Foreword
Contents
1. Introduction .............................................................................................................................................. 5
2. Legislation, Policy, Strategy and Key Updates.............................................................................................. 8
2.1 National ..............................................................................................................................................................8
2.2 World Health Organisation Global Air Quality Guidelines................................................................................12
2.3 Regional.............................................................................................................................................................13
2.4 Local ..................................................................................................................................................................13
3. Air Quality Context....................................................................................................................................15
3.1 Air Quality, Sources and Health ........................................................................................................................16
3.2 National Air Quality Trends ...............................................................................................................................16
3.3 West Midlands Air Quality and Trends.............................................................................................................. 17
4. Introduction to the Framework .................................................................................................................. 23
5. Key Stakeholders, Consultation and Wider West Midlands Strategic Approach............................................ 24
6. Framework Scope and Methodology.......................................................................................................... 26 6.1 Framework Scope..............................................................................................................................................26 6.2 Framework Methodology..................................................................................................................................28
7. Highlighted Options ................................................................................................................................. 32
7.1 Engagement and Behaviour Change ................................................................................................................33
7.2 Domestic Emissions and Indoor Air Quality ......................................................................................................37
7.3 Transport ..........................................................................................................................................................39
7.4 Natural and Built Environment ..........................................................................................................................43
7.5 Commercial, Industrial and Agriculture ............................................................................................................45
7.6 Public Health .....................................................................................................................................................48
7.7 Planning, Policy, Governance and Mechanisms for Change .............................................................................49
7.8 Monitoring and Digital ......................................................................................................................................54
7.9 Climate and Net Zero Considerations...............................................................................................................57
8. Governance and Financing ........................................................................................................................ 59
9. Delivery, Ways of Working and Next Steps ..................................................................................................61
10. Technical Appendices ............................................................................................................................... 67 Appendix A – Glossary...............................................................................................................................................67 Appendix B - Key Pollutant Information, FAQs and Constituent Local Authority Summary......................................70 Appendix C - Framework Contributors, Partners and Consultees.............................................................................76 Appendix D – Option Appraisal .................................................................................................................................79 Appendix E – WMCA Greener Together Citizens’ Panel Guiding Principles in Detail...............................................111
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Coventry
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Solihull
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Birmingham
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Sandwell
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Walsall
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Dudley
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Wolverhampton
Outcomes from Implementation
The outcomes that we hope to achieve through the implementation of the Framework include, but are not limited to:
Reduced exposure to NO and particulate matter (PM and PM ) to achieve better health outcomes for
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people living and working in the West Midlands.
Increased awareness amongst individuals, communities, developers, businesses, politicians, and policymakers of the need to tackle poor air quality in the West Midlands.
Improved monitoring, data collection and communication 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 options such as behaviour change campaigns and/or infrastructure solutions).
Increased regional and national co-working and cooperation to improve air quality 'and hence health outcomes' in the most efficient way possible. This will build upon the work undertaken by local authorities to date, and use the lessons learned to make implementation and outcomes as effective as possible.
This Framework is a statement of intent to do better on improving air quality for the people of the West Midlands, and to create the conditions in which it is easier for people to make choices that protect their own, and others' health from poor air quality. We expect that options and opportunities will change as policy, regulation, targets and innovation allow for different approaches to tackling poor air quality in future, and we will build in regular review of this Framework to ensure that it remains relevant and ambitious.
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Indoor air pollution is affected by both actions that happen indoors, and the quality of the air outdoors. 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. When compared to outdoor air pollutants, there is a different suite of pollutants that are considered (such as volatile organic compounds (VOCs)) and these are outlined in Appendix B. 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 heating/ventilation to prevent condensation leading to damp and mould.
3.2 National Air Quality and Trends
There have been significant improvements in air quality the last 50 years, especially with pollutants such as NO2 decreasing significantly over this period. There is an expectation for this to continue due to the transport fleet moving to lower and zero (exhaust) emission vehicles. Figure 2 overleaf shows the trends in major pollutants, expressed as a percentage change from the base year.
The slowing reduction in particulate matter concentrations over the past 10 years, along with the recognition that the electrification of the vehicle fleet may not in isolation result in further significant reductions in particulate matter, means that they pose a long-term threat to human health. This is because although EVs and other zero-emission vehicles do not produce tailpipe emissions, they produce more emissions from other sources such as brake, tyre and road wear, due to an increase in vehicle weight. Additionally, transport is not the only source of particulate matter, with domestic combustion being a major primary source of particulate matter emissions in most locations (especially in the West Midlands); therefore, the increase in solid fuel combustion seen in recent years has also contributed to the relative stagnation of concentrations.
The pollutant NH3 has traditionally been considered most relevant to the natural environment (as part of nitrogen deposition and through direct toxicity), however, it is becoming more of an important pollutant in terms of human health. This is because it can lead to increased secondary PM2.5 concentrations through chemical processes in the atmosphere. Unlike other pollutants, NH3 concentrations have not reduced in the same way. The vast majority of NH3 emissions are from agriculture, however, it is expected that the contribution from road transport will increase over the next few years due to the increased use of selective catalytic reduction (SCR) to reduce the emissions of internal combustion engine (ICE) vehicles. In addition, a warming climate will increase the volatilisation of NH3 emissions in agriculture (i.e. the release of NH3 gases from fertilisers).
The Joint Nature Conservation Committee (JNCC) report on Nitrogen Futures30 suggests that under the Business As Usual (BAU) scenario, by 2030, NH3 emissions will rise by 1% compared to a 2017 baseline. The reason for this increase is the 11% rise in ‘non-agricultural emissions’, which is includes contributions from emission sources such as waste, transport, nature and industry. This more than cancels out any improvements in agricultural processes assumed under the BAU scenario. As such, even if modifications to agricultural practices are put in place (in excess of those assumed within the BAU scenario), non-agricultural emissions should be a key target for action.
3.3 West Midlands Air Quality and Trends
The environmental, social and economic impacts of NO2 and particulate matter on the region have previously been set out in our Air Quality Options Paper (approved by the WMCA Board in February 2022). 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.
Source Apportionment
As part of the Options Paper, WM-Air undertook a desktop source apportionment study using the National Atmospheric Emissions Inventory (NAEI) using 2019 as a baseline. The source apportionment for primary emissions (i.e. direct emissions) in Figure 3 and dispersion modelling results in Figure 4 and 5 enable the following observations:
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NO2 and NOx emissions in the West Midlands are dominated by road transport. Within this, in most urban UK environments, emissions are typically dominated by older diesel vehicles.
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Primary particulate matter emissions in the West Midlands 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.
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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 how important transported pollution can be, relative to local emissions: 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. CO2).
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Particulate matter, with a lifetime of a few days, bridges this divide: particulate matter levels in the West Midlands reflect both local emissions, and transported pollution from elsewhere.
Whilst it is expected that NO2 will decrease with the move to electric vehicles, projections from the NAEI indicate that we cannot currently anticipate an equivalent reduction in PM2.5 without additional interventions. The WM-Air programme performed a preliminary analysis based on filter samples to identify the main sources of PM2.5 in the air in the West Midlands. The analysis considered the sources contributing to the total PM2.5 present so, in addition to primary emissions from within the region (see Figure 5), it includes particulate matter from natural sources (e.g. sea salt), transported pollution from outside of the region, and particles formed by the atmospheric processing of gases. The three sources which made the greatest contribution to total PM2.5 were secondary inorganic aerosol (particles formed in the atmosphere from gases emitted by traffic, agriculture, high temperature combustion), biomass burning/ woodsmoke, and traffic-related primary emissions – for example from brakes, tyres, road dust. There were smaller contributions from wider industrial activity, biogenic secondary organic aerosol (particles formed in the atmosphere from compounds emitted by plants) and sea salt.
While a broader range of sources contribute to total concentration than is shown in Figure 5 (which only considers direct emission from human-made sources within the region), the analysis confirms that the dominant anthropogenic (human-made) contributions are from biomass burning and road traffic, alongside contributions from combustion, agriculture and industry. Action to address the combustion of solid fuels is therefore a key aspect of improving public health within the region.
* The pie charts show all sectors that make a contribution. Sectors with zero contribution are excluded.
Figure 3.3: Primary (direct) emissions of pollutants by sector for the West Midlands – Drawn from NAEI Data for 2019
West Midlands Combined Authority Air Quality Framework Reference Document
Monitoring and Modelling
Across the region, monitored concentrations of PM and PM are below their respective objectives for England,
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with 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, particulate matter concentrations at monitoring sites are acceptable (although the limited monitoring locations 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 2019 mapping data indicates that ward-average annual mean PM2.5 levels in 72 of the 192 wards within the West Midlands exceed 10µg/ m3. Modelling by WM-Air31 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.
The highest 2021 annual average PM2.5 concentrations in the West Midlands are modelled in central Birmingham, Coventry, Sandwell and Walsall (as shown in Figure 4). This is largely supported by the monitoring undertaken by the WMCA constituent local authorities and published within their ASRs. N.B this modelled dataset is a modified 2016 model and therefore it has limited consideration of changes due to COVID-19.
Based on the WM-Air modelling (though the Air Quality Life Assessment Tool (AQ-LAT)), across the WMCA area in 2021, 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 7.9%. It should be noted that national PHOF fractions (shown 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 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-19 affected years (2020 and 2021). Figure 5 shows that the highest concentrations are next to major roads and urban areas. 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 not to 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.
Summary
The summary of the current air quality situation is as follows:
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The highest annual average PM2.5 concentrations in the West Midlands are modelled in central Birmingham, Coventry, Sandwell and Walsall (as shown in Figure 4). This is largely supported by the monitoring undertaken by the WMCA constituent local authorities and published within their ASRs. More details on current concentrations and recent trends are provided in Table B.2 within Appendix B.
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DEFRA provide air pollution estimates of pollution concentrations at 1km resolution. When data for 2021 is averaged to ward level, these data show annual average PM2.5 levels in 72 of the 192 wards within the West Midlands exceed 10µg/m3 (the Environment Act 2021 PM2.5 target for 2040).
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Modelling suggests that 1.2m people or ca. 40% of the West Midlands’ population live in wards with average PM2.5 levels exceeding the Environment Act 2021 PM2.5 target for 2040/the 2005 WHO guideline level (10µg/m3).
Predicted 2021 Annual Mean PM... Concentrations Based on WM-Air Modelling
PM... Concentration (.g m..) <= 9.0 9.0 -10.0 (2040 Target) 10.0 -11.0 11.0 -12.0 (2027 Interim Target) 12.0 -13.0 13.0 -14.0 14.0 -15.0 15.0 -16.0 16.0 -17.0 > 17.0 Local Authority Boundaries
Figure 3.4: Predicted 2021 annual mean concentrations of PM2.5 in the West Midlands. Drawn from NAEI emission data & WM-Air modelling. Concentration scale based on 10% increments of the 2040 PM2.5 target.
Predicted 2021 Annual Mean NO. Concentrations Based on WM-Air Modelling
NO. Concentration (.g m..) <= 16.0 16.0 -20.0 20.0 -24.0 24.0 -28.0 28.0 -32.0 32.0 -36.0
36.0 -40.0 (UK Limit)
40.0 -44.0 44.0 -48.0 > 48.0 Local Authority Boundaries
Figure 3.5: Predicted 2021 annual mean concentrations of NO2 in the West Midlands. Drawn from NAEI emission data & WM-Air modelling. Concentration scale based on 10% increments of the current long term NO2 target.
4. Introduction to the Framework
The West Midlands Air Quality Framework presents a list of 158 potential options that have been appraised to address poor air quality across the region. After a RAG (Red-Amber-Green) process was undertaken, 145 options have been assessed and weighted to provide a prioritised list of actions. The methodology behind the RAG and option appraisal is described in Section 6.
The scope and scale of each of the options does vary, with several options having overlapping themes and outcomes. This ensures that the Framework can be utilised on an option-by-option basis or to form consolidated work packages. This approach has been used to produce the work packages and individual options outlined within the Framework Implementation Plan.
The volume of options identified is such that they have been grouped to make it easier to navigate the Framework, noting that there are overlaps between the different ‘intervention areas’. These are:
For the purposes of this document, the main options for each of these areas have been presented within the categories above. A complete list is provided in Appendix D which provides shows all options appraised through the evaluation process, along with full details of the scoring applied during each appraisal stage. We have also recognised that there is a significant amount of work already taking place across the region to tackle poor air quality; case studies have been provided to highlight some examples of where this is the case.
As has already been set out, this document is not a strategy, but a live ‘to-do’ list of options to reduce air pollution in the WMCA region and inequality of exposure more specifically. As policy and regulation changes and updates, or as new technology becomes available, the Framework can be refreshed to incorporate those changes.
There are a number of dependencies related to the delivery of the actions identified here. These include:
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Sufficient investment/ financing to implement or sustain activity. There is a grant available to initiate actions, but investment needs to be secured to maintain progress in the long term.
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A policy environment that supports and rewards an accelerated approach to improving air quality, locally, regionally and/ or nationally.
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A willingness to collaborate to deliver projects and programmes where scale provides efficiency and consistency.
