Jersey Air Quality Strategy and Action Plan.

STATES OF JERSEY

JERSEY AIR QUALITY STRATEGY AND ACTION PLAN

Presented to the States on 23rd May 2013 by the Minister for Planning and Environment

STATES GREFFE

2013   Price code: D  R.49

Jersey Air Quality Strategy

FOREWORD

Air quality in Jersey is generally very good. This is due to a combination of factors. As an Island with a significant agricultural heritage and strong service sector, we have a limited amount of polluting industrial activity. However, our high levels of car ownership are reflected in the fact that the greatest contributor to air pollution comes from road transport. Even so, our economic base, combined with the physical location of the Island and the prevailing weather conditions that are in existence, ensure that air pollution levels are below thresholds of concern to human health and the environment. The Jersey Air Quality Strategy has been designed to maintain this positive situation into the future in light of changing working and living practises and technological developments.

Air quality is an important factor in protecting both human health, ecosystems and the environment and so we have a responsibility to make sure that the current good quality air quality is maintained and that any future impacts on air quality in Jersey, both to those that live, work and visit the Island, and to our neighbours are minimised. The air pollutants that are managed through the JAQS are also important in terms of reducing greenhouse gas emissions in Jersey and so can help us in taking forward our policies on mitigating and adapting to the impacts of climate change.

Air quality is not an issue that can be managed in isolation. This strategy recognises these inter linkages and connections. The way we move to and from the Island, the way that we travel around during the day, the way we heat and cool our work and living spaces and the choices we make in procurement of goods and services all have an impact on ambient (outdoor) air quality. This strategy and its supporting detailed project plan will minimise emissions to air from both general day to day activities and specific point sources. The JAQS connects to the policy areas addressing these issues and supports the good work that they are trying to achieve, e.g. through the transport and energy policies.

Jersey has responsibilities to the global community in terms of the international environmental agreements to which it is a signatory. We have made a commitment to work within the spirit of these agreements; this strategy will ensure that we continue to behave as a responsible jurisdiction.

The air quality strategy is pragmatic and provides a proportionate approach to managing air quality issues. The JAQS has been developed in partnership between the Department of the Environment and the Health and Social Services Department. This inter-departmental cooperation and support sets the tone for the future implementation of the strategy.

I welcome this approach which recognises that air quality is not an issue that can be dealt with in isolation, and I look forward to working in close partnership with the Minister for Health and Social Services on its implementation.

Deputy Rob Duhamel

Minister for Planning and the Environment

I am delighted that the Jersey Air Quality Strategy has come to fruition. Good air quality is a fundamental requirement for life and is vital if we are to improve the health and wellbeing of our community.

The JAQS is supported by a comprehensive air quality project plan which sets out the tasks, actions and timetable for each of the policy areas. It includes actions that are the responsibility of both Departments and other key stakeholders in the Island. The implementation of the project plan will be coordinated the Health Protection Service within my Department working in partnership with the Department of the Environment and other

Departments and stakeholders.

An important part of this work will include a detailed assessment of air pollution sources and the creation of an emissions inventory to allow us to fully understand local impacts on air quality.

The JAQS focuses on ambient (outdoor) air quality. The monitoring programmes that my Department has undertaken over many years have identified areas where we can be confident that air quality is good. However we cannot be complacent; we must maintain this good status in those areas and we must direct our efforts to bring about improvements in areas where there are known pollution hotspots' e.g. in the narrow streets of St Helier where pollution is caused by congested traffic.

In the future, our policy will move forward to include indoor air quality. People spend up to 80% of their time indoors and we already know that indoor micro environments and multiple exposures can contribute to ill health and this can include a range of pollutants associated with outdoor sources as well as issues like Radon gas, indoor combustion appliances and poor building design.

I, too, welcome the inter agency and inter Departmental approach being taken which recognises the synergy between Health and Environment and provides a robust mechanism to prioritise resources to ensure implementation of the JAQS.

