
combustion.
Air pollutants are dispersed and transported by
the wind. Weather conditions can also affect their
deposition and removal. Their rate of removal from the
air – or lifetime – reflects the importance of transported
pollution relative to local emissions. Notably, levels
of short-lived species will be dominated by local or
regional emissions (e.g. NO2); at the opposite extreme
levels of very long-lived species depend upon emissions
globally (e.g. carbon dioxide (CO2)).
Whilst we are expecting urban NO2 to decrease with
the move to electric vehicles, projections from the
National Atmospheric Emissions Inventory indicate that
we cannot currently anticipate an equivalent reduction
in PM2.5 without additional interventions (related to
non-exhaust particulate matter sources: brake, tyre, and
road wear, exacerbated by increased vehicle weight).
West Midlands Ambient Air Quality Overview
Ambient air quality has significantly improved over the
past 50 years, particularly with notable reductions in
pollutants like NO2. This trend is expected to continue
as the transportation industry shifts towards lower
and zero-emission vehicles. However, the decrease in
particulate matter concentrations has slowed in the last
decade. Moreover, particulate matter emissions are
not solely from transportation; domestic combustion,
especially in the West Midlands, remains a primary
source of particulate matter emissions, and an increase
in solid fuel combustion in recent years has hindered
overall emission reductions.
NH3 is typically more relevant to the natural
environment but is gaining importance in terms of
human health. It can contribute to increased secondary
PM2.5 concentrations through chemical reactions in
the atmosphere.
Ammonia emissions and concentrations have not
decreased to the same extent as other pollutants.
The highest 2021 annual average PM2.5 concentrations
in the West Midlands are modelled in central
Birmingham, Coventry, Sandwell and Walsall (as shown
overleaf in Figure 2). This is largely supported by the
monitoring undertaken by the WMCA constituent local
authorities and published within their ASRs. N.B this
dataset is a modified 2016 model and therefore it has
limited influence from COVID-19. This is because it
utilises a 2021 vehicle fleet that would not be affected
by COVID-19.
Across the region, monitored concentrations of PM10
and PM2.5 are below their respective objectives, with
monitored annual mean PM2.5 concentrations being
below the 2040 target (10μg/m3) in recent years.
This indicates that in comparison to the government’s
objectives, monitored particulate matter concentrations
are acceptable (although this may not capture all
pollution hot spots). However, PM2.5 in all areas exceeds
the WHO Air Quality Guideline Value (5μg/m3); this is
the situation across England, due to the combination
of urban, rural, and transboundary pollution, from a
mixture of natural and human origins.
DEFRA mapping for 2019 indicates that ward-mean
annual average PM2.5 levels in 72 of the 192 wards
within the West Midlands exceed 10μg/m3. Modelling
by WM-Air12 suggests that that 1.2m people or ca.
40% of the West Midlands’ population live in wards
where ward average annual mean PM2.5 concentrations
exceed 10μg/m3. What emerges from this data is that
the least advantaged areas (highest indices of multiple
deprivation (IMD) score) tend to have the worst air
quality and that the picture varies depending on the
data source and methodology used.
Based on the WM-Air modelling (through the Air Quality
Life Assessment Tool (AQ-LAT), across the WMCA
area in 2019 the estimated fraction of annual mortality
attributable to particulate air pollution was up to 8.4%,
which is higher than the West Midlands average.
Sandwell is predicted to have the highest fraction at
up to 8.8%, whilst Solihull, has the lowest fraction of
attributable mortality in the WMCA area at up to 7.9%.
It should be noted that national PHOF fractions (shown
in Appendix B) are based on NAEI background mapping
and have a lower fraction in comparison.
Although the regional PM2.5 monitoring results are
promising when compared to the Government’s 2040
target, meeting more ambitious targets will reduce
the burden and promote a wide array of benefits
to the region. These include but are not limited to
improvements in health, reduction in inequality and
financial benefits of a healthier and more productive
West Midlands.
For NO2, there have been historical exceedances of
the annual mean objective prior to COVID-19, and
locations in the West Midlands where NO2 exceeded the
objective during covid affected years (2020 and 2021).
In line with the national trends, the number of locations
exceeding the annual mean NO2 objective has been
decreasing over the past 15 years, however, in some
urban locations, the concentrations are not decreasing
at the same rate as elsewhere within the region. The
results for 2022 (the first year to not have significant
COVID-19 related impacts) are currently being prepared
by local authorities, so this will provide further update
on the progress made in dealing with road-source NO2
emissions and exceedances of the annual mean NO2
objective.
PM₂.₅ Concentration (μg m⁻³)
<= 9.09.0 - 10.0 (2040 Target)
10.0 - 11.011.0 - 12.0 (2027 Interim Target)
12.0 - 13.013.0 - 14.014.0 - 15.015.0 - 16.016.0 - 17.0> 17.0Local Authority BoundariesPredicted 2021 PM₂.₅ ConcentrationsBased on WM-Air ModellingMap data © OpenStreetMap contributors, CC-BY-SA - Accessible Colour Scheme Adapted from Research by Paul Tol
NO₂ Concentration (μg m⁻³)
<= 16.016.0 - 20.020.0 - 24.024.0 - 28.028.0 - 32.032.0 - 36.036.0 - 40.0 (UK Limit)
40.0 - 44.044.0 - 48.0> 48.0Local Authority BoundariesPredicted 2021 NO₂ ConcentrationsBased on WM-Air ModellingMap data © OpenStreetMap contributors, CC-BY-SA - Accessible Colour Scheme Adapted from Paul Tol Research
Figure 2: Modelled 2021 annual average concentrations of PM2.5 (left) and NO2 (right) in the West Midlands. Provided by WM-Air modelling.
3. Framework Overview
In response to member questions on air quality, WMCA
in conjunction with the WM-Air project at the University
of Birmingham, prepared an Air Quality Options paper13,
which was presented to the WMCA Board in February
2022.
An initial overview of actions was identified in this
paper, but there was recognition that this needed to be
translated into an Air Quality Framework comprising a
list of options assessed and prioritised against criteria
including health outcomes, wider benefits, feasibility
of implementation, cost and timescales as well as the
likelihood to deliver air quality improvements. The Air
Quality Framework took these options and included
additional options following discussions with constituent
local authorities and research from other key sources
(such as from DEFRA14). The main Framework document
details each of the stages in the Framework process.
Figure 3 provides a summary of the stages of work
undertaken.
At the inception of the Framework, and throughout
the process, regular discussion and consultation was
undertaken with TfWM, constituent local authorities
and partners such as WM-Air. Details of the contributors
and consultees for the Framework are given in Appendix
C. These discussions shaped the Framework’s scope
and direction, along with specific options which had
not been previously identified. The WMCA’s Greener
Together Citizens’ Panel also led the development of
guiding principles that should be used as part of the
detailed assessment and implementation of options
outlined in this Framework Implementation Plan. More
detail on how the Air Quality Framework options were
appraised can be found in the document here.
A targeted consultation process was also undertaken
in August 2023, culminating in an in-person workshop
event. Organisations from the public sector (including
health, public health, and local authorities); research;
and third sector organisations that have an interest in
environment, health and air quality were invited to the
event. The workshop event allowed for relevant decision
makers and other key organisations to provide feedback
on the draft Framework document, discuss air quality
issues and make recommendations on the options they
would like included within this document. Following
the consultation event, feedback and comments were
collated along with the option recommendations
for inclusion within this Air Quality Framework
Implementation Plan. The resultant list of priorities
within Section 5 provides a challenging, but achievable
set of packages and measures to improve air quality
within the region.
Stage 1:
Initial Discussions and
Consultation with Local
Authorities, Partners etc.
Stage 2:
Assembly of
Wider Advisory Group
and Appraisal PanelStage 4:
Red-Amber-Green (RAG)
Long List Option AppraisalStage 5:
Qualitative Multiple-Criteria
Decision Analysis (MCDA),
Option Weighting and
Option Preferences
Stage 7:
ConsultationStage 8:
Framework Finalisation,
Implementation Plan
and ApprovalStage 9:
ImplementationStage 3:
Framework Options
Pre-ScreenStage 6:
Draft Framework
and WMCA
E&E Board Approval
Figure 3: Framework Stages and Workflow
4. Wider West Midlands Strategic Approach
The Air Quality Framework, and this Framework
Implementation Plan, do not sit within a policy vacuum.
Strategic approach, and delivery, is dependent on
effective coordination across other WMCA and local
authority functions. These predominantly relate to:
¥ Existing air quality plans (especially local authority
AQAPs and strategies).
¥ Transport plans, including the LTP, and associated
area strategies and implementation plans.
¥ Net zero plans. At a regional level this is the
WM2041 plan (and the associated Five-Year Plan)
as well as local authority net zero strategies.
¥ Other linked area of work, e.g. regional and local
public health and natural environment plans.
These are represented in Figure 4. We expect the Air
Quality Framework Delivery Group to work with all of
these areas as part of delivery (also see governance in
Section 7).