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Capacity to deliver the options and actions, as some are more time and resource intensive.
5. Key Stakeholders, Consultation and Wider West Midlands Strategic Approach
Key Stakeholders
Delivering this Framework will require the involvement of a range of different stakeholders from the public, charity and voluntary, research and private sectors. A number of them have been involved in the development of this plan. Identified stakeholders include:
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Government organisations: DEFRA, the Environment Agency, and the UK Health Security Agency (UKHSA).
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Local authorities: the seven constituent authorities have been consulted to date, although we also commit to working with our non-constituent authorities on delivery.
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Health organisations: public health within local authorities and the UKHSA (i.e. what was Public Health England) will be critical partners in delivering the Framework, and supporting its messaging; national groups seeking health outcomes (e.g. Asthma and Lung UK) will also be important partners.
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Universities and the research sector: we have a close working relationship with the University of Birmingham and the research that has been undertaken through the WM-Air project.
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Private sector: working with individual businesses and industry, as well as with business-facing organisations
(e.g. Business in the Community, Sustainability West Midlands, Growth Hubs). We will use our Net Zero Business Pledge to support work in this area.
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Voluntary sector: there are a number of groups supporting awareness-raising of air quality issues, e.g. anti-idling campaigns and awareness about the health issues from solid fuel burning.
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West Midlands communities: Supporting and working with residents across the West Midlands to get involved in protecting, enhancing and restoring nature will be critical to the success of this plan. WMCA’s Greener Together Citizens’ Panel has enabled input from a group of citizens representative of the West Midlands.
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Potential Air Quality Partners: The Environment Act (2021) makes provision for working with Air Quality Partners and these will be critical for the delivery of some of the actions included. Air Quality Partners may be a neighbouring local authority; a designated Relevant Public Authority (such as National Highways); and the Environment Agency.
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 the accompanying Framework Implementation Plan.
As this work develops, our engagement will need to stretch beyond this initial group, bringing in others that will be necessary to help us achieve the scale of intervention required. This will also include broadening the range of businesses involved; bringing significant landowners on board; and stakeholders who can support with understanding the routes to financing.
Draft Framework and Option Consultation
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 to be progressed first. Following the consultation event, feedback and comments were collated, and a decision made to produce a Framework Implementation Plan that details the priorities and additional details on aspects such as timescales and funding.
Wider West Midlands Strategic Approach
This Framework, and the subsequent Framework Implementation Plan, sit within wider strategic policies. Strategic approach, and delivery, is dependent on effective coordination across other WMCA and local authority functions. These predominantly relate to:
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Existing air quality plans (especially local authority AQAPs and strategies)
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Transport plans, including the TfWM LTP, and associated area strategies and implementation plans.
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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.
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Other linked area of work, e.g. regional and local public health and natural environment plans.
These are represented in the diagram below (Figure 6). We expect the Air Quality Framework Delivery Group to work with all these areas as part of delivery (also see governance in Section 7).
Within the areas (boxes) in the above diagram, there are specific plans and strategies that will be relevant to the successful delivery of air quality improvements. For example, 'local authority plans and strategies' 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 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 is for the Framework to support the provision of up-to-date information and action on addressing air quality for inclusion where appropriate.
6. Framework Scope and Methodology
This section highlights the scope of the Framework along with the methodology used to determine and appraise the options for inclusion within the Framework.
6.1 Framework Scope
The scope of this Framework is defined by both geography and powers:
Geography – The WMCA comprises 7 constituent local authorities (Birmingham, Coventry, Dudley, Sandwell, Solihull, Walsall and Wolverhampton) and 11 non-constituent local authorities32. 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.
Powers – Delivering air quality outcomes requires a range of powers. The main ones are highlighted here, including the role of different organisations in delivery.
Table 6.1 shows the organisations and which areas they are responsible for. It should be noted that although some partners have powers for some aspects (such as CAZ responsibility for WMCA), they are not always enacted. As such, anything that can be delivered by WMCA, constituent local authorities or partners is within the scope of the Framework. Options which fall outside of the scope of the Framework typically are those which rely upon Government to promote or are not implementable within the current powers. Each option also has an indicative WMCA role assigned to it, which is as follows:
Table 6.1: 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.
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));
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).
6.2 Framework Methodology
The Framework methodology has been subject to an ongoing development process, with reviews at each stage to ensure that it remains relevant and satisfies the requirements of all parties. As shown in Figure 7, there are nine distinct stages to the Framework.
Figure 6.1: Framework Stages and Workflow
Stage 1:
At the inception of the Framework, and throughout the process, regular discussion and consultation were undertaken with TfWM, constituent local authorities and partners such as WM-Air. These discussions shaped the Framework’s scope and direction, along with specific options which had not been previously identified.
In-person meetings were used to understand what the local authorities and partners would like to get out of the Framework, and to build the foundations for the increased regional co-operation which underlies many of the Framework themes and options within them.
Stage 2:
To develop the Framework in more detail, a significant number of air quality professionals were consulted at different stages. This includes representatives from WMCA, TfWM, University of Birmingham/WM-Air, air quality representatives from the constituent local authorities and Framework consultant WSP. Table C.1 in Appendix C outlines the members and who contributed at each stage. This list does not include the wider collaborators and consultees who are listed in Table C.2 in Appendix C. The WMCA’s Greener Together Citizens’ Panel also led the development of principles that should be used to assess the implementation of options outlined in this Framework.
Stage 3:
All options outlined within the initial Air Quality Options Paper33 and other key sources (such as from DEFRA34) were complied with the outputs from Stage 1 and the ongoing consultation process. Any options which were clearly outside of the Framework scope, or were unlikely to be within scope in the future, were excluded from the longlist. Typically, omitted options include measures and policies that could only be implemented by the government; measures to remove pre-existing permitted processes and installations that are not permitted by the local authorities; and measures where lobbying could be undertaken, but there is no direct action possible at this time. All options which may be at all feasible or within the scope of the Framework were carried forward, which enables them to be utilised as soon as possible where required. When the Framework and/or Framework Implementation Plan are reviewed, if there are policy changes or additional powers have been given to the region, any options that were excluded based on the above can be reconsidered.
Stage 4:
A RAG rating system was used to summarise qualitative indicator values, where green denotes a ‘favourable’ value, amber a ‘neutral’ value and red an ‘unfavourable’ value. The four indicator values cover a wide range of key areas and were deliberately qualitative, so that there would not be a preference towards specific options which do or do not have different types of evidence to support them.
Table 6.2 shows the four key indicators and the rationale behind their inclusion, and Table D.1 in Appendix D details the specific criteria used to determine if a red, amber or green rating would be applied to each indicator.
An additional ‘objection to inclusion’ indicator was added to enable an objection to be raised to the continuation of the option, based on professional judgement, officer opinion or other justifiable reasons.
An option was stopped from proceeding to the final Framework shortlist if there were two ‘red’ ratings from the four main indicators and/or a ‘red’ rating given based on an objection. This was to ensure that only options that had a realistic chance of implementation would be appraised further. Table D.2 in Appendix D shows the results of the RAG grading.
Stage 5:
To appraise the shortlisted Framework options, a qualitative multiple-criteria decision analysis (MCDA). MCDA is a systematic approach used to make decisions when multiple criteria or factors need to be considered. It provides a structured and systematic framework to support decision-making by considering multiple criteria. Given the nature of the Framework, it will also assist in clarifying objectives and facilitating the evaluation and comparison of alternatives, leading to more informed and transparent decision-making processes. As with the RAG rating, the criteria were deliberately qualitative, so that there would not be a preference towards specific options, which do not typically have quantitative evidence to support them. The aim is for a more detailed assessment of the options to take place at any funding stage should it be required.
The MCDA matrix can be found in Table D.3 in Appendix D. The core groupings for each of the criteria (and the weightings) and the criteria themselves are as follows:
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Health (40% weighting) » Improvement to human health » Exposure and/or emission reduction and/or promote long-term behaviour change » Protect and enhance social and health equality
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Spatial impact (10% weighting) » Scale of benefit within WMCA’s area » Address hotspots/areas of existing and future exceedance
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Alignment with local and national measures/policy (15% weighting) » Compatible with achieving Environment Act 2021 AQ targets (PM2.5) » Accelerate local authority AQAP/CAP measures
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Cost, implementation and timescales (25% weighting) » Implementation feasibility » Timescales for the effective first implementation » Indicative implementation cost » Health cost-benefit
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Co-benefits (10% weighting) » Accelerate the transition to a low-emission economy (including net-zero and climate co-benefits) » Facilitate regional economic growth and ambition
Table C.1 in Appendix C outlines the people who contributed to the MCDA stage. The appraisal and scoring for the MCDA process were agreed upon between the MCDA appraisal team and primarily undertaken as a group in person. This was to ensure that ideally a group consensus can be formed or, where there are disagreements, these can be discussed and then either agreed upon or a compromise made. Given multiple options for each theme would be considered and it is a high-level assessment of the options, this was seen to be the most robust way of appraising the options.
Stage 6:
Once the options had been appraised, an overall review of the MCDA group weightings was undertaken to check that they achieved the right balance. The only changes that were made were to uplift the health weighting and slightly downgrade spatial impact and alignment with local and national measures/policy. Once the options had been weighted, they were ranked based on their position within their theme sub-category (i.e. the transport sub-category within engagement and behaviour change); rank within the theme (i.e. within engagement and behaviour change); and rank within all Framework options.
The ranking process aided the selection of the key options (as highlighted within Section 7); a full breakdown of the appraisal and scoring can be found in Table D.4 in Appendix D.
Stage 7:
At the July 2023 WMCA Environment & Energy Board, a draft version of this document was endorsed, which enabled it to go to consultation. A targeted consultation event was held in August 2023 and is outlined in Section 5.
Stage 8:
Following the consultation, the feedback and comments were analysed, and modifications made to the draft Framework where required. In addition, the suggestions on options to be taken forward over the next few years were collated and incorporated into the Framework Implementation Plan. The Framework Implementation Plan was endorsed by the WMCA Environment & Energy Board in September 2023, alongside being presented to various WMCA/TfWM boards and panels.
Stage 9:
Following approval by the WMCA Board, actions outlined within the Framework Implementation Plan can be progressed, alongside the establishment of the Framework Delivery Group. More details on implementation and governance are detailed in Section 8.
7. Highlighted Options
This section includes both the options that have scored highly in the analysis undertaken and any that the appraisal team wish to highlight. The complete list of options sorted by ranking and with associated detail, can be found in Appendix D. This section outlines the potential priority options, either because of the impact they will have or because they are things that can be delivered quickly and/or with minimal budget. The Framework Implementation Plan includes details on the options taken forward in 2024-2026, however the remaining options are able to be selected and implemented in isolation.
The Framework lists all potential actions, none of which have yet been approved to be taken forward. The Framework Implementation Plan identifies the initial priorities for action, however, taking any of these actions forward will be subject to WMCA and local authority governance processes. Where required, additional business cases and detailed assessment will be produced for WMCA board sign off.
This section outlines some of the areas where there is potential for people to make changes that will directly benefit their health and immediate environment in relation to air quality. However, it is important to recognise that, for many, there need to be changes in infrastructure, affordability and ease of access to enable them to make better choices; this section does not therefore sit in isolation from the options described in Sections 7.2 – 7.9 below. The highest-ranking behaviour change options, along with selected options that the appraisal team wish to highlight have been included here (with the full list provided in Appendix D). They focus on:
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Reducing solid fuel burning inside and outside the home;
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Supporting active travel and reducing car use;
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Providing better information to support decision-making through web platforms and interactive digital solutions; and
•
Linking green space, and what people and communities can do, to improve air quality/ reduce exposure to air pollution through the uptake of natural environment measures.
This will form a significant part of the WMCA’s work on air quality over the next two years through a DEFRA air quality grant. This work will build on some of the activity that is already taking place in our local authorities. This is described in the case studies highlighted here.
In March 2023, the WMCA was awarded just under £1m of DEFRA funding to develop engagement and behaviour change campaigns in conjunction with its local authorities. The work will take place over 2 years and will include:
•
21 community events to raise awareness of air quality as an issue;
•
7 in-depth behaviour change campaigns to try and identify ways we can work with people to improve air quality outcomes across the West Midlands;
•
An air quality literacy training programme to support policy officers and decision-makers; and
•
The development of a communications tool kit to support consistent messaging on air quality issues across the region.
In addition, the WMCA has worked with the Greener Together Citizens’ Panel to consider some of the options that have been put forward through this Framework and to take feedback on the acceptability and urgency of implementation. Their thoughts have been included in this document.
Following the challenge of improving air quality in Sandwell, and after receiving an Air Quality Grant from DEFRA in 2021, Sandwell Metropolitan Borough Council are using eight EarthSense Zephyr air quality monitors and a public portal to deliver live air pollution data to faith centres and their communities. The services are being used by faith leaders to raise public awareness of air pollution in Sandwell and demonstrate how people can adjust their everyday behaviour to minimise personal exposure and improve local air pollution levels.
