Air Quality - revision of EU Rules - European Commission
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Air Quality
- revision of EU Rules -
Status: 10 May 2021
European Commission
Clean Air Unit
Air quality in Europe Why is it a problem? Where is it a problem? What are we doing about air pollution? Clean air policy works … but … What can we do better?
Air pollution - why is it a problem?
Health impacts (EU):
• > 400.000 premature deaths each
year
• 17% of all lung cancer deaths due
to air pollution
Economic impacts (EU):
• More than € 20 billion per year in
‘direct costs’
• plus € 330 to € 940 billion per year
in ‘indirect costs’
Environmental impacts (EU):
• Eutrophication limits exceeded in
62% of ecosystem
Source(s): Healthy lives, healthy environment (EEA, 2020)
Air pollution - where is it a problem? PM10 exceedances are often linked to fuel NO2 exceedances are often linked to combustion (i.e. heating, transport). traffic, in more than 100 cities in EU. Source(s): EEA Air Quality in Europe (2020)
Air pollution – who and what causes it?
Air pollution has multiple sources … … and originates across all scales
PM2.5: Households (54%), Energy & Industry (21%), • Transboundary pollution
Transport (13%),…
• National level background
NOx: Transport (47%), Energy (15%), Industry (15%),
• City level sources
Households (8%), …
• Road-side peaks
SOx: Energy (47%), Industry (33%), Households (15%),
Transport (3%), …
This combination requires EU Clean Air
NH3: Agriculture (93%), … Policy to address all sectors & all scales
Source(s): EEA Air Quality in Europe (2020)
What are we doing about air pollution?
Ambient Air Quality (AAQ) Directives
Maximum concentrations of
air polluting substances
(PM10, PM2.5, SO2, NO2, O3 + 8 more)
SETTING OBJECTIVES
FOR GOOD AIR QUALITY
REDUCING EMISSIONS
OF POLLUTANTS
National Emission reduction Source-specific
Commitments Directive emission standards
National emission totals - IED Directive
(SO2, NOx, NMVOC, PM2.5, NH3) - MCP Directive
- Eco-design Directive
- Energy efficiency
- Euro and fuel standards
Clean air policy works … but …
EU urban population exposed to air pollution EU urban population exposed to air pollution above
above EU standards 2000 to 2018 EU standards > WHO guidelines in 2018
O3
O3
60% PM2.5 34% > 99%
PM10
40% NO2
PM10
15% > 48%
20% PM2.5
4% > 74%
0% NO2
4% = 4%
Source(s): EEA Air Quality in Europe (2020) & https://www.eea.europa.eu/data-and-maps/daviz/percentage-of-urban-population-in-13
Fitness Check of the AAQ Directives In 2019, an evidence-based, retrospective evaluation offered a number of lessons learnt: • Air quality remains a major health and environmental concern; • Air quality standards have been instrumental, and partially effective, to reduce pollution; • Current EU standards are less ambitious than scientific advice; • Limit values have been more effective than other types of air standards; • Legal enforcement action by European Commission, and civil society, works (with some caveats); • Scope to further harmonise monitoring, modelling, and air quality plans; • Not all reported data equally useful, e-reporting allows for further efficiency. A decade of air data Stakeholder feedback Seven case studies Literature & analysis For period 2008 to 2018 Open public consultation BG,DE,ES,IE,IT,SE,SK 600 scientific sources from all Member States and expert questionnaires each with specific focus & a cost-benefit model
“The Commission will draw on the lessons learnt from the evaluation
of the current air quality legislation.
It will also propose to strengthen provisions on monitoring, modelling
and air quality plans to help local authorities achieve cleaner air.
The Commission will notably propose to revise air quality standards to
align them more closely with the World Health Organization
recommendations.”