Within the boxes in the below diagram, there are
specific plans and strategies that will be relevant to the
successful delivery of air quality improvements. For
example, the local authority plans and strategies box
represents planning, local net zero plans, public health
strategy, transport and natural environment (noting
these may not necessarily be interlinked at a local
authority level). We will be relying on the work with
local authorities to identify areas where the Air Quality
Framework can support on delivery and consistency.
Further, each of these plans/ strategies will be on a
different cycle of renewal, approval, and adoption. As a
result, the aim would be for the Air Quality Framework
to support the provision of up-to-date information and
action on addressing air quality for inclusion where
appropriate.
WM2041 Five Year PlanWMCA NaturalEnvironmental PlanAir Quality FrameworkLocal Authority Air QualityAction Plan and StrategiesLocal Authority
Plans and StrategiesWMCAKey:
Local AuthorityWMCA Air QualityFrameworkAir Quality FrameworkImplementation PlanLocal Transport Plan andassociated documentsand strategiesHealth of the Region
Figure 4: Alignment of the WMCA Air Quality Framework to Regional Strategies
5. Our Priorities 2024 – 2026
This section outlines the priorities of the Framework for
the next two years by providing a set of work packages
(WP) and measures to progress. The tables within this
section provide an overview of the following:
¥ What each package or measure will deliver;
¥ Expected stage of delivery for the next two years;
¥ Cross references to the Framework options;
¥ Ownership for delivery and stakeholders/
consultees;
¥ Indicative costs; and
¥ Risks and dependencies.
The overall scope, tasks required to progress, and
funding requirements vary across the work packages
and measures. As such, there are varied levels of
delivery targeted within the two-years this document
covers, grouped as:
¥ Outline feasibility stage;
¥ Business case prepared;
¥ Funding sought/secured;
¥ Early stage implementation; and
¥ Full implementation.
The Framework options vary in scope and granularity, with some options within the Framework having logical
synergies with others. Where this is the case and there is benefit to a combined delivery, options have been
grouped together into a work package. These include:
Monitoring and Digital Engagement
Table 5.1
Air Quality Communications
Table 5.2
Schools
Table 5.3
General Air Quality Engagement and Behaviour Change
Table 5.4
Dedicated Engagement and Behaviour Change Package for
Domestic Combustion
Table 5.5
Net Zero and Retrofit
Table 5.6
Planning and Air Quality Assessment
Table 5.7
Natural Environment
Table 5.8
Research
Table 5.9
Transport for West Midlands and Local Authority Standalone Measures
Table 5.10
Additional Standalone Measures for WMCA, Transport for West Midlands
and Local Authorities (1)
Table 5.11
Additional Standalone Measures for WMCA, Transport for West Midlands
and Local Authorities (2)
Table 5.12
Many of the work packages are interconnected
with common themes and actions, so there will be
opportunities for reduced overheads when it comes to
resourcing, finances, and delivery. Key aspects such as
the building of communication channels and monitoring
of outcomes can be applied across all work packages.
Those options that represent larger distinct works
by themselves or do not naturally fit into the above
structure have been retained as standalone measures.
These standalone measures have the potential to be
incorporated into existing or future work (such as the
TfWM LTP) and the Framework Delivery Group will
have a role in optimising the delivery of these measures,
whether that be processing with a measure in isolation
or have it incorporated into other packages. Table
5.10 (Transport for West Midlands and local authority
standalone transport measures) and Tables 5.11 and
5.12 (additional standalone measures for WMCA,
Transport for West Midlands and local authorities)
summarise the measures that have not been placed into
a work package. In all the tables below, the Framework
options which make up the work packages or measures
are stated, with the option description, followed by
the Framework option identifier (such as ‘MON1’) in
brackets.
Regarding finances and funding sources, an assumption
has been made that officer time will be available
from local authorities, supported by a WMCA officer
post (currently financed by DEFRA). We do, however,
recognise that there are significant capacity issues in
terms of delivery in the constituent local authorities,
which is a potential risk to delivery of some of these
programmes. Providing additional resource through
external support will be critical for success.
Some work packages and measures can be delivered in
conjunction with existing projects and work (with some
additional funding or officer time), but others will need
standalone funding. Indicative resource requirements
for the next 2 years have been identified against these.
Much of the engagement and behaviour change work
can be delivered through existing officer time, potential
additional resources and by leveraging the benefits of
having more of a regional approach. Others, such as
those relating to transport and infrastructure, will be
much more complex to estimate financially and will
have to be determined once allocated to a delivery
partner and once a scope is defined. The Framework
Delivery Group will play an integral role in identifying
sources of finance and resourcing the delivery of the
work packages and measures. In advance of this, it has
already been demonstrated that the WMCA and seven
constituent local authorities are able to attract funding
through DEFRA grants and Department for Levelling
Up, Housing and Communities (DLUHC) funding. There
is also the scope for Section 106 (S106) funding and
funds raised on the back of revised planning guidance
(i.e. damage cost calculations) to support specific work
packages in the future.
Where the costs of stand-alone measures and work
packages are not yet known, the following scale has
been applied based on professional judgement:
¥ £ - Officer time, or below £100,000
¥ ££ - Between £100,000 and £500,000
¥ £££ - Above £500,000.
Table 5.1: WP1 - Monitoring and Digital Engagement
Monitoring and Digital Engagement
Package Summary
Establish a West Midlands wide low-cost sensor network, along with an associated standalone website, network standard and behaviour change
elements. This will bring together existing indicative low-cost sensors from local authorities, plus existing monitoring that is used for compliance. This
will enable increased understanding of particulate concentrations within the region and provide tools to reduce exposure and emissions to benefit
public health. The network will be designed in conjunction with partners and with guidance/standards to be shaped by upcoming DEFRA low-cost
sensor guidance.
Expected Delivery
Full
implementation.
Consisting of Framework Options
¥ Establish a West Midlands wide low-cost sensor network, with an associated standalone website that includes existing regional data, enable other systems (such as an
alert system) and air quality information that is effective for behaviour change. (MON1)
¥ Establish regional standards on air quality monitoring covering all monitoring types to ensure that the data being acquired is robust and the equipment used is to a
minimum standard. (MON2)
¥ Use a centralised West Midlands air quality network website as a data store to enable various analyses such as trends and the quantification of the impact of air quality
measures. (MON4)
¥ Use low-cost sensors to capture high level domestic combustion data to be used in effective behavioural change advertisement and create real life stories/case
studies. (EBC9)
¥ Provide a centralised online public resource and/or platform for engagement and behaviour change co-ordination across the West Midlands. (EBC30)
¥ Use a regional air quality website to deliver key air quality information and effective information to facilitate behavioural change through a single point for the West
Midlands. (EBC31)
¥ Interactive online resources to demonstrate air quality issues. (EBC32)
Proposed WMCA Role and Ownership
WMCA to lead, with local authority and partner input.
Stakeholders / Consultees
Local authorities, TfWM, communities, medical professionals/GPs and businesses.
Indicative Two-Year Costs and Sources
£640k (already secured through DEFRA grant and DLUHC funding), likely to cover
up to five years.
Risks
Long term viability without long term funding. Dating of equipment due to adoption
of new technologies/fragmentation of technologies. Lack of promotion and engaging
materials on the centralised website leading to lack of usage.
Indicative Long-Term Costs and Sources
TBC following finalisation of scope and procurement, however existing funds
expected to provide support to five years (££-£££).
Dependencies
External funding (including promotion), local authority highways/TfWM support for
installation on lampposts where required and property owner consent.
Table 5.2: WP2 - Air Quality Communications
Air Quality Communications
Package Summary
Produce a communications strategy and materials to harmonise and maximise the effective delivery of air quality communications throughout the
West Midlands. This would include using existing channels of communications (such as local authority communication teams) and leveraging trusted
advisors to disseminate key information to those that need it the most. Having coordinated and harmonised air quality messaging will be key to
increasing awareness and leading to changes in behaviour. Utilising local authority public health teams will be critical in the creation and dissemination
of materials through existing partnerships and communication channels.
Expected Delivery
Early stage to full
implementation.
Consisting of Framework Options
¥ Leverage campaigns for public transport, walking and cycling to promote the various co-benefits (including emissions and health) along with exposure mitigation.
(EBC10)
¥ Use health professionals to educate and disseminate targeted air quality information to vulnerable and at-risk patients. (EBC27)
¥ Work with existing public health channels to deliver consistent messaging across the West Midlands. (EBC29)
¥ Use trusted advisors to disseminate air quality messaging (including faith leaders, GPs, nurses, fire service etc). (EBC34)
¥ Ensure that air quality communication and engagement are consistent and inclusive across the West Midlands (and modified where necessary) to make messaging as
clear as possible with the best chance of behavioural change. (EBC38)
¥ Roll out tools to warn and update residents of poor air quality and supported by regional/local healthcare system. (PH1)
Proposed WMCA Role and Ownership
WMCA to lead, with local authorities supporting on local implementation.