The Zephyr monitors were positioned outside 8 different faith centres across the borough in 2022 and have been relocated to 8 new faith centres in 2023. Measured and modelled data for NO2 and PM2.5 is available on a public data portal which is displayed on TV screens inside the main areas at each faith centre. Air pollution data can be accessed by faith communities and the wider public through computers, tablets, or smartphones, enabling individuals to identify areas of pollution and potential personal exposure across Sandwell.
Sandwell Metropolitan Borough Council has also developed a toolkit for faith leaders that provides information about indoor and outdoor air pollution, methods for community engagement, and a range of options and actions that all support the aim of reducing local air pollution. All centres also receive a monthly Faith Centre Air Quality newsletter, with a different air quality theme each month. By using the public portal, the toolkit and support from council air pollution officers, the council is helping faith groups to find and engage with simple pollution reducing interventions.
A conference was held in November 2022 for faith leaders to report their experiences and to offer advice to the next eight centres. Many positive actions were reported, including tree planting, car free days, anti-idling campaigns, free bicycle repair workshops, garden planting as well as the adoption of energy reduction measures in their centres and homes. In response to faith centre feedback, all centres now have an air quality notice board, which increases the level of information than that just displayed on the public portal and can also be used advertise activities that support better air quality, i.e. learn to ride sessions, walking groups, led bicycle rides and energy saving sessions.
To raise awareness of specific air quality issues and potential solutions associated with the use of log burners, fireplaces and bonfires. EBC1 1 (6.05) A reduction in solid fuel combustion and exposure. Raise awareness of the risks to health, how to reduce exposure and promote a reduction in use through behaviour change. To best disseminate information, the use of trusted messengers, community voices, influencers and celebrities could be used to promote key information, make it relatable and ensure it is heard. Testimonials can also be used to promote the benefits of change. Both inclusive and modern forms of communications (such as Instagram and TikTok) should be used where appropriate. A public arts programme with high profile and visual messaging could bring a sense of community to messaging and helping to achieve wider impacts and engagement. Enable £50-100k; and <1 Year
Leverage campaigns for public transport, walking and cycling to promote the various co-benefits (including emissions and health) along with exposure mitigation. EBC10 2 (5.95) Accelerate modal shift and co-promote the associated air quality and health benefits. Adding the air quality aspect to active travel and public transport to advice on common perceptions (such as increased exposure) and look at the wider environmental, cost and health benefits. Tie in with existing active travel schemes and initiatives such as Smarter Choices and Modeshift. Lead £100-250k; and 1-2 Years
Raise awareness of air quality issues and potential solutions associated with general domestic combustion. EBC2 =3 (5.65) A reduction in solid fuel combustion and exposure. Raise awareness of the risks to health, how to reduce exposure and promote a reduction in use through behaviour change. To best disseminate information, the use of trusted messengers, community voices, influencers and celebrities could be used to promote key information, make it relatable and ensure it is heard. Testimonials can also be used to promote the benefits of change. Both inclusive and modern forms of communications (such as Instagram and TikTok) should be used where appropriate. A public arts programme with high profile and visual messaging could bring a sense of community to messaging and helping to achieve wider impacts and engagement. Enable £50-100k; and <1 Year
Where solid fuel combustion is required, raise awareness to ensure the correct fuels are used (i.e. dry seasoned wood). EBC3 =3 (5.65) A reduction in pollutant concentrations from appliance use and exposure. Right fuel for domestic combustion information campaign. Raise awareness of the effects of using the incorrect fuel (along with the co-promotion in the reduction in solid fuel combustion) and what the associated impacts on health are. To best disseminate information, the use of trusted messengers, community voices, influencers and celebrities could be used to promote key information, make it relatable and ensure it is heard. Both inclusive and modern forms of communications (such as Instagram and TikTok) should be used where appropriate. Testimonials can also be used to promote the benefits of change. Enable £50-100k; and <1 Year
Use health professionals to educate and disseminate targeted air quality information to vulnerable and at risk patients. EBC27 5 (5.25) Provide critical information to vulnerable people and resources on how they can manage and mitigate the risks. Work with health professionals to implement a standardised set of information and resources to reduce the risk associated with air quality exposure. Working with professionals and organisations with an interest in this area will encourage the dissemination of the information from trusted advisors and result in greater awareness and behaviour change. It can be linked to existing and future services (such as air quality warning tools) so that users can reduce the risk of complications and benefit both themselves and the healthcare system. Enable £100-250k; and 1-2 Years
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 6 (5.20) Produce effective behavioural change through a reduction in the sale and use of combustion sources in the home, resulting in reduced pollutant concentrations and exposure. A more personal approach to engagement is likely to produce results and similar approaches have been done by Public Health Scotland/University of Sterling where monitoring in homes was used for second hand smoking impacts. Enable £50-100k; and 1-2 Years
Engage with council and private EBC6 7 (5.10) An increase in the visibility of Advice and toolkits can be developed to provide information and upskill those in the industry (as those Convene Officer time only and/
housing organisations to increase indoor air quality as a major residents have less control over certain aspects) to have another avenue for information sharing and or below £50k; and
awareness of indoor air quality issue across the housing behavioural change. 1-2 Years
issues and the actions that need industry, to promote more
to be taken to reduce the impacts. action to be taken and mitigation implemented where possible.
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 =8 (5.05) Raise awareness of air quality and the associated issues by providing key information in a digestible format and feasible methods of behaviour change. Through the DEFRA funding that has been secured, compile key monitoring, engagement and behaviour change onto one centralised website which can be used in all communications. This will ensure there is consistency within publicly facing information and becomes a resource which is used for multiple uses including health, planning and STEM. A self-contained website with information covering all areas will be much easier to approach than seven different websites by each local authority. Pooled resources plus specific behavioural change support by the WMCA will shape the website based on resident demand and how it can effectively improve air quality outcomes and promote behaviour change. Lead £50-100k; and <1 Year
Interactive online resources to demonstrate air quality issues. EBC32 =8 (5.05) Use engaging methods to communicate air quality and exposure as an issue in order to promote effective awareness and behaviour change. This could be included within the regional air quality website through specific pages and integration into monitoring aspects. This could include enabling an accessible way for people to look up their local air quality (along with what it means for them). This could then be expanded to show differing scenarios of what widespread behaviour change could achieve and how it could affect air quality and health outcomes. Lead £50-100k; and <1 Year
Use trusted advisors to EBC34 10 (4.75) Effectively deliver air quality The use of trusted advisors rather than from the typical local authority sources is likely to aid both the Enable £50-100k; and 1-2
disseminate air quality messaging information to achieve reach and likelihood of behavioural change occurring. It will also allow for at risk groups to be specifically Years
(including faith leaders, GPs, outcomes such as reduced targeted in the correct setting and to have messaging specifically tailored for them.
nurses, fire service etc). exposure, health awareness
and co-benefits of reduced
pollution.
Ensure that air quality EBC38 11 (4.60) Achieve better air quality Currently, each local authority has its own method and approach to air quality communications, which Lead Officer time only and/
communication and engagement outcomes and knowledge allows for a wide range of topics to be covered in theory. By having specific communication packages or below £50k; and
are consistent and inclusive leading to behaviour and details for specific air quality subjects, campaigns can be more easily co-ordinated on a mass scale 1-2 Years
across the West Midlands (and change through widespread with less time burden on comms teams and officers. Currently, there is little co-ordination between local
modified where necessary) to standardised but effective authorities and communication happen at different times in different areas and the messages differ. A co-
make messaging as clear as communications. ordinated and consistent approach would still give local authorities autonomy on what communications to
possible with the best chance of send, however, the messaging distributed would be consistent (which will also promote time efficiencies)
behavioural change. and the WMCA/partners could aid in the support and enabling of such communications. It is expected
that more widespread communication campaigns occurring at the same time will produce better air
quality outcomes than the current approach.
Provide a centralised online EBC30 12 (4.55) The WMCA could act as a Having a platform and process for reporting ideas and delivering engagement and behaviour change can Lead £50-100k; and 1-2
public resource and/or platform centralised organisation/ enable benefits such as economies of scale and consistent messaging. It will also promote the sharing Years
for engagement and behaviour platform to manage and co- of information, experience and data between constituent local authorities. This option will be initiated
change co-ordination across the ordinate large scale behavioural through the delivery of the DEFRA funding secured.
West Midlands. change to ensure consistency
and use economies of scale to
deliver results for the region.
Provide advice on how residents EBC19 14 (4.40) Reduce exposure to poor air Provide a resource that explains the benefits behind changing behaviour and outlines the co-benefits Lead Officer time only and/
can utilise green spaces to quality during exercise and of exercise and exposure to green spaces. Can provide an inventory of spaces with available maps and or below £50k; and
improve health and reduce outdoor time, whilst promoting cross-reference with WM-Air modelling to show what areas are most suitable for exercise and reducing <1 Year
pollution exposure during health co-benefits. exposure. Will promote positive response, especially in the cases where younger people will be using the
exercise. areas/mums. Where green spaces are within local authority control, more should be done to enhance the
spaces and make the areas more accessible.
Provide information on how EBC20 14 (4.40) Reduce exposure to poor air Provide a resource that outlines the methods to reducing exposure from planning and green infrastructure Lead Officer time only and/
residents can use planting and quality by providing advice on and the benefits this can bring. or below £50k; and
green infrastructure to reduce the most effective methods <1 Year
pollutant exposure and improve of reducing the dispersion
health/wellbeing. of pollutants from emission
sources.
Raise awareness of wider general indoor air quality issues, how to manage and potential solutions. EBC4 19 (3.95) An improvement to general indoor air quality within the home and reduce exposure. Raise awareness of the sources and environmental factors that control indoor air quality, the impact on health and how these can be mitigated. Tie in with minimum energy efficiency standards and potential for regional pass scheme. To best disseminate information, the use of trusted messengers, community voices, influencers and celebrities could be used to promote key information, make it relatable and ensure it is heard. Testimonials can also be used to promote the benefits of change. Both inclusive and modern forms of communications (such as Instagram and TikTok) should be used where appropriate. A public arts programme with high profile and visual messaging could bring a sense of community to messaging and helping to achieve wider impacts and engagement. Enable £50-100k; and <1 Year
Have an open route for EBC39 20 (3.80) Improved air quality outcomes Currently one of the major constraints in terms of air quality communications is the timescales for each Lead Officer time only and/
communication and co-ordination through more effective local authority communication team and then having agreement on what should be delivered. Having or below £50k; and
between communication teams at communications. more open dialogue and then drawing on a pre-prepared package of messages as proposed elsewhere 1-2 Years
the WMCA and local authorities within the options will ease the burden on both the comms and officer side, along with providing more
to be able to effectively co- effective communication.
ordinate and deliver air quality
communications.
Work with existing public health EBC29 21 (3.65) Use existing contacts to Using a mixture of existing channels and new partnerships, disseminate a common message on air quality Enable £50-100k; and 1-2
channels to deliver consistent increase air quality awareness, relating to public health. Years
messaging across the West promote behaviour change
Midlands. through the delivery of
consistent messaging.
This section outlines some of the key options that could be implemented to reduce domestic emissions and improve health outcomes. Domestic combustion is a key source of PM2.5, typically accounting for around 40% of the emissions across the West Midlands region. Domestic emissions have both outdoor and indoor air quality impacts and therefore are a critical part of improving health and reducing disparities in the West Midlands. There are many synergies with the Engagement and Behaviour Change options, however these options are more specific interventions to remove appliances and support changes in behaviour.
There will be improvements forced by net zero initiatives (such as the phasing out of gas boilers), however, the growth in solid fuel appliances (i.e. log burners) over the last few years has significantly increased preventable domestic emissions. In the vast majority of cases, solid fuel appliances are not needed as a primary source of heat and are less cost-effective than using gas or electric heating. As such, reducing the non-essential emissions as much as possible, alongside the other mandated changes, will result in reduced PM2.5 concentrations. Unlike the engagement and behavioural change elements in Section 7.1, the options in this section will require more funding and potential Government support/backing to implement widely.
Work is already underway on some of the options; however, a more consistent national and regional approach will aid the implementation and effectiveness of the options. The highest-ranking domestic emissions and indoor air quality options have been included here (with the full list provided in Appendix D).
Support landlords and DOM6 1 (5.60) Improve the uptake of retrofit Accelerate retrofit programmes which will aid air quality improvements by signposting and supporting Enable £250-500k; and 2-3
homeowners in accessing grants in properties in both rented and applications. Years
to retrofit. owned properties to reduce
emissions across all retrofit
areas.
More stringent requirements DOM7 2 (5.25) Reduce the installations of gas By creating and leveraging more stringent planning requirements where possible (plus the consideration Convene £50-100k; and 5-10
within the planning process for boilers in new builds in advance of the expansion of other methods currently in use), the transition could be accelerated. Otherwise, any years
expediting the transition from gas of the proposed 2025 deadline boilers installed for new builds are unlikely to be replaced before the proposed 2035 phasing out of new
central heating. set by the government. installations.