Communication on the European Green Deal (COM/2019/640 final)
Five shortcomings Health outcome shortcomings Implementation and enforcement shortcomings Governance shortcomings Assessment shortcomings Information shortcomings
Health outcome shortcomings
Premature deaths due to air pollution Pollutants 2005 WHO EU Air EU
AQ Guidelines Standards Exceptions
halved during last two decades, but …
PM10 (year) 20 µg/m3 40 µg/m3 -
PM10 (day) 50 µg/m3 50 µg/m3 (35d a year)
Health outcome shortcomings PM2.5 (year) 10 µg/m3 25 µg/m3 -
PM2.5 (day) 25 µg/m3 - -
EU Standards are not fully aligned
with scientific advice … NO2 (year) 40 µg/m3 40 µg/m3 -
NO2 (hour) 200 µg/m3 200 µg/m3 (18d a year)
SO2 (daily) 20 µg/m3 125 µg/m3 3d a year
Exceedances above
Lack of flexibility to O3 (8-hour) 100 µg/m3 120 µg/m3 (75d in 3yr)
WHO Air Quality
adapt to evolving
Guidelines and
science and new
negative health
recommendations WHO Air Quality Guidelines are being revised in 2021
impacts persist
Source(s): Fitness Check of the Ambient Air Quality Directive SWD(2019) 427Implementation & enforcement shortcomings
Frequency, extent and magnitude of As of 5 Feb 2021, still 31 cases addressing 18 Member
States (+ 1 vs UK) related to bad application:
exceedances has declined, but …
15 particulate matter (PM10 and/or PM2.5)
1
13 nitrogen dioxide (NO2)
Enforcement shortcomings
1 sulphur dioxide (SO2)
Exceedances are not always addressed
sufficiently and/or on time … 2 monitoring problems
Of these, 13 cases (i.e. 9 Member States + 1 vs UK)
have been referred to the Court of Justice of the EU.
6 cases have seen rulings: BG, PL, RO, IT, HU (for PM10) and FR (for NO2) .
Air quality plans and Insufficient penalties
measures have often and damages linked These cases address both exceedances of air quality
proven ineffective to exceedances standards and not keeping these as short as possible.Air quality governance shortcomings
To limit exceedances, competent Example: Air pollution (here: PM2.5) in Frankfurt (DE) is a
combination of emissions in the city, its surroundings,
authorities develop plans, but …
the rest of the country and from other parts of Europe:
Governance shortcomings
Air quality plans do not always address all
sources effectively ...
Local air quality is
Some measures may
impacted by
be ineffective, or
emissions outside This combination requires air quality plans to address
seem disproportionate
local control all sectors & all scales – in a coherent manner (!)
Source(s): Urban PM2.5 Atlas: Air Quality in European Cities (JRC, 2017)Air quality assessment shortcomings
More than 4.000 air quality monitoring
Establish air
stations deliver robust data, but … quality zones
Assessment shortcomings
Flexibilities may sometimes impact
the comparability of data …
Macroscale
siting
Example: Frankfurt, DE
(Friedberger Landstr.)