Deputy Anne Pryke

Minister for Health and Social Services

February 2013

Foreword........................................................................................................................2 Executive Summary.......................................................................................................6

1. Aims and Objectives and Resources..................................................................8

1. Aims and objectives........................................................................................... 8
2. Air Quality Limit Values and Objectives.................................................................... 9
3. Resources .....................................................................................................10 POLICY 1: Air quality project team.................................................................................10

2. Air quality – Health and Climate Change policy Links ....................................12

1. Air quality impacts on health and environment ..........................................................12 Actual and potential local impacts..................................................................................12
2. Climate change and air quality .............................................................................13 POLICY 2: Air quality and climate change adaptation policy ..................................................14
3. Indoor air quality ..............................................................................................14 POLICY 3: Indoor air quality ........................................................................................15

3. Air Quality Monitoring Programme ...................................................................16

POLICY 4: Air quality monitoring and reporting .................................................................19

4. Sources of emissions InJersey........................................................................20

1. Transportation Emissions..................................................................................21

POLICY 5: Emissions from transport ..............................................................................22

2. Emissions from industrial sources...................................................................23 POLICY 6: Emissions from industrial sources....................................................................26
3. Light industry, agriculture and manufacturing................................................27

Emissions from agriculture ..........................................................................................28 POLICY 7: Emissions from light industrial processes, agriculture and manufacturing.....................29 Emissions from the public sector - Eco-Active States...........................................................29 POLICY 8: States of Jersey leading by example ................................................................30

4. Other Sources of emission................................................................................31

Emissions from biomass.............................................................................................31 Emissions from construction sites..................................................................................31 Emissions from new developments ................................................................................31 Emissions from existing developments and businesses........................................................32 POLICY 9: Raising awareness of air quality issues .............................................................32

14.  Public access to Information.............................................................................33 POLICY 10: Public access to information.........................................................................33

5.  Regulatory Framework.......................................................................................34

POLICY 11: Regulatory Framework ...............................................................................36

Supporting document: Air Quality Project Plan

EXECUTIVE SUMMARY

1. The Jersey Air Quality Strategy (JAQS) provides a high level strategy with a set of objectives which provide a framework for ensuring that the high standard of air quality is maintained in Jersey. The strategy is supported by a detailed project plan which sets out the tasks, actions and timetable to implement the strategy.
2. Air quality in Jersey is generally good. This is due to the location of the Island and the prevailing weather conditions that are in existence along with the limited amount of industrial and manufacturing processes. The air quality monitoring programme demonstrates that pollution levels are below thresholds of concern to human health and the environment. The JAQS has been designed to maintain this positive situation.
3. Air pollution is caused by the emission to the atmosphere of certain substances which, alone or through chemical reaction, can damage human health, ecosystems and/or the environment. Air quality is both a local and a trans boundary issue as emissions from outside Jersey can travel large distances in the atmosphere and cause adverse effects locally
4. Air quality is also a global issue. It is recognised that taking action to reduce the effects of climate change provides an excellent opportunity to deliver further benefits to both air pollution and greenhouse gas emissions. Both arise from broadly the same sources and will therefore benefit from many of the same measures[1]. The air quality strategy is designed to complement and develop synergies with the current policy framework in addressing climate change and air quality emissions, e.g. the draft Jersey Energy Plan, the adopted Sustainable Transport Policy and Rural Economy Strategy, and the relevant Health policies. Ultimately poor air quality and the environmental effects caused by it adversely impact upon human health.
5. The requirement for an Air Quality Strategy has been identified within the 2009-2014 Strategic Plan, as an action under commitment 13. Protect and enhance our natural and built environment. The JAQS will continue to be supported through the revised strategic plan to ensure that:

...everyone in Jersey should have access to outdoor air without significant risk to their health and that there should be minimal impacts from air pollutants on the environment of Jersey or our neighbours... as evidenced by reporting according to international reporting standards

6. The Health Protection Service commissioned UK consultants, AEA Technology, to provided technical support and calibration services for the air quality monitoring programmes.
7. Jersey has obligations under a number of international conventions, known as multi- lateral environmental agreements (MEAs) to control and report on a range of potential pollutants. The monitoring of particulates, nitrogen dioxide and hydrocarbons has taken place in Jersey since 1997. The results from the monitoring all demonstrate that the air quality in Jersey is within the limits and reporting

thresholds set by the MEA's to which the Island is a signatory. Ambient air quality can be categorised as good according to UK standards.