Reduce fuel combustion by improving home energy efficiency. DOM1 =3(5.00) A reduction in the fuel and energy used to heat and cool the home. In the UK, new homes are typically very well insulated so that in the winter they require less energy to keep warm, however, suffer when it comes to cooling in the summer. Older buildings may be more challenging to warm in the winter but have better properties to keep cooler in the summer. Therefore, tailored advice and changes for each home is required. This could be achieved through expansion of current retrofit programmes and be something that has potential to be expanded upon in devolution discussions in the future. A key area given the changing climate. Lead >£5m; and 2-3 Years
Supporting the transition from DOM4 =3 (5.00) Accelerate the transition from Accelerate retrofit programmes which will aid air quality by signposting and supporting applications. Enable >£5m; and 2-3 Years
gas central heating. gas central heating to improve
both ambient and indoor air
quality.
Smoke control area expansion. DOM8 5 (4.50) Reduce the use of non-approved appliances and move towards cleaner fuels to reduce emissions and improve both ambient and indoor air quality. With the exception of Birmingham, Dudley and Sandwell, there is scope to expand the smoke control areas in the other five constituent local authorities. The expansion of the existing smoke control areas will make it an offense to emit smoke from a chimney, furnace, or other solid fuel combustion appliance (unless the fuel used is an authorised "smokeless" fuel or the appliance is an "exempt" appliance). By providing information through advertising the smoke control area expansions, there are opportunities for both behaviour change in frequency of combustion and the fuel / appliance used. Enforcement of smoke control areas is costly and difficult in some cases, so using it primarily as a behaviour change engagement tool is likely to be the most effective. Convene Officer time only and/ or below £50k; and 1-2 Years
Use the planning process to DOM2 6 (4.30) Reduce the number of solid fuel By using various approaches within the planning process, it may be possible to restrict the installation Convene £100-250k; and 2-3
restrict the installation of new appliances being installed and of solid fuel appliances where planning permission is required. Some local authorities are investigating Years
solid fuel appliances in the therefore reducing potential this, however, there does not seem to have been a legal test to determine how this fits in with permitted
cases where planning consent is new emission sources. development rights.
required.
This section outlines some of the key transport options that could be implemented to reduce road transport emissions and exposure. Transport has been the primary area of action for air quality impacts in recent years, primarily because 80% of the NO2 emissions in the West Midlands region are from road transport. TfWM and the local authorities have responsibilities for transport, with TfWM being the Local Transport Authority (LTA) for the West Midlands and the local authorities having highway authority responsibilities. As an LTA, TfWM has the statutory duty to produce a LTP which sets out policies to promote safe, integrated, efficient and economic transport to, from and within the area, as well as plans to implement those policies.
The recently published West Midlands Local Transport Plan (WMLTP5) core strategy35 outlines the overarching plan for the region. This document sets out the wider strategy, which will then be followed up by four areas strategies and six detailed strategies to cover the ‘big moves’. The objectives for the LTP are centred around ‘5 Motives for Change’, which are “five areas where changing transport could help us better support Inclusive Growth by improving the impacts of transport on people, and the places and environment on which they depend”. These motives are:
•
Sustaining economic success;
•
Creating a fairer society;
•
Supporting local communities and places;
•
Becoming more active; and
•
Tackling the climate emergency.
The avoid, shift and improve framework has been used to create the six big moves which are:
•
Behaviour change;
•
Accessible and inclusive places;
•
Walk, wheel, cycle and scoot;
•
Public transport and shared mobility;
•
Safe, efficient and reliable network; and
•
Green transport revolution.
The “avoid, shift, improve” framework was used to develop each of the big moves and air quality can be improved through the plans that will come forward. However, sufficient assessment needs to be undertaken to ensure that human health is not affected as a result of the implementation of the big moves once the details are presented within the area strategies.
The highest-ranking transport related options, along with selected options that the appraisal team wish to highlight have been included here (with the full list provided in Appendix D). Supporting this is the ongoing work of local authorities and TfWM in delivering electric vehicle charging infrastructure across the West Midlands.
Dudley has long-term monitored NO2 exceedances at several locations within the borough, with the primary cause being road transport emissions. As such, there have been a series of schemes to reduce concentrations by improving traffic flow and therefore reducing emissions from repeated start/stop events.
The Castle Gate Island area forms part of an arterial route into Dudley and therefore there are particularly high NO2 concentrations at these junctions. Funding was secured to undertake a package of measures to improve traffic flow, including:
•
Improvements and upgrades to the pedestrian crossing; and
•
Adding intelligent sensors to the five sets of traffic lights around this Island, this has reduced the start stop burden on vehicles travelling through the area.
In the Wordsley area, there have been monitored exceedances of the NO2 annual mean objective. As such, a package of measures was implemented that included:
•
Alterations to the road layout including adding box junctions and filter lanes; and
•
Upgrading the traffic lights in two key locations to improve the flow of traffic.
Following these changes, it brought an area that previously exceeded the annual mean objective for NO2 into compliance.
TfWM has worked in partnership with West Midlands bus operators since 2019 to secure the largest Euro VI bus fleet in the UK outside London, approximately 2,000 buses. Progress is now being made to upgrade the fleet further, so that all buses will be zero emission electric, or hydrogen powered, by 2030.
Since April 2019, over 950 buses have been modified to Euro VI standard through a £21m programme of national, regional and private funding.
To progress further improvements, TfWM, Coventry City Council, and operators were awarded £50m by the Department for Transport in 2022 to help secure an all-electric bus fleet for Coventry. Approximately 300 buses serving the city will be electric by 2025, through the All-Electric Bus Town funding.
Department for Transport “ZEBRA” funding was also awarded to the West Midlands in 2022, for a further 124 zero emission buses, including 24 articulated buses for the Sprint Bus Rapid Transit route between Walsall, Birmingham and Solihull.
Significant investment by National Express West Midlands means that an additional 300 electric double decker buses will be operating in the West Midlands by the end of 2024, in line with the strategy of a 2030 zero emission bus fleet.
Achieve a zero emission West TRN8 1 (6.75) Reduce pollutant concentrations Where there are high concentrations and/or receptors are disproportionally affected, zero-emission/ Convene £50-100k; and 1-2
Midlands bus fleet by 2030 at hotspots and areas with hydrogen buses could be deployed first to see the greatest benefit, following an assessment of fleet Years
and consider use which brings relevant exposure as a priority to deployment. TfWM aims to have all buses be zero-emission electric or hydrogen by 2030. Capital costs of
greatest benefit to areas with improve health outcomes where achieving this zero emission fleet will be ongoing up to 2030.
poor air quality in the deployment is it needed most.
strategy.
Speed limit reduction (or dynamic speed limits) on high-speed roads. TRN15 2 (5.10) To reduce the emissions from vehicles on high-speed roads and the associated exposure to receptors nearby. Typically, the areas around high-speed roads are more deprived and a reduction in emissions will reduce exposure and improve health outcomes. A reduction in speeds has been used successfully elsewhere (typically 70mph to 50mph) as this brings most vehicles into the range of optimal fuel efficiency and a reduction in tailpipe emissions. This could be implemented through a fixed speed limit change, or a dynamic limit triggered by traffic flows or specific air quality limits. Convene >500k; and 2-3 Years
Support and accelerate transition TRN7 3 (4.85) Reduce the emissions Support from an air quality perspective could include funding and grant support, increased ridership Lead >£5m; and 3-4 Years
to zero emission bus fleet. associated with public transport through behavioural change campaigns and making buses more attractive and therefore more
by moving to a zero-emission economically viable to become zero-emission in the shortest period of time.
bus fleet as quickly as possible.
Ensure that there is the sufficient TRN1 4 (4.45) Promote and realise wider Not all transport schemes will have a positive benefit on air quality. Therefore, plans and projects need Lead £50-100k; and 2-3
assessment/integration of benefits to air quality/health to assess both the local health impact on receptors and the wider health outcomes at a strategic level. In Years
transport plans and projects (such and an increased consideration addition, a set of criteria should be set to identify where there is a risk of air quality deterioration, which
as area transport strategies and and mitigation of disbenefits. would then ensure that schemes that would not normally be assessed are correctly assessed.
mitigation schemes), to ensure Transport schemes should not
that the air quality impacts are lead to an increase in emissions
quantified and where necessary, or public exposure.
mitigated.
Reduce parking for new TRN6 5 (4.25) Reduce the reliance on cars and Through the planning process, ensure that transport measures are correctly assessed and where there Convene £250-500k; and 2-3
developments where possible require robust transport options are limited public transport/active travel options, these should be provided at an agreed stage prior to Years
and, where local services are not to ensure the uptake of active completion of the development. In urban areas where there are pre-existing transport links and access
available, ensure that transport and public transport for new to key services, a reduction in car parking spaces should be proposed and alternatives such as car clubs
needs are addressed and are residents. should be investigated.
improved in the local area.
Additional Clean Air Zones/ TRN3 =6 (3.90) Reduce emissions and exposure Through the restriction or charging of non-compliant vehicles, it should detract non-compliant vehicles Convene >£5m; and 3-4 Years
congestion charge zones in key areas through the from entering the area or raising funds by doing so which can be spent on other areas, such as addressing
which consider NO and other 2pollutants. limitation of certain vehicle types, promoting fleet evolution domestic combustion. Current CAZs are used for NO exceedances, so other metrics or a change to the 2triggers would be required for more areas to become part of one. This would be subject to changes to
and gaining revenue to spend on current national legislation on CAZs. However other methods of charging, such as those applied to, the
transformational schemes and London ULEZ could be used, however, this would need to be carefully considered as the West Midlands
projects. and London differ in terms of car ownership and the reliance on car use (both of which could adversely
affect more deprived areas).
Create a route planning tool with TRN24 =6 (3.90) To provide an effective route The end product would provide residents with information that allows them to make informed decisions, Lead >500k; and 2-3 Years
modelled/real time air quality planning tool which both while being a solution which requires just small changes to behaviour. Using the tool would be simple
information so that people can promotes the uptake of active/ change, and when linked to digestible air quality information, has the potential to be effective in reducing
reduce exposure when walking public transport, but also transient exposure. The co-promotion of active and public transport being is likely to be used the most
and/or make the decision to take considers air quality exposure by those who have underlying health conditions which are sensitive to air pollution. These tools could be
public transport. and will therefore allow users tied in or integrated into existing travel planning tools such as Smarter Choices and Modeshift Stars to
to avoid high concentrations if maximise benefits and uptake.
required for health reasons etc.
Investigate the lowering and TRN16 8 (3.55) Assess the impacts that lower The impact of lowering and enforcement of speed limits should be looked at to see if effective schemes Convene >£1m; and 2-3 Years
enforcement of speed limits in speeds and fewer deceleration can be introduced to reduce vehicle emissions as part of a range of traffic management measures,
urban centres and residential and acceleration events will particularly for residential areas. The lowering of speeds is likely to increase the safety of road users and
areas to address localised have, along with the potential pedestrians, which should increase the uptake of cycling and other forms of active transport. However,
transport related air pollution modal shift as a result. This the suite of interventions introduced as part of a speed limit reduction would need to be assessed as a
and increase active travel. This could include changes in tailpipe blanket reduction in speed in some cases can increase emissions from Internal Combustion Engine (ICE)
includes further roll-out of 20 emissions and brake wear from vehicles in urban areas.
mph speed limits. ICE vehicles and wear of parts
on all vehicles.
Designating new & priority bus measures. TRN9 9 (3.50) Promote the uptake of buses by having it as a quick and efficient mode of transport and therefore promoting behaviour change and less car usage. Making the bus network more time efficient and better to use should promote modal shift, and with the move to zero-emission buses, improve pollutant concentrations further. However, there are potential associated short-term drawbacks with increasing bus priority, especially if there is not the expected initial modal shift. This includes additional delay and congestion for car users, which in turn is likely to increase emissions at a time when the majority of the car fleet is still dominated by ICE vehicles. Convene >£5m; and 5-10 years
HGV bans/restrictions in urban centres, including out of hours freight delivery. TRN17 10 (3.35) A reduction in the number of highly polluting heavy goods vehicles (HGVs) and/or the uptake in low emission HGVs leading to reduced pollutant concentrations. Restricting HGVs in urban centres and/or limiting their time of operation should reduce the likelihood that emissions will increase existing pollutant concentrations at times where exposure would be at its highest. Moving the freight delivery time will be a compromise, however, this does have associated issues with staffing to receive such deliveries. As such, investigating the impacts of all potential approaches (including emissions thresholds) would need to be undertaken to appraise in detail. Convene >£1m; and 2-3 Years
Redesign bus stops and other minor TRN23 17 (2.40) Determine key locations to reduce the Create more inviting environments at waiting locations where the exposure to pollution Lead £250-500k; and 3-4
waiting locations (where there exposure of public transport users to poor is reduced by using features such as vegetation barriers and separation from emission Years
will be transient exposure to high air quality by using features to reduce the sources. Avoid putting bus stops in street canyons and enforce zero idling in the vicinity of
concentrations). dispersion of pollutant/moving away from the waiting areas for all traffic, with associated signage.
sources in areas where there is transient
exposure.