Stakeholders / Consultees
Local authorities (air quality, public health, and communication teams), TfWM,
healthcare, communities, and external organisations.
Indicative Two-Year Costs and Sources
Set up and initial delivery of the work package expected to be in the region of
£80,000. This would include a feasibility study/business case for an alert system and
healthcare system integration.
Risks
Poor public reach due to lack of coordination in communications, no agreement
on messaging and key messages, conflicting messaging, lack of support within
communities. No scope to update healthcare systems to integrate air quality alerts/
warnings leading to lack of use.
Indicative Long-Term Costs and Sources
TBC following feasibility – Expected to be officer time, any identified promotional
costs and long-term support of air quality alert system if implemented (£-££).
Dependencies
Establishment of strong communication channels, agreement on messaging,
frequency, and style. Lessons learnt and outputs from the WMCA led DEFRA
behaviour change project.
Table 5.3: WP3 - Schools
Schools
Package Summary
Produce a coordinated approach to engaging with West Midlands schools on air quality. Several local authorities already undertake schools’
engagement. However, utilising existing experience, lessons learnt and contacts to deliver a consistent engagement programme and accreditation
scheme should provide better air quality outcomes in a timely and financially efficient way. Working with a wide range of partners and local
organisations will allow for greater access to secondary and further education establishments, which are historically difficult to engage with (due to
such factors as resourcing, time, and curriculum relevancy). There should be engagement and linkages to existing programmes and working with
existing groups who campaign in the area (such as Mums for Lungs).
Expected Delivery
Early-stage
implementation.
Consisting of Framework Options
¥ Introduce a West Midlands schools accreditation and education scheme for air quality. (EBC28)
¥ Develop and deliver a consistent regional schools engagement programme across the West Midlands, with flexibility to account for variations across the area (such as
city vs suburban locations). (PH4)
Proposed WMCA Role and Ownership
WMCA to enable, with local authorities leading on local implementation.
Stakeholders / Consultees
Schools, local authorities (air quality, public health, and communication teams),
TfWM, communities and external organisations.
Indicative Two-Year Costs and Sources
Establishment of the region wide programme and initial delivery of the work package
expected to be in the region of £100,000.
Risks
Low uptake by schools (particularly secondary schools) because of lack of time/
resourcing, duplication of work. Lack of officer time leading to fewer schools and a
smaller programme.
Indicative Long-Term Costs and Sources
TBC following feasibility – Expected to be officer time + any identified promotional
costs (£). Potential sources to be investigated, could include Section 106 agreement
or damage cost assessment funding steams (where in place and applicable).
Potential funding request from DEFRA etc.
Dependencies
Sufficient officer time and promotion to provide an effective programme.
Table 5.4: WP4 - General Air Quality Engagement and Behaviour Change
General Air Quality Engagement and Behaviour Change
Package Summary
Produce a public health toolkit (a collection of authoritative and adaptable resources) and toolbox of measures (a package of measures for
implementation) to raise the awareness of air quality issues and how changes in behaviour can have both personal and wider benefits. This should
also include information on general behaviour change on better transport choices and small changes to reduce personal emissions when possible. The
toolkit and toolbox approach will aim to reduce the ongoing resourcing burden, as resources and measures are collated for easier implementation.
Linkages to the air quality communications package is key to disseminate information and ensure the information reaches everyone within the West
Midlands. There will be key interactions with the DEFRA behaviour change project regarding campaigns that could be implemented, and the lessons
learnt.
Expected Delivery
Early stage to full
implementation.
Consisting of Framework Options
¥ Raise awareness of wider general indoor air quality issues, how to manage and potential solutions. (EBC4)
¥ Provide information on how to reduce personal exposure to poor air quality outside of the home and what can be benefits can be. (EBC25)
¥ Develop a small public health toolkit between stakeholders which standardises air quality communications and phrases across the West Midlands to ensure that
communications are consistent and effective. (EBC26)
¥ Develop a toolbox of measures that local authorities can easily implement and have pre-packaged communications packages that local authorities can use to promote
the measures. (PH3)
Proposed WMCA Role and Ownership
WMCA to lead, with local authorities supporting on local implementation.
Stakeholders / Consultees
Local authorities (air quality, public health, and communication teams), TfWM,
healthcare, communities, external organisations, and businesses.
Indicative Two-Year Costs and Sources
£350,000 funding secured through DEFRA for a seven behaviour change
programmes across the WMCA area (covering themes in WP4 and WP5).
Risks
Poor public reach due to lack of coordination in communications, no agreement
on messaging and key messages, conflicting messaging, lack of support within
communities. Lack of officer time leading to a smaller programme.
Indicative Long-Term Costs and Sources
TBC following feasibility – Expected to be officer time + any identified promotional
costs (£). Potential sources to be investigated, could include Section 106 agreement
or damage cost assessment funding steams (where in place and applicable).
Dependencies
Establishment of strong communication channels, agreement on messaging,
frequency, and style. Lessons learnt and outputs from the WMCA led DEFRA
behaviour change project.
Table 5.5: WP5 - Dedicated Engagement and Behaviour Change Package for Domestic Combustion
Dedicated Engagement and Behaviour Change Package for Domestic Combustion
Package Summary
Produce an effective regional engagement and behaviour change campaign to raise the profile of domestic combustion issues, particularly log burning,
and the steps that can be taken to reduce non-essential emissions and exposure. Many residents are unaware of the health risks that even DEFRA
approved appliances can have on their household’s health and others within the region. Using lessons learnt from the DEFRA behaviour change project
and others (such as the London Wood Burning Project), the package will aim to inform and promote small changes in behaviour to reduce a major
source of PM2.5 emissions within the region. Reducing the level of misinformation and misconceptions regarding log burning and domestic combustion
will be key, as will driving home the real-world health risks. It should be noted that there is the potential to deal with some aspects of domestic
combustion through the planning process, via planning conditions on new development alongside Building Regulations requirements.
Expected Delivery
Early-stage
implementation.
Consisting of Framework Options
¥ To raise awareness of specific air quality issues and potential solutions associated with the use of log burners, fireplaces, and bonfires. (EBC1)
¥ Raise awareness of air quality issues and potential solutions associated with general domestic combustion. (EBC2)
¥ Where solid fuel combustion is required, raise awareness to ensure the correct fuels are used (i.e. dry seasoned wood). (EBC3)
Proposed WMCA Role and Ownership
WMCA to lead, with local authorities supporting on local implementation.
Stakeholders / Consultees
Local authorities (air quality, public health, and communication teams), healthcare,
communities, external organisations, and businesses.
Indicative Two-Year Costs and Sources
£350,000 funding secured through DEFRA for a seven behaviour change
programmes across the WMCA area (covering themes in WP4 and WP5).
Risks
Poor public reach due to lack of coordination in communications, no agreement
on messaging and key messages, conflicting messaging, lack of support within
communities. Lack of officer time leading to a smaller programme. Adverse publicity
when targeting non-essential combustion. Potential cost of living implications for
small minority who have combustion appliances as their main source of heating and
hot water.
Indicative Long-Term Costs and Sources
TBC following feasibility – Expected to be officer time + any identified promotional
costs (£). Potential sources to be investigated, could include Section 106 agreement
or damage cost assessment funding steams (where in place and applicable).
Dependencies
Establishment of strong communication channels, agreement on messaging,
frequency, and style. Lessons learnt and outputs from the WMCA led DEFRA
behaviour change project.
Table 5.6: WP6 - Net Zero and Retrofit
Net Zero and Retrofit
Package Summary
Leverage existing WMCA and local authority net zero initiatives to promote the co-benefits of addressing air quality and Net Zero at the same time,
for example through the WMCA Net Zero Neighbourhood programme. The incorporation of air quality as a greater component and recognising both
the benefit and disbenefits of climate and net-zero action will promote air quality issues and promote changes that reduce emissions and exposure
when implemented. The retrofit scheme will also have the potential to target more deprived areas and reduce the exposure of those most affected by
poor air quality. Links to the changes in indoor air quality because of retrofit could be made, with promotional campaigns undertaken. There are also
opportunities for the new WM-Net Zero research project to support and provide outputs, alongside linkages to other research, such as Framework
option PH5 (Research into the real-world exposure of West Midlands residents (including the differences in exposure based on age and socio-economic
situation) and what measures can be effectively implemented based on the findings).
Expected Delivery
Full
implementation.
Consisting of Framework Options
¥ Metrics for improving air quality, to capture co-benefits from net zero actions and for policy to reduce regional health inequalities. (CNZ1)
¥ Reduce fuel combustion by improving home energy efficiency. (DOM1)
¥ Supporting the transition from gas central heating. (DOM4)
¥ Support landlords and homeowners in accessing grants to retrofit. (DOM6)
Proposed WMCA Role and Ownership
WMCA to lead, with local authorities supporting on local implementation.