8. The greatest proportion of air pollution in Jersey is from road traffic emissions. The 2010 Sustainable Transport Policy (STP) recognises that emissions from transport are significant in the Jersey context of air quality, and presents a series of recommendations which have the potential to reduce emissions from vehicles. Transport emissions of nitrogen oxides (NOx) and particulates (PM10) present the greatest challenges to improving air quality in Jersey[1]. At the current time monitoring stations provide information on these transport pollutants at key congestion points. There may be the need to undertake some additional monitoring to gain a clearer understanding of pollutant levels within vehicles as well as the relationship of transport pollution to ambient air quality. The STP is supported bythe draft Energy Plan which encourages the take up of ultra low emissions vehicles and encourages a modal shift to more sustainable transport options than the use of single occupancy cars.
9. There are also a small number of industrial sources which have been identified as potential point sources (linked to a specific location) of emissions. These include the JE plc power station and the Island's crematorium. Emissions from the energy from waste plant at La Collette are strictly controlled by the emission limits set out within its waste management licence and reporting requirements which reflect the requirements of the European Waste Incineration Directive (WID). In addition, there are emissions from a variety of domestic sources, commercial activities, light industry and manufacturing that can only be estimated.
10. The industrial point source operators are aware of their emissions and the need to ensure their businesses are working in a responsible manner. The strategy proposes establishing an inventory of point source emissions and continuing to work in partnership to ensure that these point sources do not exceed emissions limits as specified through EU and UK best practice. Jersey has very limited regulatory controls over emissions and any improvements required would need to be generated by mutual agreements with businesses.
11. Emissions of mercury from the crematorium are currently unknown and require further investigation. However, based on the frequency of use, it is likely that the crematorium will not generate enough mercury emissions to be of concern to health, although the wider environmental issues are an area that requires further investigation. The detailed project plan outlines the actions to investigate this issue further.
12. The JAQS and project plan will be reviewed and revised annually by the inter Departmental air quality project team by monitoring and updating the detailed project plan. Where any significant changes or changes are identified, these will be assessed and maybe used to inform future decision making.

1. AIMS AND OBJECTIVES AND RESOURCES

1. Aims and objectives

Air quality in Jersey is generally good. This is due to the location of the Island and the prevailing weather conditions that are in existence. Along with the limited amount of industrial and manufacturing processes, Jersey is a fortunate position in terms of its air quality monitoring which demonstrates that pollution levels are below thresholds of concern to human health and the environment. The Jersey Air Quality Strategy (JAQS) has been designed to maintain this positive situation.

The aim of the Jersey Air Quality Strategy (JAQS) is that:

...everyone in Jersey should have access to outdoor air without significant risk to their health and that there should be minimal impacts from air pollutants on the environment of Jersey or our neighbours... as evidenced by reporting according to international reporting standards

The objectives of the strategy have been taken from the scrutiny review report on air quality. These are listed below.

The scope of the JAQS is ambient (outdoor) air quality. Whilst recognising the links to indoor air quality and the associated health issues, the strategy does not directly address issues in relation to indoor air quality. This has been identified as a work stream for HSS Department in the future.

The JAQS focuses on the impacts on human health and the environment from emissions that have an effect on ambient air quality and recognises the links with climate change.

There are a wide number of linked policy areas where implementation of the JAQS will require cooperation and a partnership approach to meet the objectives of the strategy, e.g. health, planning permits, EIA and SEA consultation, transport policy and implementation, input to contract specifications.

A project team delivery approach between stakeholder Departments and organisations will be adopted to ensure that all relevant policy synergies are maximised.

This strategy supports the maintenance of the air quality monitoring programme which is currently in place as this enables Jersey to meet its obligations under the multilateral environmental agreements (MEA) to which it is a signatory and to maintain a high quality ambient air quality environment for all.

2. Air Quality Limit Values and Objectives

The current air quality limit values in place in Jersey are based on WHO, EU and UK limit values. These limit values should be incorporated into all aspects of development and management of air quality including assessment of EIA and SEA reports as part of the planning process.

3. Resources

The Health Protection Service will prioritise workloads and budgets to provide resources to coordinate the implementation of the JAQS, the actions outlined in the supporting detailed project plan and to continue to implement the existing air quality monitoring programme

The air quality strategy links with a number of other corporate policy areas. The objectives in the JAQS support these corporate areas of activity. The individual work streams identified in the supporting project plan will be delivered by a wide range of stakeholders.