Implementation of new road surface TRN22 18 (2.25) To reduce particulate emissions related to There is ongoing research into new road materials, construction methods and treatments. Convene >£5m; and >15 years
compositions/construction methods road wear and resuspension. It is not yet clear which of these will emerge as being a viable and cost-effective method
and road treatments once research to take forward into the future. Additional action is likely to be needed for roads given the
reveals effective solutions. increase in average vehicle weight associated with BEVs, so new approaches are most likely
to be implemented for new roads or when work is being undertaken.
Research and 'test-bed' TRN25 =24 (0.85) Research and utilise new technologies Partner with companies and research facilities to research, test and implement new Convene £250-500k; and 3-4
implementation of new road surface and techniques to reduce pollutant technologies. Years
composition and construction concentrations from road transport.
to reduce particulate emissions,
particularly from Battery Electric
Vehicles (BEVs).
Research and 'test-bed' TRN26 =24 (0.85) Research and utilise new technologies Partner with companies and research facilities to research, test and implement new Convene £250-500k; and 3-4
implementation of new tyre and techniques to reduce pollutant technologies. Years
composition and manufacturing concentrations from road transport.
techniques to reduce particulate
emissions, particularly from Battery
Electric Vehicles (BEVs).
Research and 'test-bed' TRN28 =24 (0.85) Research and utilise new technologies Partner with companies and research facilities to research, test and implement new Convene £250-500k; and 3-4
implementation of road treatments to and techniques to reduce pollutant technologies. Years
reduce resuspension. concentrations from road transport.
Air quality, health and the environment we live in are all interlinked and so ensuring that the environment that surrounds us promotes healthy and sustainable lifestyles is key. The natural environment plays a large role in air quality and the health of towns and cities but, in the past, there has been a reduction in the number of green spaces and vegetation. This is now being improved by mechanisms such as biodiversity net gain (BNG), however more can be done to improve the natural and built environment around us. Many of the options within this section merge improvements the natural and built environments, showing the complementarity between the two.
Access to green space is important for many health reasons, but it also provides spaces for people to enjoy where they are exposed to lower concentrations of many pollutants. Dense treelines and hedgerows also serve important roles, especially when it comes to particulate matter. Such green barriers can reduce the dispersion of pollutants from roads and other sources and reduce concentrations where people may be exposed for long periods of time. However, detailed assessment should be taken as the barriers will inhibit the dispersion of the pollutants and may increase concentrations elsewhere.
The WMCA Natural Environment Plan, published in 2021, sets out a number of actions that will contribute to improving air quality and reducing exposure to poor air quality in local communities across the region.
Specific actions include:
•
Exploration of incorporating tree-lined streets into the finished design for every West Midlands transport scheme which involves redesigning streets and is funded by the Combined Authority.
•
Working with TfWM at the early stages of programme/ project development to include green infrastructure as part of the transport network, e.g. green roofs on shelters, semi-natural habitat into verges /leftover land.
•
Providing support to local community groups to develop a network of accessible open spaces through the Community Green Grant, giving communities the opportunity to access greenspace away from major sources of air pollution.
Further to this the WMCA as Responsible Authority for the development and delivery of the Local Nature Recovery Strategy will explore mechanisms for incentivising the creation of nature-based solutions in urban areas are part of delivering nature recovery, biodiversity net gain and other environmental outcomes.
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 1 (4.85) Use land use planning to reduce the impact of new developments through reduced reliance on private vehicle use and promote active travel. Reducing the reliance on cars and other modes of transport by being near to existing facilities or provide sufficient facilities on site. This will reduce emissions related to travel compared to a site which is further away/does not have any on site facilities. Convene £50-100k; and 2-3 Years
Promote transport schemes and road alterations that include effective green infrastructure to reduce exposure to poor air quality. NBE2 =2 (4.60) Reduce the impact of transport schemes through considered design by ensuring the design is mindful of air quality and reduces exposure as much as possible from the outset. Although transport schemes can be designed to reduce the impact as much as possible (including siting away from areas of exposure and managing traffic flows), additional effective green infrastructure should reduce the impact of any schemes on receptors. Design guides could be produced to ensure that consideration of green infrastructure to improve air quality and the natural environment is considered by all parties during the design phases. Lead £50-100k; and 2-3 Years
Require the consideration of the co-benefits of site Masterplanning and ecological features on reducing exposure to poor air quality. NBE3 =2 (4.60) Reduce the impact of development through considered design by leveraging ecological features within the masterplan that are also designed with air quality benefits in mind. This should reduce exposure as much as possible from the outset. This should reduce exposure as much as possible from the outset, while providing ecological benefits. This could be implemented using design guides and requirement to consider in the planning process. Where possible, green spaces should be protected, enhanced, and made more accessible. Work should also be taken locally to reduce the inequalities regarding green space access. Convene £50-100k; and 2-3 Years
Use damage cost contributions to effectively improve the environment and green infrastructure around new schemes. NBE4 =2 (4.60) Improve the environment in the vicinity of the development and increase the funding available to improve air quality and the natural environment in the surrounding area. By assigning a damage cost methodology (including a clear process on where it should sit within the planning process) the process can be used to either mitigate impacts during the design phase or be used to target air quality and natural environment improvements elsewhere. The process should not be a way to simply let a developer pay their way out of mitigating any impacts but ensure the betterment of the environment as a whole in the vicinity of the development. Convene £50-100k; and 2-3 Years
Increase the use of dense urban vegetation to create barriers between sources of pollution and places of exposure. NBE7 5 (4.35) Use dense vegetation as a barrier to pollutant sources and reduce exposure. Dense barriers are more of an effective method to improve air quality outcomes than planting trees, which are dispersed over a wider area. Key hotspots could be targeted and prioritised to ensure that exposure is reduced where it needs to be and that funding can be targeted. Convene £100-250k; and 2-3 Years
Leverage modified BNG metrics to improve urban design and reduce exposure to poor air quality. NBE1 6 (4.30) Use BNG as a method to drive air quality improvements in design which will aid in the reduction of exposure for future residents and users of the area. By adjusting local/regional BNG metrics to promote measures/features which promote air quality benefits and combining with planning requirements, there can be a shift in the West Midlands towards reducing exposure and embedding that within the design of schemes from the start. Where possible, green spaces should be protected, enhanced, and made more accessible. Work should also be taken locally to reduce the inequalities regarding green space access. Lead Officer time only and/ or below £50k; and 1-2 Years
Use street furniture and natural features to reduce exposure and create barriers at key waiting locations. NBE10 7 (3.70) Leverage new street furniture and natural features in waiting locations to reduce exposure. Where there is significant transient exposure, new street furniture such as bus stops could be installed further away from the road and include dense vegetation as a barrier to pollutant sources and reduce exposure. Convene £250-500k; and 2-3 Years
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. NBE11 8 (3.60) Reduce emissions from vehicles due to modal shift and through considered design of new developments. Increasing the attractiveness and ease of cycling will promote modal shift. In the long-term, the increased uptake of cycling as a regular mode of transport will reduce the number of cars in key urban locations. However, there are short term disbenefits where there may be more congestion due to road works/road space being used to create the cycle lanes and the uptake lag. Enable >£1m; and 2-3 Years
This section outlines the options which could be implemented to address emissions from commercial, industrial and agricultural sources. Typically, many aspects of industrial and agricultural emissions are outside of the remit of local authorities (many permitted by the Environment Agency), however, there are options that can bridge this gap. The options here cover a broad range of areas, with many using existing and potential pathways for implementation, while others may require co-working or support from the Government. It should be noted that the emission sources do vary across the West Midlands, with sources affecting both local and regional pollutant concentrations.
Table 7.5.1: Top 10 Commercial, Industrial and Agriculture Options Ranked by Weighted MCDA Score
Option Framework Option Code Theme Rank (Weighted Score) Targeted Outcome Potential Approach Proposed WMCA Role Estimated Initial Costs and Timescales
NO, SO, VOC, PM abatement X2guidance and providing support on how this can be achieved/ funded. CIA12 1 (4.15) Reduce emissions from plant and installations through guidance, advice and signposting to funding. Work with the Environment Agency to provide tailored West Midlands guidance and distribute through established and new communication channels. Convene £50-100k; and 2-3 Years
Consistent advice, policy and enforcement of dust abatement measures. CIA16 2 (4.10) Reduce the impact of construction on air quality. Through the provision of consistent policy and guidance, construction companies will have a clear understanding of the expectations when working across the West Midlands. As such, a higher consistent standard should deliver results when it comes to reducing dust nuisance and the impact on health. Enforcement will be difficult within the current resourcing for the local authorities. Convene £50-100k; and 1-2 Years
Promote off-site construction and manufacturing. CIA20 3 (3.90) Reduce level of dusty manufacturing within the construction process and reducing local construction emissions. Through the promotion of off-site construction in urban areas, emissions can be minimised by reducing the usage of on-site machinery and dust producing processes. This should have the benefit of reducing the impact of construction at nearby receptors. It will also aid in the re-education of materials wastage and speed up construction, so any pollutants emitted on site will take place over a shorter period. Enable Officer time only and/ or below £50k; and 1-2 Years
Increased scrutiny and consideration of health impacts relating to heat/power generation from biomass/waste/incineration. CIA4 4 (3.80) Ensure that combustion sources are appropriately sited to reduce exposure and emissions are appropriately mitigated. Biomass and other combustion processes can have a significant impact on local and regional air quality, especially when the cumulative impacts are considered. Such additional scrutiny should include more stringent consideration of air quality health impacts, location suitability and appropriate mitigation where required. Alternatives should also be appraised to ensure that all options have been considered. It is also one of the main public concerns when air quality comes up as a discussion as it is very visual, so public feedback and education is also key if such plant is going to be more prevalent in the future. Potential for assessments of existing installations where there is the potential for adverse impacts as well as what could be done to mitigate the impact on public health. Convene Officer time only and/ or below £50k; and 2-3 Years
Discourage investment in biomass fuelled heat/power and potential for regulating biomass combustion plants <1MW. CIA11 5 (3.35) Reduce emissions from smaller plant and promote alternatives which do not have such an impact on emissions and exposure. Through more rigorous assessment of biomass plant and the air quality/climate trade-offs, the viability of smaller scale energy/heat generation should be a requirement, especially in urban areas. Convene £50-100k; and 2-3 Years
Facilitate and promote access to funding for commercial retrofit of heating and cooling systems. CIA9 =6 (3.30) An improvement in heating/ cooling efficiency leading to a reduction in emissions and improvement in indoor air quality. By providing guidance and advice on what current grants and support is available, the uptake of such schemes is likely to be higher and promote a move to more efficient methods and reduce the reliance on on-site combustion. Convene £50-100k; and 1-2 Years
Increase/establish co-working with the Environment Agency to enforce permits. CIA5 =6 (3.30) Reduce the emissions from Environment Agency permitted installations and promote best practice. Enforce compliance and open communication channels for operations which fall outside of the local authority remit by having joint operations and communication campaigns. Convene £100-250k; and 2-3 Years
Reduce fuel combustion in non-domestic buildings by improving energy efficiency through grants and guidance. CIA2 8 (3.05) Reduce local and regional emissions through a reduction in the volume of fuel required. By providing guidance and advice on available grants and support, the uptake of such schemes is likely to be higher and lead to improvements in energy efficiency. New grants through devolution funds/deals will be able to target specific need if required. This may not have a large local impact as it depends on the fuel that is being used. Enable >£5m; and 3-4 Years
Undertake audits of the local authority commercial building stock to determine what measures can be implemented. CIA6 9 (2.85) Assess what can be done to reduce emissions, improve indoor air quality and improve energy efficiency. By understanding what the baseline situation is for the commercial stock, retrofit and upgrades can be made based on priority and impact. Enable £100-250k; and 2-3 Years
Transformation of heating away from the combustion of fuels in non-domestic buildings. CIA3 10 (2.80) Reduce local and regional emissions through a change in the fuel type or heating method used. By providing guidance and advice on what current grants and support is available, the uptake of such schemes is likely to be higher and promote a move to heating methods that do not use on site combustion. New grants through devolution funds/deals will be able to target specific need if required. Enable >£5m; and 5-10 years
This section outlines the options that can be implemented to improve the air quality related health outcomes in the West Midlands. Public health outcomes have also been included in other sections of the Framework, in the spirit of removing siloes, but there are some options that require highlighting in their own right, and that do not sit easily in other parts of the document.
The Government has declared poor air quality as the largest environmental risk to public health in the UK. It has long been recognised that health outcomes are largely determined by the conditions in which people are born, grow, live, work and age. Air pollution impacts health directly and is one such ‘wider determinant of health’ with implications for quality of life among those living in the WMCA area. The impact of poor air quality within the West Midlands is unequal and therefore those who have pre-existing, and long-term health conditions, are disproportionally affected. As such, improving air quality should realise tangible benefits to health and the costs associated with delivering and managing the healthcare for those most affected. Based on the latest evidence36 from the Committee on the Medical Effects of Air Pollutants (COMEAP) and WM-Air modelling data, particulate air pollution is estimated to be responsible for up to 2,300 early deaths per year in the West Midlands37.