Stakeholders / Consultees
Local authorities (air quality, public health, net zero and planning teams), TfWM,
WM-Net Zero, businesses, housing organisations, healthcare, and communities.
Indicative Two-Year Costs and Sources
TBC following feasibility – Officer time (£) from an air quality perspective but tying
into existing packages (£££). Potential sources to be investigated, could include
section 106 agreement or damage cost assessment funding steams (where in place
and applicable).
Risks
Potential costs to lead to meaningful change when based on air quality grounds.
Message getting lost in the net zero messaging. Lack of officer time. Cost of living
crisis impacting affordability of measures.
Indicative Long-Term Costs and Sources
TBC following feasibility – Officer time (£) from an air quality perspective but tying
into existing packages (£££). Potential sources to be investigated, could include
Section 106 agreement or damage cost assessment funding steams (where in place
and applicable).
Dependencies
Continuation of current net zero programmes, net zero neighbourhoods’ expansion.
Table 5.7: WP7 - Planning and Air Quality Assessment
Planning and Air Quality Assessment Considerations
Package Summary
Air quality is a material planning consideration and ensuring that the planning process both promotes and addresses air quality issues is a key aspect
of delivering better air quality outcomes. By having specific aspects of planning identified as best practice consistently throughout the West Midlands,
standards can be raised, and developers know what is required. Some aspects such as air quality positive/neutral (i.e. ensuring that new developments’
transport and building emissions do not worsen air quality; and maximising air quality benefits, while minimising exposure) and health impact
assessments may require a longer-term approach, however they can be powerful tools to reduce future emissions and exposure for both new and
existing residents. There should be a clear process on what should be done when there is a potential negative impact on air quality/public health. This
will ensure it is clear for developers and consultants on what is expected and how this should be dealt with, ideally prior to a planning decision being
made. There is the potential to expand existing requirements for damage cost assessments to fund air quality initiatives and promote higher standards
of development.
Expected Delivery
Business case
to early-stage
implementation.
Consisting of Framework Options
¥ Establish a region wide planning and design for air quality best practice document which will be kept updated with local, regional, and national changes in guidance
and legislation. (PPG1)
¥ Introduce air quality neutral and/or air quality positive assessments into the planning process across the West Midlands. (PPG2)
¥ Including Health Impact Assessments (HIA) in planning applications that consider air quality. (PPG8)
¥ Ensure that there is the sufficient assessment/integration of transport plans and projects (such as area transport strategies and mitigation schemes) to ensure that the
air quality impacts are quantified and where necessary, mitigated. (TRN1)
¥ Land use planning - give preference to developments in locations that minimise the need to travel and/or propose sufficient facilities, which will therefore reduce
operational impacts. (NBE8)
Proposed WMCA Role and Ownership
WMCA to enable/convene, to be led by local authorities.
Stakeholders / Consultees
Local authorities (air quality, public health and planning teams), TfWM and communities.
Indicative Two-Year Costs and Sources
£60,000 to bring in external delivery support.
Risks
Patchy implementation, evolving planning processes, legislation, guidance etc. Political support for additional
planning processes and policy. Lack of officer time. Existing national and local planning policy typically leads
to air quality issues in practice being low in the decision-making process.
Indicative Long-Term Costs and Sources
Officer time (£).
Dependencies
Proposed changes to the National Planning Policy Framework (NPPF), emerging local plans including
enhanced air quality considerations.
Table 5.8: WP8 - Natural Environment
Natural Environment
Package Summary
Through its role as the Responsible Authority to deliver the Local Nature Recovery Strategy and the Natural Environment Plan, the WMCA is best
placed to coordinate on natural environment aspects. To begin with, this will involve promoting the best ways to use the natural environment to
improve air quality within the West Midlands, but also finding ways in which existing methods (such as biodiversity net gain (BNG)) can be leveraged to
promote better air quality outcomes.
Expected Delivery
Early-stage
implementation.
Consisting of Framework Options
¥ Leverage modified biodiversity net gain BNG metrics to improve urban design and reduce exposure to poor air quality. (NBE1)
¥ Working though the Natural Environment Plan to identify best uses of green infrastructure for air quality. (NBE5)
Proposed WMCA Role and Ownership
WMCA to lead, with local authorities supporting on local implementation and policy.
Stakeholders / Consultees
Local authorities (air quality, public health, planning and natural environment teams),
partners, communities, and developers.
Indicative Two-Year Costs and Sources
Officer time (+ DEFRA funding through Local Nature Recovery Strategy Responsible
Authority function).
Risks
Uptake from constituent local authorities, developers (due to costs). Willingness for
developers to engage. Lack of officer time.
Indicative Long-Term Costs and Sources
Officer time (£).
Dependencies
Local Nature Recovery Strategy, adjustment to BNG metrics.
Table 5.9: WP9 - Research
Research
Package Summary
Further detailed research into real-world emissions and population exposure in the West Midlands is key in understanding the best measures and
policy that can be applied. Extensive work is already being performed by WM-Air within the West Midlands, and this has directly informed this
framework and implementation plan, but additional research will enable us to determine the best path to better air quality outcomes. Additionally,
creating new links with research institutions and commercial partners will allow for the research into more complex issues within the region such as
increased road wear and improving road surface materials.
Expected Delivery
Funding secured
to early-stage
implementation.
Consisting of Framework Options
¥ Understand the relative importance of within-region emissions and transported air pollution for WMCA air quality. (MON5)
¥ Research into the real-world exposure of West Midlands residents (including the differences in exposure based on age and socio-economic situation) and what
measures can be effectively implemented based on the findings. (PH5)
¥ Research on the effectiveness of new technologies for reducing pollutant concentrations in the built environment. (NBE12)
¥ Research the sources and methods for effective secondary aerosol formation reduction and how these can be implemented across commercial, industrial and
agriculture. (CIA21)
Proposed WMCA Role and Ownership
WMCA to convene, with WM-Air at the University of Birmingham to lead.
Stakeholders / Consultees
Research institutions, WMCA, Local authorities (air quality, public health, and
communication teams), TfWM, healthcare, communities, businesses, and industry.
Indicative Two-Year Costs and Sources
Utilising existing research streams (£).
Risks
Potential difficulty in providing the resolution required across the region. Additional
data may be required for particular emission sources, which may be expensive.
Indicative Long-Term Costs and Sources
TBC depending on funding coming forward and existing funding streams (££-£££).
Dependencies
Ongoing WM-Air funding and capacity within the workstreams. Finding research
institutions with existing complementing workstreams or where there is funding
available.
Tables 5.10 to 5.12 overleaf provide a summary of the measures that have not been put into a work package but are still a priority over the next two years. The measures
mostly relate to transport, however, there are built environment and other considerations. As with the work packages above, the expected ‘delivery stage’ of the
measures is subject to assessment, feasibility studies, business cases and funding.
Table 5.10: Transport for West Midlands and Local Authority Standalone Measures
Framework Option
TRN4
TRN8
TRN11
TRN15
Measure
Introduction of new Low Traffic
Neighbourhoods and local area
environmental traffic management
measures.
Achieve a zero emission West
Midlands bus fleet by 2030 and
consider use which brings greatest
benefit to areas with poor air quality in
the deployment strategy.
Explore the case for workplace
parking levies and other effective
demand management measures as
part of area strategies for the West
Midlands.
Speed limit reduction (or
dynamic speed limits) on
high-speed roads.
Expected
Delivery Stage
Outline feasibility stage.
Early-stage implementation.
Outline feasibility stage.
Business case prepared.
Proposed WMCA
Role and Ownership
WMCA to convene - TfWM and local
authorities to lead.
WMCA to convene - TfWM and local
authorities to lead.
WMCA to convene - TfWM and local
authorities to lead.
WMCA to convene - TfWM
and local authorities to lead.
Indicative Two-Year
Costs and Sources
Officer time (£).
TBC - Dependant on implementation
timescales, but most implementation
expected to be outside of two years
(£-££).
Officer time and dependant on
appraisal required (£-££).
Delivery of a business case,
estimated to be in the region
of £30,000.
Indicative Long-Term
Costs and Sources
Dependant on specific scheme. Will
have associated assessment and
feasibility costs. Local Transport Plan
and other potential sources to be
investigated. Could include section
106 agreement or damage cost
assessment funding steams (where in
place and applicable) (£££).
Some funding available - ZEBRA
funded 124 zero emission buses and
Coventry All Electric Bus City (£££).
Officer and management time (£-££).
Dependant on scope scheme.
However, officer time and
assessment costs will be
primary costs (££-£££).
Stakeholders/
Consultees
Communities and local businesses.
Communities, local businesses, and
transport companies.
Communities and local businesses.
National Highways,
communities, local
businesses.
Risks
Community and business reception.
Will require detailed assessment
to identify any issues with
redistribution.