The Health Protection Service will coordinate, monitor and review the implementation of the project plan. The inter Departmental Air Quality project team will report to the Minister for Planning and the Environment and the Minister for Health and Social Services.

POLICY 1: Air quality project team

• P1: The Minister for Planning and the Environment, working with the Minister for Health and Social Services will establish a inter Departmental air quality project  
• team which will be coordinated by the Health Protection Service that will;
• a) Oversee the implementation of the JAQS detailed project plan;
  2. Undertake an annual review and report on the progress with implementation  
• of the project plan.

2. AIR QUALITY – HEALTH AND CLIMATE CHANGE POLICY LINKS

Air pollution is caused by the emission to the atmosphere of certain substances which, alone or through chemical reaction, can damage human health, ecosystems and/or the environment. Air quality is both a local and a transboundary issue as emissions from Jersey can travel large distances in the atmosphere and cause adverse effects elsewhere and vice versa.

1. Air quality impacts on health and environment

The single pollutants causing the most damage to human health, ecosystems, and materials are nitrogen oxides (NOx), sulphur dioxide (SO2), ammonia (NH3), ground level ozone and airborne fine dust known as particulate matter (PM). Ground-level ozone and particulates (PM-PM10, PM2.5) are the pollutants that cause the most damage to human health. Ozone is not emitted directly but is formed through the reaction of volatile organic compounds (VOCs) and nitrogen oxides in the presence of sunshine. Fine dust can be emitted directly to the air (primary particles) or can be formed in the atmosphere by certain gases (secondary particles) such as sulphur dioxide, nitrogen oxides and ammonia.

Air pollution can have various harmful effects. For example:

• Human health: Air pollution can have an impact on people's health in the long and short term, ranging from minor effects on the respiratory system to reduced lung function, asthma, chronic bronchitis, cancer and reduced life expectancy. The Annual Report of the Medical Officer of Health[1] identifies the health impacts associated with transport emissions. NO2 is particularly harmful to those with pre- existing respiratory disorders and is known to exacerbate conditions like asthma, even at low levels.
• Acidification: Acid deposits (caused by SO2, NOx) and ammonia damage forests, rivers, lakes and other ecosystems as well as materials such as buildings and historical sites.
• Eutrophication: Eutrophication is an excess input of nitrogen nutrients (nitrogen oxides and ammonia) which disturbs the structure and function of land-based and aquatic ecosystems. Excess nitrogen in terrestrial ecosystems can lead to a loss of biodiversity and nitrogen leaching into water courses.
• Material damage: Buildings, including historical sites, can be damaged by acidification and particulates.

Actual and potential local impacts

The monitoring reports completed by AEA provide information to show that [2] emissions from road transport are the primary source of pollution at the centres of highest

population in Jersey. As a result, there are periodic surveys of the substances of most concern (oxides of nitrogen, particulate matter, and benzene, toluene and xylene (BTX)). Road transport emissions - particularly of NO2 and PM10 are higher in certain vulnerable locations – such as the Weighbridge and Beaumont.

Industrial emissions also have the potential to impact on Jersey's air quality and on known sensitive sites. A number of other potential sources of pollution have also been identified; these include domestic heating, agriculture, and small commercial/industrial combustion sources.

2. Climate change and air quality

It is recognised that taking action to reduce the effects of climate change provides an opportunity to deliver further benefits in terms of both air pollution and greenhouse gas emissions. Both arise from broadly the same sources and will therefore benefit from many of the same measures[1].

Whereas greenhouse gases persist in the atmosphere for a long period, some air pollutants have a relatively short life and so their impact is lower and therefore proportional to their ground level concentration. This picture is further complicated by the fact that some traditional' air pollutants act as greenhouse gases too, (ozone, for example) or are involved in their formation (NOX, for example).

The potential impacts of climate change in Jersey have been outlined in detail in Turning Point'. Changes in the climate will impact on, amongst other things, air quality, health and the environment. Delivery of air quality and climate change goals require changes in the way we all live, work and relax. A key part of making these changes will be public engagement to encourage more sustainable behaviours in relation to, e.g. transport choices.