There are several partners who have established public health work within the West Midlands. One example is the WM-Air project, which has specific health strands and is developing tools and assessing the real-world impact of air pollution on health. More local authorities are also taking on increased air quality responsibilities within their public health functions Sandwell Metropolitan Borough Council is one example where the air quality officers sit within public health), however a joined-up approach between all of those responsible for air quality and health is key to improving public health in the West Midlands.
The WMCA has a population of approximately 2.9 million people, but life expectancy varies across the region, impacted in part by environmental pollution and air quality. Recognising these differences across the West Midlands, WM-Air researchers have developed the Air Quality-Lifecourse Assessment Tool (AQ-LAT), which uses local population and health data to better understand how the impacts of poor air quality are patterned across the region. The ward-level tool also enables appraisal of regional policies to understand where, and to what extent, health and monetary gains will be achieved from a given reduction in air pollution.
Applying the AQ-LAT, researchers have estimated that air pollution in the WMCA area contributes up to 2,300 early deaths each year. Pollution also increases the risk of long-term health conditions, including over 2000 new asthma diagnoses among adults and children. Reducing pollution to within WHO 2021 Global Air Quality Guidelines would gain ~130,000 years of life for the WMCA population over the next 20 years; with most benefits experienced in Birmingham and Sandwell. These improvements would generate economic savings exceeding £3.2bn over the next 20 years.
Framework
Theme Rank
Proposed
Estimated Initial Costs
Option
Targeted Outcome
Potential Approach
Option Code
(Weighted Score)
WMCA Role
and Timescales
Roll out tools to warn and update residents of poor air quality and supported by regional/local healthcare system. PH1 1 (4.10) Increase awareness of air quality and associated health issues through existing health channels and a tool to help more vulnerable residents reduce their exposure at key times. Reduce the impact of any times where there are heightened concentrations to those who are at risk and/ or have underlying health conditions. This would need to be inclusive to not exclude those who are not digitally literate and would need to be supported through healthcare providers. The tools would need to both warn and outline measures to mitigate risk where required. A potential alert system for residents is being discussed by some local authorities, which would provide more of a local tool than the national system. Convene £100-250k; and 1-2 Years
Develop tools to reduce exposure PH2 2 (4.05) Reduce exposure and increase With increased promotion of active travel and public transport, there is the potential for increased Lead £100-250k; and 1-2
to poor air quality outside of the the awareness of air quality. transient exposure to pollutants when moving around outside the home. A West Midlands route planner Years
home, such as journey planners that includes public and active transport and includes modelled and/or real time concentrations to provide
linked to pollution modelling and alternative routes which would reduce exposure. This can also include a 'tolerance' setting where you
real time data. could set it to just allowing quick detours to avoid the highest concentrations or to allow you to avoid
major roads, at the expense of journey time for when you have more time and can use it as an opportunity
for exercise.
Research into the real-world PH5 3 (3.95) Assess in more detail who Having more insight into real world exposure will allow for the targeting of measures to the areas which Convene £100-250k; and 2-3
exposure of West Midlands’ is being exposed to what need it most. Such research should not discount time spent in exposure hotspots and the impact the Years
residents (including the pollutant concentrations and exposure has, e.g., public transport hubs/children in cars being exposed more.
differences in exposure based target measures to reduce any
on age and socio-economic disparities that exist.
situation) and what measures can
be effectively implemented based
on the findings.
Introduce a West Midlands schools accreditation and education scheme for air quality. PH4 4 (3.80) Increase awareness and air quality outcomes through greater standardised school participation, still allowing for local variations. A West Midlands schools accreditation scheme would need to be both consistent, yet flexible. Having a consistent set of metrics, measures and resources is likely to improve uptake and effectiveness, but there needs to be flexibility in what is being offered as, depending on the setting, different things may be required. For example, there may need to be changes to active transport aspects between urban and suburban areas. Metrics to be used for the accreditation could include roll out of air quality education, transport planning, wider engagement, science, technology and maths (STEM) and making changes to reduce emissions and exposure. Any engagement should complement and enhance the curriculum and be shaped through engagement with schools and educational authorities. There is the potential for working with existing schemes such as Modeshift to benefit both air quality and active travel. Convene £100-250k; and 2-3 Years
Develop a toolbox of measures PH3 5 (3.60) Enable effective (in terms Having a package of approved and consistent measures that are ready to go is likely to improve the Lead £100-250k; and 2-3
that local authorities can easily of cost, time and outcomes) effectiveness of communications and how often they can be deployed. This would also make running Years
implement and have pre. engagement which is easy to concurrent campaigns much easier for communications teams as the packages are pre-approved and are
packaged communications deploy and leads to behaviour ready to be deployed.
packages that local authorities change.
can use to promote the measures.
This section outlines the options that cover planning, policy, governance and the mechanisms for change. Air quality is one of the material planning considerations considered as part of the planning decision-making process and therefore, there are mechanisms that can influence air quality. Although the WMCA does not have any formal planning powers, it is able to convene and enable elements relating to planning, policy and governance. Having consistency wherever possible across the West Midlands will be key to improving air quality as quickly as possible. This is expected to have a range of benefits for the local authorities including reducing the time burden on officers, being more cost effective and more likely to produce results.
There are a range of proposed changes to how air quality could be considered within the planning process and achieve better air quality outcomes for the West Midlands. One major area is assessment best practice/guidance and its subsequent application across the local authorities. Much of the current guidance (such as the West Midlands Low Emissions Towns and Cities Programme) is not up-to-date and is falling behind in terms of methodology and using the planning process to shape air quality. Some local authorities are implementing more up-to-date guidance, however for maximum benefit, there should be a regional approach to assessing air quality within the planning process. It should be noted that this is reliant on DEFRA releasing the proposals for PM2.5 assessment going forward, as proposed within the Environmental Improvement Plan 2023.
There are also distinct synergies with other aspects within the planning process (such as energy, climate and net zero) and establishing what can benefit and harm air quality, and making the appropriate decisions within the planning process, is important. Not all the options relate to the planning process and policy, and there is the potential for the WMCA to optimise some aspects such as:
•
Upskilling and training for local authority officers and members
•
Providing grant and project co-ordination to ensure the West Midlands attains funding where possible
•
Providing a platform to co-ordinate air quality improvements across the region and reduce the duplication of work
As such, the aim should be to promote and enable better ways of working to make sure that these typically more cost-effective measures can have a significant impact on air quality and health.
Birmingham City Council and the WM-Air Project team at the University of Birmingham have co-developed a Climate Risk and Vulnerability Assessment (CRVA) tool that will help communicate climate vulnerability across the city. Climate resilience is a key component of the city’s corporate risk strategy, and the CRVA map provides the means to consider this risk during city planning and design, and to identify areas and communities who will be most, and least, impacted by climate risks. The map of Birmingham uses publicly available data from a variety of sources, scoring 100m grids across each layer, which are then summed to provide the overall CRVA score. The CRVA map identifies those areas of greatest climate risk and vulnerability, and will feed into investment prioritisation decisions and support climate-sensitive development. The CRVA map is also being used for Carbon Disclosure Project reporting commitments.
Air quality is included as two layers within the CRVA map. Including air quality is fundamental to the approach to ensure that air quality implications are considered at the earliest stages of the planning process, as highlighted in the WM-Air Urban Design for Air Quality guidance note. There are many co-benefits of design interventions such as increasing green space or tree canopy cover in tackling liveability, climate and air quality issues.
The adoption of the CRVA tool – which is available to view at ward-level - should place Birmingham as a global leader in transparency and bold climate action. The University and Birmingham City Council have published the CRVA method so that other Local Authorities or regions can produce their own CRVA tool.
Table 7.7.1: Top 10 Planning, Policy, Governance and Mechanisms for Change Options Ranked by Weighted MCDA Score
Option Framework Option Code Theme Rank (Weighted Score) Targeted Outcome Potential Approach Proposed WMCA Role Estimated Initial Costs and Timescales
Introduce air quality neutral and/ PPG2 1 (5.90) Have air quality as a greater Through the setting of 'benchmarks' in the case of air quality neutral, the cumulative impact of all Convene £50-100k; and 2-3
or air quality positive assessments design and planning developments can be reduced, and more stringent standards set in terms of trip generation and parking. Years
into the planning process across consideration by providing Such benchmarks would need to be locationally specific to account for variations in public transport
the West Midlands. more stringent assessment and design requirements. This will have both impact and exposure benefits and aid in ensuring widespread cumulative development is adequately controlled and assessed. accessibility and other barriers to transport. An air quality positive approach would aim to leverage air quality benefits on larger scale developments by requiring air quality to be considered as a core part of the design of a development. This would also include the minimising of exposure and a core outcome would be to demonstrate what measures have been taken to achieve the best possible outcomes for air quality. Both methods elevate air quality further up the agenda in the design and planning process and will have clear benefits.
Scope for a “Net Health Gain” PPG5 2 (5.60) Embed the requirement for air Potentially differing slightly from air quality neutral/positive, net health gain could cover a wider range of Enable Officer time only and/
principle. quality and health improvement within the planning process to reduce cumulative development degrading health and the environment. considerations outside of air quality. It would mean that any new development or proposal for change to existing development should deliver an overall benefit to public health. As such, any new development should be 'clean' by design. For example, a development could be designed to promote active/public transport, access to green space, provide on-site facilities and provide full access to EV charging across the site. or below £50k; and 1-2 Years
Establish a region-wide planning PPG1 3 (5.50) A more homogonous approach This will supersede various documents and be designed in a way which each local authority can add Lead £50-100k; and 2-3
and design for air quality best to the assessment of air their own specific sections in, but will include aspects such as air quality assessments, damage cost Years
practice document which will be quality across the region to calculations, air quality positive design, site suitability assessment and mitigation. However, it will need to
kept updated with local, regional promote and enforce air be consistent in key areas to ensure that assessment undertaken is somewhat standardised and kept up
and national changes in guidance quality improvements over and to date with guidance and regulation changes. Some local authorities are updating guidance, so as soon
and legislation. above what may be required nationally. as new PM assessment guidance is published (and alongside any other developing areas such as net 2.5health gain and heath-based impact assessments), there should be an effort to agree assessment elements through the production of a document that can be used across the region. Green infrastructure and urban heat island considerations should influence heating and ventilation standards that work for all planning aspects (overheating, acoustics, air quality etc.).
Including Health Impact Assessments (HIA) in planning applications and containing air quality. PPG8 4 (5.35) Identify and optimise the health and wellbeing impacts of planning. HIA is a method of systematically identifying the impacts of plans and projects, inform recommendations to promote and protect health and wellbeing and narrow inequalities. It has a wide-ranging brief with some aspects similar to air quality positive but does so over five stages. Given the health impacts that air quality has, it should be a core component of any HIA guidance. Convene £50-100k; and 1-2 Years
Promote district heat networks PPG9 5 (4.90) Centralise the generation of A district heat network would remove the requirement for each household/unit to have a boiler or heat Convene £50-100k; and 1-2
(using heat pumps) for large heat within developments to pump. As such, it may provide more a more efficient heating solution. This includes lower costs for users Years
developments. reduce emissions and both indoor and ambient exposure. and benefit air quality and the climate.