Increase to ticket prices. May not
always target the most deprived areas
or those with the highest pollutant
concentrations. Potential for unknown
changes in particulate matter
emissions due to heaver vehicles, but
the change depends on the existing
fleet.
May be difficult to promote politically
across the West Midlands as it will
be an additional cost to businesses/
workers.
Would require political sign
off and National Highways
support. Unknown level of
upgrades required to enforce.
Dependencies
Promotion by local authorities and
appropriate assessment.
LTP implementation.
Promotion by local authorities and
appropriate assessment.
National Highways support.
Table 5.11: Additional Standalone Measures for WMCA, Transport for West Midlands and Local Authorities (1)
Framework Option
TRN16
NBE2
NBE9
NBE11
Measure
Investigate the lowering and
enforcement of speed limits in urban
centres and residential areas to address
localised transport related air pollution
and increase active travel. This includes
further roll-out of 20 mph speed limits.
Promote transport schemes
and road alterations that
include effective green
infrastructure to reduce
exposure to poor air quality.
Creation of Low Traffic
Neighbourhoods and local
area environmental traffic
management as part of the
design of new developments
which promotes sustainable
transport use.
Construction of new high quality cycle tracks and
other cycle infrastructure in accord with West
Midlands cycle network planning, including links
between key developments and key services to
promote mode shift from car.
Expected
Delivery Stage
Outline feasibility stage.
Early-stage implementation.
Business case prepared.
Business case prepared.
Proposed WMCA
Role and Ownership
WMCA to convene - TfWM and local
authorities to lead.
WMCA to convene - TfWM
and local authorities to lead.
WMCA to convene - TfWM and
local authorities to lead.
WMCA to convene - TfWM and local authorities
to lead.
Indicative Two-Year
Costs and Sources
Delivery of a business case, estimated to
be in the region of £30,000.
Officer time (£).
Officer time (£).
Dependant on specific scheme. Will have
associated assessment and feasibility costs. Local
Transport Plan and other potential sources to be
investigated. Could include section 106 agreement
or damage cost assessment funding steams (where
in place and applicable) (£££).
Indicative Long-Term
Costs and Sources
Dependant on scope. Will have
associated assessment and feasibility
costs. Local Transport Plan and other
potential sources to be investigated.
Could include section 106 agreement
or damage cost assessment funding
steams (where in place and applicable).
(£££).
Officer time (£).
Dependant on specific scheme.
Local Transport Plan and
other potential sources to be
investigated. Could include
section 106 agreement or
damage cost assessment
funding (£££).
TBC
Stakeholders/
Consultees
Communities and local businesses.
Communities, local
businesses, research
institutions.
Communities & local
businesses.
Communities, local businesses, road safety teams,
local and national cycling groups.
Risks
Potentially lower speeds in urban areas
may worsen air quality. May need street
feature changes instead and risks road
safety.
Promoting green
infrastructure that is
effective. Long term
maintenance costs. Space
constraints.
Will require detailed assessment
to identify any issues with
redistribution. Investment in
alternative transport and cycle
lanes etc.
Getting the required funding. Ensuring that the
cycle lanes are fit for purpose and that modal shift
occurs due to changes in behaviour. Minimising
impacts on existing congested areas.
Dependencies
Promotion by local authorities and
appropriate assessment.
LTP and Natural
Environment Plan
implementation.
Promotion by local authorities
through transport and planning,
and appropriate assessment.
LTP implementation.
Table 5.12: Additional Standalone Measures for WMCA, Transport for West Midlands and Local Authorities (2)
Framework Option
PPG14
PPG19
Stretch Air Quality Targets
Measure
Continue to roll out school streets
programmes to reduce traffic and
emissions in the vicinity of schools when
there is transient exposure.
Provide training for members/decision makers/
local authority officers through a standalone air
quality literacy training programme to ensure
they are up to date on air quality matters.
The adoption of stretch targets which are more ambitious
in terms of timescales and pollutant concentration targets
than the UK Government air quality targets. These should be
closer to World Health Organisation (WHO) targets for NO2
and PM2.5 to benefit public health.
Expected
Delivery Stage
Full implementation.
Full implementation.
Business case prepared and targets agreed.
Proposed WMCA
Role and Ownership
WMCA to convene - TfWM and local
authorities to lead.
WMCA to lead.
WMCA to lead in partnership with a delivery partner (such
as WM-Air).
Indicative Two-Year
Costs and Sources
Dependant on specific scheme. Will have
associated assessment and feasibility
costs. Local Transport Plan and other
potential sources to be investigated.
Could include section 106 agreement or
damage cost assessment funding steams
(where in place and applicable) (£££).
Funded through the DEFRA Air Quality grant.
Delivery of a business case and research, estimated to be in
the region of £25,000, assuming WM-Air can be mobilised
to support on the work with their regional air quality model.
Indicative Long-Term
Costs and Sources
TBC
Officer time and programme running costs (£).
N/A
Stakeholders/
Consultees
Communities, local businesses, police,
road safety teams and transport
companies.
Members and local authorities.
Members, local authorities, research partners.
Risks
Impacts on parents where there aren’t
viable alternatives to travel to school
safely. Ensuring issues are not displaced.
Promotion will be required to ensure uptake.
Adoption across the region within air quality policies is key to
ensure that the region has a common goal. Reliant on funding
and adoption of Framework measures. Transboundary
emissions are outside of the control of the region.
Dependencies
Continued support and implantation by
TfWM and local authorities.
DEFRA Air Quality grant.
Utilisation of the WM-Air regional model for efficiency.
Support from local authorities.
6. Delivery and ways of working
We are committed to making the work delivered
through this Air Quality Framework Implementation Plan
as open and transparent as possible. The WMCA is in
the process of developing an air quality website where
progress against our different projects/programmes
will be shared. This will include a map illustrating the
location of sensors with near to real time data on air
quality across the WMCA region. Constituent local
authorities will be able to add data and shape the
website where possible. We will also look to publish
data through the WMCA Environment and Energy
Dashboard (which will be live in 2024).
Throughout our delivery, we will be evaluating the
success of our projects and programmes. Given the
diverse nature of our projects, there will not necessarily
be a single approach to monitoring and evaluation; each
project/programme will have its own methodology.
There is also a commitment to provide regular updates
to both the Environment and Energy Board, Transport
Delivery Overview and Scrutiny and the Strategic
Transport Board (outlined in the governance below).
¥ Greener Together Citizens’ Panel
The Greener Together Citizens’ Panel has also developed a number of guiding principles for our air quality project
implementation and we are committed to working with these and the Panel hereon in. Bringing a representative
group of citizens together is a powerful way to understand both acceptability and need for putting particular
programmes and infrastructure in place, as well as to shape the way we deliver them. An initial report from the
Greener Together Citizens’ Panel on air quality is available here.
For wider input and consultation, we also have the opportunity to discuss air quality related issues with the
Greener Together Forum, a quarterly meeting open to anyone to attend.
¥ Implementation and Action
The establishment of a Framework Delivery Group, defined ways of working and defined governance will guide
the Framework programme forward in an efficient manner. This will ensure that there is representation from
relevant stakeholders and that work is driven forward in a responsible way, whilst maximising outcomes across
the West Midlands. More details on the Framework Delivery Group can be found in
Section 7.
Some packages and measures will require additional assessment, consultation, and funding. As such, there are
varied levels of targeted delivery within the two-years this document covers. Typically, the implementation target
for the larger and more complex packages and measures will be more towards feasibility and securing funding.
This is to ensure that the packages and measures are appropriately appraised for impacts, communities are
consulted and that the funding and resourcing is in place. This should not be seen as a lack of ambition, but as
a drive to proceed with more complex action across the region as quickly as possible, in a way that is measured
and can have the most meaningful impact. Detailed feasibility studies and business cases will also enable partner
organisations such as WM-Air to assist with complex package appraisal to quantify the changes on communities
and optimise health and economic outcomes.
Many of the engagement and behaviour change, communications and monitoring and digital packages can begin
quickly and achieve early-stage to full implementation within the two-year period covered by this document.
These packages have the potential to provide cost-efficient changes in behaviour that can reduce health impacts
and make small changes to reduce emissions. Through secured DEFRA funding and the Framework, the increase
in regional cooperation and coworking will provide a strong base to implement the larger regional packages and
measures in the shortest timescales.
Finally, any projects and programmes will be subject to sign-off through the WMCA’s Single Assurance Framework.
7. Governance and financing
To ensure that the Framework is delivering for the whole
WMCA, we will establish an Air Quality Framework
Delivery Group. The Group will form a core membership
comprising the 7 constituent local authorities, WMCA
and TfWM. This will also facilitate engagement with air
quality partners (as identified in the Environment Act,
2021) as well as bringing additional expertise on board
to support different air quality issues that are common
to all partners.