Monitoring rules Modelling ability has
offering flexibility are improved, allows for
sometimes ‘stretched’ much more detail Microscale
siting
Source(s): https://ec.europa.eu/environment/air/quality/zones.htmAir quality information shortcomings
Reliable air quality information is widely
available, often even in real-time, but …
Information shortcomings
Public feels under-informed about
poor air quality and its impacts …
Concerns about Public information is
health impacts have not always clear, and
increased not harmonised
Source(s): Special Eurobarometer 497 (September 2019) & Air Quality IndexThe consequences Air pollution continues to be a problem Consequences for environment and health Consequences for our economy (with direct and indirect costs) Consequences for our society (not everyone impacted equally) Administrative burden
The consequences of air pollution & air policy
Elevated concentration levels of air pollutants, both Cost to society, EUR 20 bn direct cost to health-care, lost
general exposure of population and at pollution hotspots work-days, crop losses, plus EUR 330-940 bn indirect costs
Economic
Environment & Health
Health impacts, more than 400.000 premature deaths each Measures needed to meet EU air quality standards, with
year across the EU, plus morbidity health impacts costs for industry, transport, energy, and agriculture sector
Ecosystem impacts, eutrophication limits are being Impacts on the EU’s international competitiveness, with
exceeded in 62% of ecosystem areas across the EU territory innovation potential, especially for clean air technologies
Links with climate change, as higher temperature are Sensitive population groups (children, pregnant women,
associated with elevated ozone levels elderly citizens) are more susceptible to air pollution
Social
Synergies with other EU policies, and in particular with the Inequalities and social sustainability, as groups of lower
goals of the (upcoming) EU Zero Pollution Action Plan economic status tend to be more negatively affected
Administrative burden of air quality management, in Measures to address air pollution may have effects on
particular as relates to air quality assessment regimes employment
policy options will need to be assessed against their ability to address the
consequences of air pollution (i.e. our ‘impact assessment criteria’)Policy Context Drivers Problems Consequences Interventions
Exceedances above health Elevated concentration levels of air pollutants
Health outcome guidelines and negative
shortcomings health impacts persist Environment & Current
Economic Social
Health
Current
EU Standards are not fully Lack of flexibility to adapt to AAQDs
elevated ozone levels; ozone levels also linked to hemispheric methane
Links with climate change, as higher temperature are associated with
for industry sector, transport sector, energy sector, and agriculture sector
Measures needed to meet EU air quality standards – and their costs, esp.
including underutilised innovation potential, especially for clean air technologies
Positive and negative impacts on the EU’s international competitiveness
those suffering from pre-existing conditions) are more susceptible to air pollution
Sensitive population groups (children, pregnant women, elderly citizens and
tend to be more negatively affected by air pollution (incl. regional difference)
Inequalities and social sustainability, as groups of lower economic status
Effects of measures to address air pollution on employment
working days, and crop losses, plus EUR 330-940 bn indirect costs
Cost to society, estimated at over EUR 20 bn direct cost to health-care, lost
due to both general exposure of population, pollution hotspots (& COVID)
Health impacts, 400.000 premature deaths each year across the EU,
ecosystem areas and in 73% of Natura2000 areas across the EU territory
Ecosystem impacts, eutrophication limits are being exceeded in 62% of
aligned with scientific evolving science’ and new
advice … recommendations
AAQDs
Insufficient penalties and
AQ Enforcement damages linked to
shortcomings exceedances
Fitness
Check
Exceedances are not
always addressed
sufficiently and/or timely …
Air quality plans and
measures have often proven
ineffective
+
AQ Governance Local air quality is impacted
shortcomings by emission outside control
European Policy Area 1
Green Deal Air quality plans do not
Some measures may seem ‘EU Standards
always address all sources
effectively ... disproportionate, ineffective
Monitoring rules offering
Zero AQ Assessment flexibility are ‘stretched’ in
shortcomings
Pollution
instances
Policy Area 2
Flexibilities may sometimes Modelling ability has ‘legislative frame’
impact the comparability of improved, allows for much
data … more details
Recovery AQ Information
Concerns about health
impacts have increased, not
plan shortcomings addressed Synergies with other EU policies, and in particular with the goals of the
Policy Area 3
(upcoming) EU Zero Pollution Action Plan
Public feels under-informed Public information is not ‘mon-mod-plans’
about poor air quality and always available, and not Administrative burden of air quality management, in particular as relates to air
its impacts … harmonised quality assessment regimesAir quality – revision of EU rules Air policy revision: focus on three policy areas Policy options to inform the level of ambition What stakeholders think about ambition levels Our timeline – clean air milestones 2020 to 2023
Air policy revision: focus on three policy areas Augment the current Ambient Air Quality Directives for three policy areas • Policy area 1: closer alignment of the EU air quality standards with scientific knowledge including the latest recommendations of the World Health Organization (WHO). • Policy area 2: improving the air quality legislative framework, including provisions on penalties and public information, in order to enhance effectiveness, efficiency and coherence. • Policy area 3: strengthening of air quality monitoring, modelling and plans. to be further developed into more detailed options/scenarios for each policy area, also based on inception impact assessment
Policy options to inform the level of ambition
Scenario 1: by 2030 Scenario 3: by 2030 Scenario 5: by 2030 Scenario 7: by 2030
ALL current standards WHO interim targets WHO guideline updated WHO guideline Assess at least seven scenarios for EU standards, based
on level of alignment with WHO recommendations (i.e.