Move away from the IAQM PPG11 6 (4.80) Reduce the standalone and Currently, air quality assessments are compared against impact criteria, which considers changes in Convene £50-100k; and 2-3
assessment criteria to both cumulative degradation of air concentrations relative to an objective. Typically, professional opinion is used to determine if impacts are Years
more stringent thresholds for quality by using more stringent significant. If impacts are determined to be negligible, no mitigation is typically required outside of what
detailed assessment and using and applicable metrics. is outlined in other planning policies. Concentrations that are below 75% of the objective require more
health-based assessment for the change relative to the objective to realise an impact that is not 'negligible'. As such, there is no driver to
quantification of impacts. reduce impacts and improve health outcomes and the cumulative impact of many developments can be missed. The IAQM criteria has not been revised following changes to the future PM targets. 2.5
Provide centralised support for local authorities in areas such as local plan policy to promote consistency and dealing with more complex air quality assessment methodologies. PPG3 =7 (4.20) Promote consistency and accurate decision-making by local authorities through upskilling and support. By providing expert support on complex air quality matters, local authorities who have less air quality specialism/those who don't solely work on air quality are not disadvantaged when it comes to decision-making on-air quality. This will also promote consistency within the local authorities. Lead £250-500k; and 2-3 Years
Table 7.7.1: Top 10 Planning, Policy, Governance and Mechanisms for Change Options Ranked by Weighted MCDA Score
Option Framework Option Code Theme Rank (Weighted Score) Targeted Outcome Potential Approach Proposed WMCA Role Estimated Initial Costs and Timescales
Use mechanisms (such as future local plans) to enforce more stringent regional air quality limits/compliance timescales. PPG4 =7 (4.20) Use proposed National Planning Policy Framework (NPPF) change to enable evidence-based policies to go above and beyond legislation to improve air quality in the West Midlands. Given there are already expressions of interest to go above the 2040 PM targets, using planning 2.5mechanisms to either set more ambitions targets or to reach compliance in a shorter period will have a benefit to health. This would require regional co-operation on guidance, standards, and processes to ensure that development aids any aims. Convene Officer time only and/ or below £50k; and 3-4 Years
Develop guidelines for best practices for procurement that will support air quality improvements (e.g. use of non-road mobile machinery). PPG6 =9 (4.10) Improve air quality through the procurement of less polluting options. Produce guidance that can be adopted within procurement processes to ensure that air quality outcomes are a consideration. This can then be used both internally and externally to promote air quality as a greater consideration, especially if more stringent standards are implemented at some point. Enable Officer time only and/ or below £50k; and 1-2 Years
Provide guidance on how planning will consider the air quality and climate/net zero co-benefits and disbenefits within the planning process and are addressed in a joined-up way by officers. PPG13 =9 (4.10) Have planners and officers responsible for specific areas to discuss co-benefits/disbenefits of specific scheme aspects to better assess applications. There will be some interplay between disciplines when considering climate and net zero. Some actions which are beneficial to net zero goals may not benefit air quality and therefore have an impact on the health of local residents. There will also be instances where a changing climate has an impact on overheating, so that, along with other areas such as acoustics, wind and outdoor/indoor air quality will need to work together. Mitigation requirements should suit all areas when feasible, and solutions are worked out when there are conflicting requirements. Convene Officer time only and/ or below £50k; and 1-2 Years
Table 7.7.2: Selected Planning, Policy, Governance and Mechanisms for Change Options Ranked by Weighted MCDA Score
Option Framework Option Code Theme Rank (Weighted Score) Targeted Outcome Potential Approach Proposed WMCA Role Estimated Initial Costs and Timescales
Have a platform for WMCA and PPG17 11 (4.05) Improved communication and This could take the form of a restricted access collaboration platform so that air quality officers can Lead Have a platform for
local authority officers to share collaboration to reduce the exchange ideas and coordinate air quality campaigns. There are some instances where plans for air quality WMCA and local
ideas and plans for engagement time burden and improve the are not shared until further down the line, when it may have been possible to join up and improve the authority officers to
to ensure that regional roll outs effectiveness of air quality campaign. By highlighting potential ideas and strategies that sit outside of the usual work, it is hoped share ideas and plans
can happen, facilitate knowledge interventions. that a wide range of benefits can be achieved. This can then also be used for grant co-ordination and for engagement to
sharing and leverage combined procurement. ensure that regional
procurement where applicable. roll outs can happen, facilitate knowledge sharing and leverage combined procurement where applicable.
Continue to roll out school streets PPG14 12 (3.90) To reduce emissions and Having school streets programmes that are understood and enforced will reduce short-term hotspots Enable Continue to roll
programmes to reduce traffic exposure in the areas where there will be transient exposure of young and potentially vulnerable people. This can also be a out school streets
and emissions in the vicinity of around schools and create mechanism for wider engagement on air quality within the school community and be used to educate programmes to
schools when there is transient opportunities for engagement adults on air quality and the impacts it has. When properly implemented, there should be active travel reduce traffic and
exposure. and behaviour change with the school community. benefits, but the impacts of programmes on the surrounding area should be considered and alternatives explored if required. emissions in the vicinity of schools when there is transient exposure.
Co-ordinate regional air quality PPG20 13 (3.85) Enable air quality officers to This could be facilitated through another option outlined within this section (such as an air quality Lead Co-ordinate regional
upskilling and knowledge share be able to have specialism in assembly) or as a separate option. There is already extensive knowledge on most areas within the West air quality upskilling
for air quality officers. a wider range and more niche areas of air quality to ensure correct decisions and actions are made. Midlands, but these could be supplemented by partners providing information on topics. This could be in person, or in the form of interactive online sessions to reduce the travel and time burden. and knowledge share for air quality officers.
Table 7.7.2: Selected Planning, Policy, Governance and Mechanisms for Change Options Ranked by Weighted MCDA Score
Option Framework Option Code Theme Rank (Weighted Score) Targeted Outcome Potential Approach Proposed WMCA Role Estimated Initial Costs and Timescales
Provide grant and project co.ordination through the WMCA to ensure that there is consistency across the West Midlands and procurement is effective. PPG18 15 (3.70) Increase the access to and efficiency of grant applications, plus the coordination of procurement to gain associated benefits. Securing the DEFRA air quality grant demonstrates it is possible for large funding bids to be co-ordinated by the WMCA. This reduces the burden on local authority officer time and allows for both greater scope and consistency. This could be set up more formally alongside other options set out within this section or on an ad hoc basis based on funding schedules. Lead Officer time only and/ or below £50k; and <1 Year
Have a centrally managed regional air quality assembly to provide support, guidance and co-ordination for local authorities and to ensure where possible, there is consistency, open communication channels and leveraging opportunities for funding etc. PPG15 =18 (2.90) Increase communication, support and collaboration between local authorities which will promote better air quality outcomes, along with other benefits. The current West Midlands Environmental Protection Group (WMEPG) covers air quality as a core component, but as it covers a range of disciplines (such as contaminated land, LAPPC) and is focused on regulatory/LAQM aspects. As may not be the best mechanism to drive the aims of an air quality assembly. As such, a complimentary assembly to drive aspects within this PPG section will be more focused to drive forward changes. Periodic in person meetings of the core assembly would allow for more in depth and focused meetings and for the discussion of issues which aren't possible in other forums. Convene Officer time only and/ or below £50k; and <1 Year
Coordinate regional approaches to Government on policy and resources to tackle air quality challenges (DEFRA, HMT and key partners, e.g., Environment Agency, National Highways). PPG16 =18 (2.90) Where possible coordinate responses to best represent the interests, and improve the profile, of the West Midlands. By increasing the profile of the work and interests of the West Midlands, this should result in better outcomes, more of a say on policy development and even autonomy on some aspects. This would need to be organised and new communication channels opened to effectively community and co-ordinate quickly on responses. Lead Officer time only and/ or below £50k; and <1 Year
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. PPG19 20 (2.85) Increase the knowledge and awareness of the public health and environmental issues associated with poor air quality. This should help achieve greater consideration and better air quality outcomes when decisions are made. Through the DEFRA air quality grant, a module is being created to upskill people on air quality and the wide-reaching effects it has. This will be similar to the carbon literacy programme that is already being run by WMCA. Lead Officer time only and/ or below £50k; and <1 Year
Monitoring has such a key role within air quality as it impacts many areas including planning and policy. The requirement to monitor key pollutants as part of local authorities LAQM responsibilities means that many local authorities have an extensive evidence base on pollutant concentrations. Now there is an increased focus on particulate matter (particularly PM2.5) the monitoring landscape is undergoing a major change from using primarily low-cost passive methods for NO (such as diffusion tubes), to requiring more costly PM automatic analysers and
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utilising low-cost sensors. In comparison to diffusion tubes, low-cost sensors are much more expensive and require continual annual costs after purchase. However, they do have similar drawbacks when compared to the more costly automatic monitoring – they are not as accurate. Some low-cost sensors (such as the EathSense Zephyr and the South Coast Science Praxis/Urban) have been awarded MCERTS for indicative measurement of dust in ambient air. As such, they can be used as a key indicative tool to understand the relative concentrations and as an engagement tool, but they are not yet able to be used for LAQM purposes/for determining compliance.
With the increased focus on digital and data, being able to capture widespread air quality data in real time through a network of low-cost sensors presents an excellent opportunity. Such opportunities include:
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Use as an engagement tool through a West Midlands air quality website, a visual talking point and highlighting issues by placing monitors in homes;
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An increase in citizen science and science, technology, engineering, and mathematics (STEM) applications;
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Enable a local air quality warning service and rapid modelling capabilities;
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Improve the granularity of source apportionment studies; and
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Identify particularly key pollutant sources and the potential impact on receptors
As part of the increase in low-cost sensor usage, there will need to be regional co-ordination and guidance on their application and use. National guidance on low-cost sensors is due to be published by DEFRA shortly, but in the meantime, careful planning is required to ensure that when deployed, the sensors provide data which has a purpose. Being able to leverage this data is important, so having widespread access to processed data will provide opportunities for research and STEM use.
The WMCA has secured the funding to install a regional sensor network, enabling the roll out of low-cost sensors (accredited to MCERTS) that will measure a range of pollutants, including PM and NO . These will complement the
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existing network of both reference equivalent and low-cost air quality sensors that have been installed by the local authorities.
Importantly, we see the installation of low-cost sensors as an opportunity to be able to make ‘real time’ data on air quality available to everyone across the region, from local authorities, to business, to universities and communities. This will be via a dedicated web platform that will also provide information and news updates related to air quality issues.
To date, due to the high cost of reference equivalent analysers, the wider picture with regards to PM2.5 in particular has relied on modelled data, rather than information that is being collected from locations across the West Midlands. By installing sensors and following a consistent set of standards for the network, we will be able to better understand the regional air quality issues as well as the impact that the different measures are having on improving local and regional air quality.
In January 2022, Birmingham City Council launched its first Clean Air Strategy (CAS) for the city of Birmingham. This innovative strategy seeks to improve air quality across the city and not just in areas where air pollution concentrations are traditionally high. The launch took place at Lea Forest School and was undertaken in conjunction with the first discrete project under the CAS; Air Quality Monitoring in Schools (AQMiS).
The AQMiS project seeks to raise awareness of air pollution amongst primary and secondary school students and teachers and by extension amongst parents. The aspiration is to inspire a culture of behavioural change both in terms of influencing the choice of mode of transit to school and in wider lifestyle choices.
Working in partnership with Airly, the City Council has provided schools across the city with indicative air quality monitors. The sensors provide real-time air quality data for NO2, particulate matter and O3. The monitors include a coloured light which provides a visual indicator of the level of pollution using an air quality index ranging from green to red.
The monitoring solution is also supported by a publicly accessible online platform https://airly.org/en/ and App (available on Apple and Android devices). The platform incorporates a location map which can be used to view the pollutant data in near real time. The project is also supported by provision of educational resources which the schools can use to promote student learning and ultimately engender behavioural change.
The first phase of the project began in early 2022, which aimed at installing 70 sensors across the city. The second phase of the project, which is due to be rolled out in the latter half of 2023, aims to expand the offer to every school in Birmingham and will be funded through the Transport and Environment CAZ Programme.
This project ties in with the Council’s vision for the CAS to be relevant across the wider city and to not just focus on areas where air quality is traditionally recognised to be poor. This is underpinned by the Council’s pledges within the CAS around collaboration, clean air for schools, protecting the vulnerable and measuring progress.
Table 7.8.1: Monitoring and Digital Options Ranked by Weighted MCDA Score
Option Framework Option Code Theme Rank (Weighted Score) Targeted Outcome Potential Approach Proposed WMCA Role Estimated Initial Costs and Timescales
Use a centralised West Midlands MON4 1 (3.40) Improve access to air quality Easy access to data from a large range of sources aids data analysis, which can enable better decisions to Lead £50-100k; and <1 Year
air quality network website as data to aid areas such as be made. An example where a datastore would be helpful is where it could better enable the assessment
a data store to enable various research, planning and of "exposure reduction" and prioritisation of measures to reduce environmental health inequalities. This
analyses such as trends and the evaluation. Collation of option will be initiated through the delivery of the DEFRA funding secured.
quantification of the impact of air information and engagement
quality measures. information into one location.
Establish a West Midlands wide MON1 2 (2.90) Use low-cost sensors to gain This is an in-progress option supported through a DEFRA air quality grant. This will look to use air Lead £250-500k; and <1
low-cost sensor network, with an better spatial resolution quality monitoring as a behaviour change tool and the groundwork for a larger scale collaborative Year
associated standalone website on particulate matter network. A number of local authorities already have low-cost sensors deployed and the data is spread
that includes existing regional concentrations and tie them in across a number of websites. Therefore, having the data in a central location will aid public access and
data, enable other systems (such with a centralised air quality collaboration will aid standards, reduce costs, and officer time burden. A regional alert system could
as an alert system) and air quality resource to promote behaviour benefit from the use of low-cost sensor data, with potential systems for residents being discussed by
information that is effective for change. some local authorities, it would provide more of a local tool than the national system. Smart hubs could
behaviour change. be installed at key locations (such as schools and community/faith centres) to boost engagement and awareness of air quality.
Understand the relative MON5 3 (2.20) By knowing the different This work is already underway through the WM-Air project. The outcomes can be used in future decision Enable £50-100k; and <1 Year
importance of within-region contribution from within region making when assessing the applications of options.
emissions and transported air and external pollution, it will
pollution for WMCA air quality. be possible to targets specific sources and seek partnerships with other regions to address specific emission sources.
Understanding real-word MON6 =4 (1.95) Use real world data to This work is already underway through the WM-Air project. The outcomes can be used in future decision Enable £50-100k; and 1-2
emissions to underpin policy, e.g. understand emissions from making when assessing the applications of options. Years
identifying largest emitters across various sources and to target
actual WM fleet (all vehicles). policy and interventions.