Other relevant partners will either be included in the
Framework Delivery Group itself or brought into task
and finish groups to bring specific expertise forward
as necessary. These additional partners could bring
experience in relation to public health, environment,
research and innovation. Suggestions made through the
consultation process include:
¥ Public health (Directors of Public Health as well
as the UK Health Security Agency)
¥ Local authority representation (air quality,
behaviour change and net zero officers)
¥ Community group representation
¥ Political stakeholder (such as a member of the
WMCA Environment and Energy Board)
¥ A member of the University of Birmingham’s
WM-Air Team
¥ Business representative
¥ Birmingham Airport
¥ National Highways
¥ National Express
¥ National Rail
¥ West Midlands Fire Service
Terms of reference for the Framework Delivery Group
will be established with a proposal to meet quarterly.
The task and finish groups will enable specific
stakeholders to come together around focused/
technical issues such as planning, procurement or
monitoring and data.
It is important that the Framework Delivery Group
compliments existing governance arrangements – this
has been outlined in Figure 5 below. This recognises
that air quality is of interest to both the environment and
transport portfolios at the WMCA. The incorporation of
wider governance arrangements and their role within
the Framework Governance will be agreed by the
Framework Delivery Group.
Resourcing of the Air Quality Framework
Implementation Plan will be critical for success. The
DEFRA Air Quality grant, secured in March 2023, will
support the implementation of some of the priority
measures, especially in relation to behaviour change
and establishment of a low-cost sensor network, and
availability of data to support decision-making across
the region. Bringing in experience from lessons learned
in other project delivery, as well as consolidating the
learning and sharing from projects delivered through
the Framework Implementation Plan will be key. The
successful delivery of other measures will be dependent
on resourcing and business cases and subject to the
WMCA Board approval. Financing and investment into
delivery will be a central element of the Framework
Delivery Group work.
WMCAExternalKey:
WMCA Air Quality FrameworkDirect reportsSupportsWMCA BoardEnvironment andEnergy BoardWMCA Overview
and ScrutinyAir Quality FrameworkDelivery GroupWest Midlands Environmental
Protection Group (WMEPG)
Air Quality FrameworkDelivery TeamThematic Task and
Finish GroupsTransport Delivery Overviewand Scrutiny Commitee(Member Engagment Groups)
Strategic Transport Ocer Groups (STOG)
Transport Support Group (STG)
StrategicTransportBoard (STB)
Figure 5: Proposed WMCA Air Quality Framework Governance Structure
8. How you can get involved
Delivery of the actions in the Air Quality Framework
Implementation Plan will need to be a collaborative
effort. As highlighted in Figure 6, there are multiple
stakeholders that will be important in supporting action
over the two years of this Plan, and then delivering the
remaining ambition set out in the West Midlands Air
Quality Framework.
We will seek to provide opportunities for information-
sharing and collaboration as we deliver the Framework
Implementation Plan. Some of these, including
community engagement events and a conference,
are part of an existing DEFRA-funded project.
If you would like to be kept up-to-date on our work
on air quality, or would like to find out about how you
could get more involved with delivery, then please
email the WMCA Environment Team:
environment@wmca.org.uk
Endnotes
1 Air Quality Framework. https://www.wmca.org.uk/what-we-do/environment-and-energy/air-quality
2 Air Quality Framework. https://www.wmca.org.uk/what-we-do/environment-and-energy/air-quality
3 Birmingham City Council, City of Wolverhampton Council, Coventry City Council, Dudley Metropolitan Borough Council, Sandwell Metropolitan Borough Council,
Solihull Metropolitan Borough Council and Walsall Metropolitan Borough Council.
4 Cannock Chase District Council, North Warwickshire Borough Council, Nuneaton and Bedworth Borough Council, Redditch Borough Council, Rugby Borough Council,
Shropshire Council, Stratford-on-Avon District Council, Tamworth Borough Council, Telford and Wrekin Council, Warwickshire County Council and Warwick District
Council.
5 Environment Act 2021, c.30. Online: https://www.legislation.gov.uk/ukpga/2021/30/contents
6 The Environmental Targets (Fine Particulate Matter) (England) Regulations 2023 (SI 2023/96).
Online: https://www.legislation.gov.uk/uksi/2023/96/contents/made
7
Department for Environment, Food and Rural Affairs (2023) Environmental Improvement Plan 2023.
Online: Environmental Improvement Plan (publishing.service.gov.uk)
8 DEFRA (2023) Air quality strategy: framework for local authority delivery.
Online: https://www.gov.uk/government/publications/the-air-quality-strategy-for-england/air-quality-strategy-framework-for-local-authority-delivery
9
An extensive evidence base on the impact of PM2.5 on health is outlined within the Chief Medical Officer’s annual report 2022.
Online: https://assets.publishing.service.gov.uk/government/uploads/system/uploads/attachment_data/file/1124738/chief-medical-officers-annual-report-air-
pollution-dec-2022.pdf
10
Department of Health and Social Care (2022) Chief Medical Officer’s 2022 Annual Report: Air Pollution. Online Chief Medical Officer’s annual report 2022: air
pollution - GOV.UK (www.gov.uk)
11
Mitsakou C et al. (2022) UK Health Security Agency Chemical Hazards and Poisons Report Issue 28 – June 2022: Updated mortality burden estimates attributable
to air pollution. Online: https://assets.publishing.service.gov.uk/government/uploads/system/uploads/attachment_data/file/1083447/CHaPR_AQ_Special_
Edition_2206116.pdf
12
Zhong J et al. (2021) Atmosphere 2021, 12(8), 983: Using Task Farming to Optimise a Street-Scale Resolution Air Quality Model of the West Midlands (UK). Accessed
online: https://www.mdpi.com/2073-4433/12/8/983
13
WM-Air (2022) Air Quality in the West Midlands: Option Paper Online: https://governance.wmca.org.uk/documents/s6510/Appendix.pdf
14
Wood Group UK (2022) Study to identify potential measures to reduce future PM2.5 concentrations to inform PM2.5 target development.
Online: https://uk-air.defra.gov.uk/assets/documents/reports/cat09/2302091627_Wood_Sector_Review_Report.pdf
Appendix A - Glossary
Table A.1 – Glossary of Terms
Term
Meaning
Air quality (dispersion) model
An air quality dispersion model is a computer-based tool to predict how pollutants emitted from various sources, such as roads and
industry disperse and affect the air quality in a specific geographic area. The models require various inputs including meteorological data,
traffic data and emission inventory data to predict pollutant concentrations over a set time period (usually one year). They are predictions
as there is inherent uncertainty and variability, however this can be minimised by using accurate inputs and validating models against
known concentrations. Predicted data can be used to estimate pollutant concentrations in the future, however they are subject to greater
uncertainty.
Ambient air quality
The quality of the air in the outdoor environment
AQAP
Air Quality Action Plan - a comprehensive strategy developed and implemented by local authorities to address air quality issues and
improve air quality within a specific area, typically an Air Quality Management Area. These plans are a key component of the Local Air
Quality Management process and are designed to mitigate air pollution and protect public health and the environment.
AQ-LAT
A tool developed by WM-Air to estimate the future health and healthcare costs and benefits associated with changes in fine particulate
matter and nitrogen dioxide concentrations in the West Midlands Combined Authority area.
AQMA / Air Quality
Management Area
A designated area in the United Kingdom where air quality objectives and standards for specific air pollutants are not being met or are
at risk of not being met. Local authorities declare Air Quality Management Areas to address and manage air quality issues in certain
locations. The primary purpose of designating an Air Quality Management Area is to take targeted actions to improve air quality within
that specific area.
ASR
Annual Status Report - a document that provides an overview of air quality in a specific area, typically at the local authority level. Local
authorities are responsible for monitoring and assessing air quality within their jurisdictions, and the ASR is a key component of the Local
Air Quality Management process.
Automatic air quality monitor
A device or system designed to continuously and automatically measure and record various air quality parameters in the ambient
environment. Typically, these are of 'reference' or 'reference equivalent' standard and can provide the most accurate monitoring data
when properly calibrated and maintained.
Biomass (combustion)
Organic materials, typically of plant or biological origin, that can be burned to produce heat or energy. Biomass combustion involves
the burning of these organic materials, such as wood, agricultural residues, and other bio-based fuels, to generate heat, electricity, or
other forms of energy. The burning of sustainable biomass is seen by some as one net zero solution, however there are local and regional
air quality issues associated with the burning of biomass due to the releases of pollutants such as particulate matter. Using log burning
appliances to burn biomass within the home presents a major risk to health due to the pollutants released both indoors and outdoors.
CAZ / Clean air zone
An area where specific measures and regulations are put in place to improve air quality by reducing air pollution. The primary objective of
a Clean Air Zone is to limit the impact of harmful air pollutants, particularly in areas where pollution levels exceed established legal limits.
There are range of classes from A to D, where Class A enforces the least restrictions and Class D enforces the most restrictions on vehicle
types. The Birmingham clean air zone is a Class D.