At a national and international level, power generation and road transport are two of the most significant sources of both air pollutants and greenhouse gases. Of these, road transport is the most significant issue in relation to air quality issues in Jersey. In terms of power generation, Jersey imports nearly all of its energy requirements from France in the form of low carbon electricity from the French grid. On Island power generation is largely for back-up purposes, so local emissions from power generation are actually very low.

The Jersey Pathway 2050 Energy Plan will provide policy mechanisms to mitigate the effects of climate change by reducing emissions at source, ensuring security of supply and setting challenging targets to achieve an 80% reduction in carbon emissions by 2050 on 1990 levels. The Energy Plan provides a policy framework for the reduction in emissions from on-Island activities, across all emissions sectors, it also identifies the need for the development of a climate change adaptation strategy for Jersey which will incorporate air quality and climate change policy objectives.

Air quality and climate change co-benefits can be realised through a range of actions as outlined in the Sustainable Transport Policy, Rural Economy Strategy and the draft Energy Plan. The actions include promoting ultra low-emission vehicles, use of renewable sources of electricity which do not involve combustion, implementing energy efficiency measures, and reducing agricultural waste and decreasing demand for nitrogen. Other policy areas also contain recommendations to address the health and social issues of climate change and air quality.

POLICY 2: Air quality and climate change adaptation policy

• P2: The Minister for Planning and the Environment, working with the Minister for Health and Social Services, will ensure an integrated approach is taken in the development of a  
• Climate Change Adaptation Strategy as identified in the draft Energy Plan.

3. Indoor air quality

Whilst the scope of the JAQS does not include air quality of indoor environments or exposure in the workplace, which is managed through Health and Safety requirements, it is recognised that indoor air quality can have a major influence on the health, comfort and well-being of building occupants. Poor indoor air quality may contribute to a number of respiratory illnesses, reduced productivity in offices and impaired learning in schools and in the case of Radon gas, lung cancer.

Poor building design contributes to lack of ventilation and poor air circulation which can increase concentrations of air pollutants in micro environments e.g. in stairwells, hall ways and corners. In some cases these concentrations can be higher than those found out of doors (ambient concentrations).

Pollutants' impacts on health depend on their toxicity, concentration and exposure period, and range from odour to irritation to serious toxic effects. The control of pollutants depends on both tackling their sources and having adequate ventilation with 'fresh' outdoor air. The Jersey Building Bye-Laws already set requirements for solid fuel cookers and stoves in order to reduce nuisance from smoke and fumes, and to ensure adequate ventilation of a property.[2] The draft Energy Plan sets out policies and actions to introduce more challenging building bye-laws by 2014 and 2018 for both domestic and commercial developments and refurbishments.

The scope of indoor air quality work in Jersey at the current time is in relation to the health impacts of smoking in the home; this will be widened over time to include all indoor health impacts. This programme of activity is led by the Minister for Health and Social Services and implemented by the Health Promotion Unit.

The European Commission is working to harmonise existing voluntary schemes for labelling of low-emitting products and there is clearly scope for such a scheme to be adopted in the UK[3]. The European Commission also recognises that there is a case for development of an EU indoor air quality directive. High level strategy discussions have taken place with key stakeholders. As yet, no timetable has been published for the development of this directive, but when further information is obtained States of Jersey will need to consider the implications of compliance with any directive that emerges.

The States Housing portfolio is subject to a detailed maintenance programme. The Housing Department (April 2012) published a White Paper outlining a changed future operational structure of the Housing service. The Affordable Housing White Paper proposes the introduction of an Affordable Homes Regulator with a requirement to ensure all social housing is brought up to the UK Decent Homes Standard[4].This includes both the energy efficiency and liveability of properties.

Consideration will need to be given in relation to information for the private rented sector to ensure that the materials specified and used in housing repairs and maintenance meet the standards as specified in the Construction products directive 89/106/EE[5].The issues of indoor air quality in relation to domestic properties could be addressed through the implementation of the Public Health (Dwellings) Legislation which is being brought forward by the Minister for Health and Social Services in 2012/2013.

POLICY 3: Indoor air quality

• P3: The Minister for Planning and the Environment, working with the Minister for
• Health and Social Services will raise awareness of indoor air quality issues by;
• a)  Working with the Development Control and Building Control team to ensure planning permits and revised Building Bye Laws take into account indoor air  
• quality.
  2. Ensuring that awareness of air quality issues is raised with the Eco-Active