Establish regional standards on MON2 =4 (1.95) Improve the quality of the Having set regional standards on all monitoring will help officers when making decisions on monitoring Lead Officer time only and/
air quality monitoring covering all air quality data collected and for developers/consultants when required. This may include ensuring campaigns are more considered or below £50k; and
monitoring types to ensure that throughout the West Midlands of outcomes and how these can be monitored/evaluated when required. Currently there is a range of 1-2 Years
the data being acquired is robust by following agreed standards/ sensors that are deployed, and some are not accredited to a formal standard. Therefore, they are more
and the equipment used is to a guidance. of a pure engagement tool, rather than both an engagement tool and allowing for some indicative data
minimum standard. collection that can be used for other purposes. This will also be helpful when it comes to navigating the vast numbers of low-cost sensor solutions flooding the market at very low cost.
Establish a pathway for streamlined procurement of air quality monitoring equipment and resources to both leverage economies of scale and ensure that the correct equipment is purchased based on the regional standards. MON3 =4 (1.95) Reduce costs, officer and lead time through a streamlined procurement process that allows access to the equipment that is actually needed and complements the existing monitoring operations. This option should ideally be combined with governance reforms; however, it is something that has been requested multiple times so could be done as a standalone option. One reason for this is that sometimes local authority procurement processes are too focused on price and not at getting what is genuinely the right solution for the task. Another is to leverage economies of scale to get a better deal and the ability to negotiate specifics such as Key Performance Indicators (KPIs) in a better way if there is collaboration on what is required when going out to tender. Lead Officer time only and/ or below £50k; and 1-2 Years
Tackling air quality and climate change are not the same, but there are clear synergies in measures that might be put in place to address them/their causes. In particular, they are both the result of fossil fuel combustion (through transport, power generation, heating and industrial processes) as well as some agricultural activity. Further, research is indicating a clear correlation between health impacts where both temperature and PM2.5 are raised and work is continuing to understand this in more detail through a study that will be taking place in the West Midlands, funded by the Wellcome Trust, over the next few years. What is clear is that air quality should be included in ‘whole system’ approaches to tackling climate change; the WMCA-led Net Zero Neighbourhood programme is taking this approach as part of its delivery.
Brockmoor, Dudley is set to be the first Net Zero Neighbourhood in the West Midlands. This is part of a place-based approach being piloted by the Energy Capital team at the WMCA that aims to test if a neighbourhood approach could be successful at helping to increase the scale of engagement in Net Zero.
Dudley MBC and partners will spend the next two years working closely with the people of Brockmoor to co-produce low-carbon and sustainability interventions to enable a Just Transition in Brockmoor. These will include:
Extensive community engagement work, led by project partners Keele University, aims to promote resident participation and collective ownership in encouraging behaviour change to improve neighbourhood air quality and related health outcomes.
Energy Capital and Dudley MBC will be baselining, monitoring and evaluating the impact of the Net Zero Neighbourhood on Brockmoor amongst which will be measuring the impact of the approach on local air quality and associated changes in behaviours and travel patterns.
Table 7.9.1: Climate and Net Zero Options Ranked by Weighted MCDA Score
Option Framework Option Code Theme Rank (Weighted Score) Targeted Outcome Potential Approach Proposed WMCA Role Estimated Initial Costs and Timescales
Air quality innovation zones to sit alongside other programmes such as net zero neighbourhoods and industrial decarbonisation programmes. CNZ3 1 (4.35) Leverage other established/ proposed programmes with complimentary air quality actions to test out interventions and the impact coordinated measures can have. Aligning with measures, such as net zero neighbourhoods, will allow for a test bed for both measures which have air quality as an added benefit and pure air quality measures which have an added net zero benefit. The trialling of such schemes will allow for the monitoring and assessment of the impacts which will be valuable when it comes to more regional application. Lead >£1m; and 3-4 Years
Engage with large transport providers such as rail/station operators and Birmingham Airport and promote greater integration of air quality into net zero and climate plans. CNZ5 2 (3.85) By using net zero to promote air quality improvement, there is a greater chance of improving air quality emissions and exposure from large transport hubs. Many operators have pre-existing environment plans and strategies; however, air quality is a typically a small part behind other aspects such as climate and net zero. Engaging with operators to see where air quality could be integrated as a wider benefit within net zero and climate plans should help improve air quality outcomes and improve transient (short-term) and long-term exposure. Existing relationships should be leveraged (such as Solihull with Birmingham Airport and Birmingham with New Street Station). Enable £50-100k; and 2-3 Years
Provide guidance on how the changing climate will affect air quality (and potentially other areas) and how this can be mitigated and be a co-benefit. CNZ2 3 (3.30) Provide guidance on how to incorporate air quality within net zero and climate resilient designs to account for the changing climate. A changing climate in the UK has the potential to have a major impact on air quality, especially when it comes to chemistry processes and mechanisms. The potential outcomes vary depending on the climate changes that occur; however, it can include more particulate matter and O episodes during heatwaves; 3increased secondary particulate matter formation; reduced removal of particulate matter with reduced rainfall; potential for more wildfires to contribute to regional pollution; and many more complex chemistry interactions. There will be increased clashes between different requirements such as ventilation and acoustics that may need different mitigation to that needed to fulfil air quality requirements (e.g. in the case of openable windows). Enable £50-100k; and 2-3 Years
Understand where air quality can be integrated into communications and programmes on solar/renewables/heat pump and used to highlight benefits and general air quality awareness. CNZ4 4 (3.25) Leverage the co-benefits of renewables and an improvement in both ambient and indoor air quality due to the reduction in domestic combustion. Introduce the air quality narrative into renewables and alternative home energy strategies. This can include mentioning the local and regional air quality benefits and what this can do to improve public health and long-term finances. Indoor air quality benefits due to the move to electricity should be highlighted. Engage with suppliers, landlords, councils, and funding providers to ensure the messaging reaches the appropriate people. Enable £100-250k; and 2-3 Years
Metrics for improving air quality, to capture co-benefits from net zero actions and for policy to reduce regional health inequalities. CNZ1 5 (2.50) Appraise the potential for net zero actions to improve air quality and potentially prioritise measures which have co-benefits. This could be carried out at the same time as other policy reviews so that such metrics could be published and included with any guidance which can then be supported by the relevant policies. Green infrastructure and urban heat island considerations should influence heating and ventilation standards that work for all planning aspects (overheating, acoustics, air quality etc.). Lead £50-100k; and 2-3 Years
8. 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 have 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:
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Public health (Directors of Public Health as well as the UKSHA)
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Local authority representation (air quality, behaviour change and net zero officers)
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Community group representation
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Political stakeholder (such as a member of the WMCA Environment and Energy Board)
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A member of the University of Birmingham’s WM-Air Team
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Business represention
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Birmingham Airport
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National Highways
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National Express
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National Rail
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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 complements existing governance arrangements – this has been outlined in the Figure 8. This recognises that air quality is of interest to both the environment and transport portfolios at the WMCA. 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 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.
Direct reports Supports
Figure 8.1: Proposed WMCA Air Quality Framework Governance Structure
9. Delivery, Ways of Working and Next Steps
The Framework Implementation Plan will be the primary document to guide delivery between 2024 and 2026. This provides both immediate actions, preparatory work for larger measures and additional details around requests for funding and resourcing. However, it is hoped that this document will help shape and deliver the longer-term ambitions of the WMCA and constituent local authorities.
We are committed to making the work delivered through this document and the 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).
Monitoring and Evaluation
Throughout our delivery, we will be evaluating the success of our projects and programmes, measuring the success of air quality interventions (especially those that are small scale and of shorter duration) can be challenging. One of the main methods of evaluation expected by stakeholders and the public would be a change in pollutant concentrations; however, in some cases this is challenging due to changes in emissions (vehicle fleet changes, other non-related changes in behaviour), isolating the cause of the changes, meteorological conditions and other seasonal effects. It is possible to use techniques such as ‘de-weathering’ to try and isolate changes in concentrations without weather/ seasonal impacts, however, this is reliant on other variables (such as traffic flow remaining the same) and is not an exact science. In addition to air quality data, methods such as traffic counts, stakeholder feedback, surveys, public transport usage, Automatic Number Plate Recognition (ANPR), and walking and cycling counts can be utilised.
Given the diverse nature of our projects, there will not necessarily be a single approach to monitoring and evaluation; and each project/programme will have its own methodology. However, for work packages and interventions that are implemented (and where appropriate), the required monitoring and evaluation will be agreed at the inception/ business case stage. This will need to ensure that appropriate monitoring and evaluation is undertaken to both assess effectiveness and to provide an opportunity for learning lessons and applying what is learnt elsewhere.
There is the potential for a monitoring and evaluation toolkit to be agreed through the DEFRA behaviour change work and colleagues working on other major interventions (such as the Birmingham CAZ). This would set expectations and options for monitoring and evaluation of work packages and interventions, which will benefit not just the Framework, but ASRs and AQAPs, where DEFRA is expecting more robust monitoring and evaluation in the future.
There is also a commitment to provide regular updates to both the Environment and Energy Board, Transport Delivery Overview and Scrutiny, , WMCA 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 several guiding principles for our air quality project implementation, and we are committed to working with these and the Panel hereon in. These are:
Cost and Responsibility: Air quality measures should be…
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Brave and bold.
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Clear and transparent in their purpose and, where they generate income, how this will be spent.
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Placing the burden of change on the broadest shoulders, ensuring that specific groups are not disadvantaged by higher costs and protecting the most vulnerable.
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Good value for money for councils so that council tax bills don’t increase as a result.
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Putting public benefit before corporate interests and avoid monopolies being created.
Engagement, education and awareness: Air quality measures should be…
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Done with, not to, people; involving a range of citizens and areas in the design process.
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Explained clearly to the public, including why they are necessary and what impacts they are designed to have.
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Making people aware of changes taking place and with due consideration for accessibility, alternative provision and any support that may be needed.
Implementation: Air quality measures should be…
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Putting new services in place before removing old ones.
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Achievable, sustainable, measurable and long-term.
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Taking into account how impacts will be felt by neighbouring areas.
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Data-driven and evidence-based, learning where possible from other countries and other parts of the UK.
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Using incentivisation rather than punishment where possible and enable people to change their behaviour in positive ways.
These 13 guiding principles provide an excellent and wide-reaching checklist of what should be considered at various stages throughout implementation, although not all will be applicable to all interventions. The scale and purpose of a project is key to determining which should be applied. We will look to engage the Citizens’ Panel on shaping specific projects and interventions as they are developed for deployment.
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 they are delivered. 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, 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 8.
Some packages and measures will require additional assessment, consultation, and funding. As such, there are varied levels of targeted delivery within the two-years the Framework Implementation Plan 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 packages and measures are appropriately appraised for impacts, communities are consulted, and that 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 appraisal to quantify the changes in air quality, benefits to communities and optimise health and economic outcomes.
Many of the engagement and behaviour change, communications and monitoring and digital packages proposed within the Framework Implementation Plan can begin quickly and achieve early-stage to full implementation within the two-year period covered by the document. These packages have the potential to provide cost-efficient changes in behaviour that can reduce health impacts and make 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.
Proposed Stretch Targets
Through the development of the Framework and consultation with stakeholders, there is a clear ambition to achieve more ambitious air quality targets than those set out in Section 2 (and this includes the targets from the Environment Act, 2021). The first year of monitoring results post COVID-19 (i.e. 2022) shows that all monitoring locations are compliant with the 2040 PM target. Although the PM monitoring resolution is not high across the region, if roadside
2.5 2.5
concentrations are compliant, then most areas can expect to be compliant. Given that there is no safe level of PM2.5 and there are clear benefits to going above and beyond the 2040 PM2.5 targets (including health, financial and for the regional economy), it should be a key target for the region.
The potential for ‘stretch goals’ was first raised at the July 2023 WMCA Environment & Energy Board, where one of the decisions was “…to pursue WMCA-wide air quality targets that exceed the nationally established targets”. Following on from this decision, more ambitious targets were discussed with the Transport Delivery Committee Air Quality, Congestion and Environmental Sustainability Member Engagement Group (MEG). The MEG highlighted the importance of maintaining air quality as a high policy priority, even where legal levels for pollutants had now been met. The MEG recommended that the Transport Delivery Overview & Scrutiny Committee recommend to WMCA Board the following:
“WMCA considers adopting, as part of development of the Regional Air Quality Framework, stretch targets which are more ambitious in terms of timescales and pollutant concentration targets than the UK Government air quality targets, and which are closer to World Health Organization (WHO) guidelines for NO2 and PM2.5”
This would be a significant piece of work to complete, which would require the support of existing partners. This is expected to include WM-Air, who have developed and maintain a regional air quality model and are therefore best placed to provide future projections. This would determine what would be ambitious, yet achievable targets, the timescales in which they can be achieved and what would be required on local and regional scale to achieve them.
Framework updates
The measures identified in the Framework are comprehensive, and we do not expect them to become out of date in the short-term. However, we will build in a review process every five years to ensure that they are still supporting regional ambition to reduce air pollution in total, and inequality of exposure overall. We would also want to make sure that the Framework is taking account of innovations in technology, as well as national policy. Annual progress reports on the Framework delivery will be brought to the WMCA Environment and Energy Board.