Table A.1 – Glossary of Terms
Term
Meaning
Constituent local authorities
WMCA member local authorities with full voting rights. This is comprised of Birmingham City Council, City of Wolverhampton Council,
Coventry City Council, Dudley Metropolitan Borough Council, Sandwell Metropolitan Borough Council, Solihull Metropolitan Borough
Council and Walsall Metropolitan Borough Council.
DEFRA
Department of Environment, Food and Rural Affairs
DLUHC
Department for Levelling Up, Housing and Communities
Domestic combustion
Primarily the burning of solid fuels in homes for heating and cooking purposes. It typically involves the use of open fires, wood-burning
stoves, coal fires, and other forms of solid fuel heating and cooking appliances within residential properties. The combustion of solid fuels
in households can be a significant source of air pollution, particularly in areas with a high prevalence of such practices. It also includes the
use of gas appliances for cooking and heating.
FDG
Framework Delivery Group
FIP / Framework Implementation
Plan
The document containing the priority work packages and measures for implementation between 2023 and 2025 and is based on this
Framework Document and inputs from consultees.
Fraction of mortality attributable
to particulate air pollution
A metric used to estimate the proportion of premature deaths within a population that can be attributed to exposure to particulate air
pollution.
Greener Together Citizens’ Panel
A group of 30 citizens of the West Midlands who are participating in a Panel to deliberate on some of the climate and environmental
issues facing the West Midlands. More information on the Panel, and the selection process, can be found here: Greener Together Citizens
Panel (wmca.org.uk)
Guiding principles
A set of considerations proposed by the WMCA Greener Together Citizens’ Panel that should be used as part of the detailed assessment
and implementation of Framework options, work packages and measures.
Indoor air quality
The condition of the air within indoor spaces, such as homes, offices, schools, and other enclosed environments. It encompasses the
presence and concentration of various pollutants and contaminants in the indoor air and their potential impact on the health, comfort, and
well-being of occupants. Maintaining good indoor air quality is essential for creating a healthy and comfortable indoor environment.
LA
Local authority
LAQM / Local Air Quality
Management -
A framework established under the Environment Act 1995 to assess and manage air quality at the local level. It is designed to monitor and
improve air quality in areas where pollution levels may be a concern.
LEZ
Low Emission Zone
Low-cost sensor
A relatively affordable device designed to measure and monitor various air pollutants in the surrounding environment. These sensors are
intended for widespread deployment, enabling individuals, communities, and organizations to access real-time or near-real-time data
on air quality. While they may not provide the same level of accuracy as certified monitoring equipment, they serve as valuable tools for
raising awareness about local air quality issues and for promoting citizen engagement in environmental monitoring efforts.
Table A.1 – Glossary of Terms
Term
Meaning
LTP
Local Transport Plan
MCDA
Multi-criteria decision analysis - a structured decision-making approach that helps individuals or organizations evaluate and prioritize
various options or alternatives when faced with complex decisions involving multiple, often conflicting, criteria or objectives. Multi-
criteria decision analysis provides a systematic framework for assessing, comparing, and ranking these alternatives to make informed
choices.
Measure
A Framework option that has been selected for implementation.
NAEI / National Atmospheric
Emissions Inventory
Estimates of the annual pollutant emissions within the UK based on a range of data sources.
NH3 / Ammonia
A gas emitted from primarily agriculture that can play a major role in secondary particulate matter formation and have an impact on
ecological receptors.
NO2 / Nitrogen dioxide
A gaseous component of air pollution and is often produced by the combustion of fossil fuels, such as in car engines and power plants.
Non-constituent local authorities
WMCA member local authorities with reduced voting rights. This is comprised of Cannock Chase District Council, North Warwickshire
Borough Council, Nuneaton and Bedworth Borough Council, Redditch Borough Council, Rugby Borough Council, Shropshire Council,
Stratford-on-Avon District Council, Tamworth Borough Council, Telford and Wrekin Council and Warwickshire County Council. It also
includes Warwick District Council as an observer with no voting rights.
NOx / Nitrogen oxides
A collective term used to refer to a group of reactive nitrogen oxide, primarily nitric oxide (NO) and nitrogen dioxide (NO2).
NPPF / National Planning Policy
Framework
A planning policy document used in England to guide the planning and development process. The National Planning Policy Framework
sets out the government's planning policies for local authorities and decision-makers, providing a framework for making planning
decisions and shaping land use and development across England.
NZ / Net zero
Refers to the balance between the amount of greenhouse gases emitted into the atmosphere and the amount removed from the
atmosphere. Achieving net zero means that the total emissions of greenhouse gases are equal to the total removal of these gases from the
atmosphere, effectively resulting in no additional increase in the concentration of greenhouse gases. This balance is crucial in the fight
against climate change, as it aims to limit global warming to well below 2 degrees Celsius above pre-industrial levels, in line with the goals
of the Paris Agreement.
Option
A proposed action within the Framework that can be selected for use as a standalone or combined into a work package for
implementation.
PM / Particulate matter
A complex mixture of tiny solid particles and liquid droplets suspended in the air. These particles vary in size, composition, and origin and
can have significant effects on air quality, human health, and the environment.
PM10
Particulate matter with an aerodynamic diameter of less than 10 micrometres.
PM2.5
Particulate matter with an aerodynamic diameter of less than 2.5 micrometres. Also known as fine particulate matter.
Table A.1 – Glossary of Terms
Term
Meaning
Primary pollutants
Pollutants that are emitted directly into the atmosphere because of human activities or natural processes. These pollutants are released
in their original form and are not the result of chemical reactions in the atmosphere. An example of a primary pollutant are gases such as
NO2 produced during combustion.
RAG / Red-amber-green
A traffic light rating system used to indicate the status of a variable using red, amber or green.
SCA / Smoke control area
A designated area where you cannot release smoke from a chimney; and you can only burn authorised fuel, unless you use an appliance
approved by Defra. There are also penalties that can be applied if your chimney releases smoke in a smoke control area or if you buy
unauthorised fuel to use in an appliance that’s not approved by Defra.
Secondary pollutants
Pollutants that are not emitted directly into the atmosphere but are formed in the atmosphere through chemical reactions involving
primary pollutants, atmospheric constituents (like sunlight, water vapor, and oxygen), and sometimes natural sources. An example of this
is secondary particulate matter that is formed from ammonia due to reactions in the air.
TfWM / Transport for West
Midlands
The public body responsible for co-ordinating transport services within the WMCA area.
UK
United Kingdom
VOC
Volatile Organic Compounds
WHO / World Health
Organization
A specialised agency of the United Nations responsible for international public health.
WM-Air
The West Midlands Air Quality Improvement Programme – WM-Air is a NERC funded initiative, led by the University of Birmingham.
WMCA / West Midlands
Combined Authority
West Midlands Combined Authority a regional governing body and partnership in the United Kingdom, established to promote
economic growth, infrastructure development, and improved public services in the West Midlands region. It was created as part of the
government's devolution agenda to empower regions and cities in England with greater decision-making powers and control over local
issues. It was established by statutory instrument under the Local Democracy, Economic Development and Construction Act 2009.
Work package
A group of measures brought together to form a larger package of work.
μm / Micrometre
One thousandth of a millimetre.
Appendix B – Proposed Government Priorities and Actions
The Air quality strategy: framework for local authority delivery policy paper provides an overview of the Government’s priorities and actions to address air quality issues. The
actions will shape changes on a national scale and the West Midlands Air Quality Framework sits below it to realise change on a regional scale.
The priorities are:
¥ Planning reforms helping to deliver on air quality.
¥ Building capacity in local councils through training, guidance and knowledge sharing.
¥ Reducing emissions from industrial sources through improved enforcement of environmental permits.
¥ Reducing pollution from domestic burning through smoke control areas and cleaner fuels.
¥ Raising awareness within local communities of air quality impacts and how to reduce them.
¥ Boosting active travel and public transport to improve air quality.
The actions for the government are as follows:
¥ The government will align air quality reporting zones with local government boundaries, to empower councils, increase transparency and accountability.
¥ The government will work with local authorities to improve the UK-Air website and other air quality web services.
¥ The government will look to strengthen the effect of Smoke Control Areas. We will consult on tougher stove standards for Smoke Control Areas, potentially lowering the
smoke limit for newly installed stoves from 5g smoke per hour.
¥ We will consult on tougher emission standards for Manufactured Solid Fuels reducing both smoke emissions and sulphur levels.
¥ We will explore policies to incentivise a shift from older, more polluting devices towards newer appliances which meet our tough new emission standard.
¥ We will provide updated guidance, templates, and information to support local authorities in reducing emissions from domestic burning.
¥ We will continue to roll out the UK best available techniques framework for large and medium industry, and develop it further to cover new technologies
¥ We are exploring a similar approach for smaller industrial installations, allowing out- dated regulatory standards to be updated more frequently.
¥ We will consider closer alignment between the Local Air Quality Management and permitting regimes, so that swifter, more complementary action can be taken to
resolve local air quality issues.