Policy Area 1 (indicative limit values) (2005 or 2021, tbd) exposure levels (2005) exposure levels (2021)
WHO interim targets or guideline exposure levels – which
‘EU Standards’ Scenario 2: by 2050 Scenario 4: by 2050 Scenario 6: by 2050 date back to 2000/2005 and are being updated in 2021), in
WHO interim targets WHO guideline updated WHO guideline a mid-term (2030) or long-term (2050) perspective
(2005 or 2021, tbd) exposure levels (2005) exposure levels (2021)
Low ambition option: Mid ambition option: High ambition option:
Assess three options related to changes to the legislative
limited changes to criteria for reporting on mandatory rules on how
framework, in particular regarding rules on
Policy Area 2 legislative framework as provisions on penalties, provisions on penalties,
(a) penalties,
relates to penalties, information provision, and information provision, and
‘legislative frame’ information or action participation in planning participation in planning
(b) information provision,
(c) action required in case of exceedances.
are implemented are implemented
Low ambition option: Mid ambition option: High ambition option:
limited changes targeted changes comprehensive changes Assess three options related to revised technical
Policy Area 3 to current mon-mod-plans to current mon-mod-plans to current mon-mod-plans requirements for air quality monitoring, modelling and
framework framework framework plans (mon-mod-plans), including estimates of related
‘mon-mod-plans’ administrative burden and expected improvements.
Low ambition Mid ambition High ambition
Baseline package package packageWhat stakeholders think about ambition levels
Level of ambition implied by responses Based on feedback to inception
70 impact assessment in Jan 2021
(62 unique responses).
60
50 A high level of ambition for policy
area 1 was suggested by:
40
• 16 NGOs, 2 companies &
30 2 business assoc.
20
A low level of ambition for policy
10 area 1 was suggested by:
• 1 company & 9 business assoc.
0
Policy Area 1 Policy Area 2 Policy Area 2 Policy Area 3 Policy Area 3
[WHO] [INFO] [OTHER] [MON-MOD] [PLANS]
Similar picture for other policy
LOW MID HIGH-MID HIGH UNCLEAR NO COMMENT
areas, split less pronounced.Clean Air Milestones 2020 to 2023 (indicative)
Fitness Check Expert consultation Council discussions of
(note: published in Nov 2019) (on monitoring, modelling, plans) legislative proposal
(air quality - revision of EU rules)
Council Conclusions WHO Guidelines publication
(precise timing to be confirmed) Submission of Second
NEC Implementation Report Finalisation of National Air Pollution Control
(Commission Communication) Zero Pollution Action Plan Impact Assessment (air quality) Programmes begins
I / 2020 II / 2020 I / 2021 II / 2021 I / 2022 II / 2022 I / 2023 II / 2023
EEA Air Quality Report 2020 EEA Air Quality Report 2021 EEA Air Quality Report 2022 EEA Air Quality Report 2023
Inception Impact Assessment Public consultation: air quality Adoption: legislative proposal 4th EU Clean Air Forum
(revising the Air Quality Directive) (air quality - revision of EU rules) (air quality - revision of EU rules) (location to be determined)
Second Clean Air Outlook 3rd EU Clean Air Forum Review Gothenburg Protocol
(Commission Report) (in Madrid) (Air Convention)
Third Clean Air Outlook
(Commission Report)Contact us: env-air@ec.europa.eu Have your say: https://ec.europa.eu/info/law/better-regulation/have-your-say/initiatives/12677-Revision-of-EU-Ambient-Air-Quality-legislation Thank you
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