¥ We will consider how to boost local authority regulatory capacity and capability including exploring how the fees and charges system can be improved to provide better
cost recovery.
¥ We will require that an increasing proportion of car and van sales from each manufacturer are zero tailpipe emission from 2024 onwards.
¥ We are investing in research programmes to develop methods to prevent or reduce emissions from non-exhaust vehicle sources, such as brake and tyre wear.
¥ Through Active Travel England, we will continue to support cycling and walking.
¥ We will consider actions to improve air quality on the Strategic Road Network as part of developing the next Road Investment Strategy 2025 to 2030.
¥ The government will consult on bringing dairy and intensive beef farms within scope of environmental permitting.
¥ We will continue to issue funding to invest in slurry storage infrastructure to reduce ammonia emissions, with an increased budget of £33.9 million made available in
April 2023 and two further rounds to follow.
¥ We will consult on new rules to reduce ammonia emissions from organic manure, including requirements for low emission techniques for slurry and digestate spreading.
¥ The government will develop new guidance on mould and damp for the housing sector.
¥ The government has launched the Air Quality Information System review in December 2021. The remit of the two-year review is to provide a series of actionable,
evidence-based improvements which could be made to the government’s provision of air quality information.
¥ The government will develop a best practice guide on outdoor burning that can be provided to members of the public to help reduce emissions.
¥ The government will share communications assets and other material of wider relevance with local authorities to use in their own communications.
¥ We will consult further on the detail of a combined design stage emission prevention and quantitative assessment approach.
¥ The government will continue considering the responses to the recent National Planning Policy Framework consultation which closed on 2 March 2023.
Appendix C – Framework Contributors and Consultees
Table C.1 - Core Contributors and Consultees (to date)
Organisation
WMCA
TfWM
WM-Air at the
University of Birmingham
Constituent Local Authorities (Air Quality)
WSP
Members
Alex Jones (WMCA
Air Quality Framework
Lead/WSP),
Jackie Homan (Head of
Environment) and
Mike Webb (Natural
Capital Programme
Manager).
Jake Thrush (Associate
Policy Adviser).
William Bloss (WM- Air
Lead),
Joe Acton (WM-Air
Impact Fellow) and
Catherine Muller (Project
Manager).
Birmingham: Mark Wolstencroft
(Operations Manager Environmental
Protection), Paul Burns (Environmental
Protection Officer) and Peter Mackintosh
(Air Quality Projects Officer).
Coventry: Neil Chaplin (Principal
Environmental Protection Officer) and Steve
Dewar (Environmental Health Officer).
Dudley: Ruth Burgin (Pollution Control
Officer) and Ian Grove (Principal
Environmental Health Officer).
Sandwell: Elizabeth Stephens (Senior
Environmental Health Officer) and Sophie
Morris (Public Health Specialist- Air Quality
and Climate Change).
Solihull: Nick Laws (Senior Public Health
Specialist) and Amanda Clover (Senior
Development Officer).
Walsall: John Grant (Environmental
Protection Manager) and Curtis Dean
(Environmental Protection).
Wolverhampton: Shaun Walker (Service
Lead – Environmental Crime).
Air Quality:
Bethan Tuckett- Jones
(Head of Profession for Air
Quality),
Joanna Rochfort
(Air Quality Team Lead),
Peter Walsh (Technical
Director),
Andy Talbot (Associate
Director),
Sioni Hole (Principal
Consultant) and
Lee Shelton (Principal
Consultant).
Behaviour Change:
James Knoll-Pollard
(Behavioural Design Lead).
Planning:
Michael Wood (Technical
Director).
Ecology:
Joe Franklin (Associate
Director), and Vaughn Lewis
(Consultant).
Table C.1 - Core Contributors and Consultees (to date)
Organisation
WMCA
TfWM
WM-Air at the
University of Birmingham
Constituent Local Authorities (Air Quality)
WSP
Framework
working
group
✓
✓
✓
✓
Option
Pre-Screen
✓
Optioneering
and Advisory
✓
✓
✓
✓
RAG
✓
✓
MCDA
✓
✓
✓
✓
(Represented by Sophie Morris)
✓
(Represented by Andy Talbot)
Option
Preferences
✓
Table C.1 - Core Contributors and Consultees (to date)
Organisation
Members
WMCA
Katie Jepson (Environment Behaviour Change Project Officer), Ed Cox (Executive Director - Strategy, Integration and Net Zero) Richard Rees
(Senior Programme Manager – Environment), and Tatum Matharu (Strategic Lead for Health Inequalities).
WMCA Panels / Groups
Transport Support Group (TSG - Heads of Service of the local authority transport departments and TfWM policy officers), Strategic
Transport Officers Group (STOG - Directors of Transport Departments and TfWM Policy, Strategy and Innovation Department Director) and
Transport Delivery Committee (TDC) Air Quality, Congestion and Environmental Sustainability Member Engagement Group, West Midlands
Environmental Protection Group (WM-EPG).
TfWM
David Harris (Transport Strategy and Place Manager), Alex Greatholder (Principal Policy and Strategy Officer), Liam Edge (Transport Data
Researcher), Claire Williams (Head of Cycling and Walking), Mitchell Robinson (Cycling and Walking Development Officer), Stuart Lester (Head
of Transport Data), Helen Osborn (Travel Behaviour Specialist) and Gill Hunt (Travel Behaviour Specialist).
WM-Air at the University of
Birmingham
Suzanne Bartington (WM-Air Health Effects Strand Lead) and Jian Zhong (WM-Air Model Development).
Constituent Local
Authorities – Non air
quality officers
Birmingham: Maria Dunn (Head of Development Policy), Sarah Scannell (Planning Assistant Director), Uyen-Phan Han (Planning Policy
Manager), Chris Baggot (Public Health Service Lead) and Claire Humphries (Senior Public Health Officer).
Coventry: Alicia Phillips (Programme Manager for Inequalities in Built Environment), Emily Stewart (Programme Officer for Inequalities in Built
Environment) and Angelia Baker (Consultant in Public Health and Inequalities).
Dudley: Joanne Todd (Development Manager).
Solihull: Mark Andrews (Head of Planning, Design and Engagement Services).
Wolverhampton: Perminder Balu (Head of Green Cities and Circular Economy.
We acknowledge and thank the attendees of the Framework consultation workshop. The full list of attendees on the day is as follows:
¥ Maddy Dawe (Asthma + Lung UK)
¥ Maria Dunn (Birmingham City Council)
¥ Claire Humphries (Birmingham City Council)
¥ Peter Mackintosh (Birmingham City Council)
¥ Stephen Arnold (Birmingham City Council)
¥ Ian Braddock (Birmingham City Council)
¥ Waseem Zaffar (Clean Air Justice Network)
¥ Emily Stewart (Coventry City Council)
¥ Ruth Burgin (Dudley MBC)
¥ Ian Grove (Dudley MBC)
¥ Christopher King (Dudley MBC)
¥ Gordon Allison (DustScanAQ on behalf of South Coast Science)
¥ Chris Taylor (EarthSense Systems Limited)
¥ David Green (EarthSense Systems Limited)
¥ Greg Lewis (EarthSense Systems Limited)
¥ Kirsten de Vos (Mums for Lungs)
¥ Charlotte Harris (NHS England)
¥ Sophie Morris (Sandwell Council)
¥ Lucy Bastin (School of Computer Science, Aston University)
¥ Nick Laws (Solihull MBC)
¥ Amanda Clover (Solihull MBC)
¥ Tim Egan (Sustrans)
¥ David Clasby (Sustrans)
¥ Ninette Harris (The Dudley Group NHS Foundation Trust)
¥ David Harris (Transport for West Midlands)
¥ Jake Thrush (Transport for West Midlands)
¥ Catherine Muller (University of Birmingham)
¥ Joe Acton (University of Birmingham)
¥ William Bloss (University of Birmingham)
¥ Zongbo Shi (University of Birmingham)
¥ Sue Jowett (University of Birmingham)
¥ James Hall (University of Birmingham)
¥ Damilola Agbato (Walsall MBC)
¥ Pat Fleming (Walsall MBC)
¥ Matthew Griffin (West Midlands Combined Authority)
¥ Bethany Haskins-Vaheesan (West Midlands Combined Authority)
¥ Jordan Gerrard (West Midlands Combined Authority)
¥ Nathan Morrison (West Midlands Combined Authority)
¥ Richard Rees (West Midlands Combined Authority)
¥ Grace Scrivens (West Midlands Combined Authority)
¥ Jackie Homan (West Midlands Combined Authority)
¥ Katie Jepson (West Midlands Combined Authority)
¥ Ritvick Nagar (West Midlands Combined Authority)
¥ Alex Jones (West Midlands Combined Authority/WSP)
¥ Liz Hopkins (West Midlands Fire Service)
¥ Ian Greatbatch (West Midlands Fire Service)
¥ John Newson (West Midlands Friends of the Earth)
¥ Joanna Rochfort (WSP)