9.2 Delivery & achievements to date
Air Quality and Climate Change
9.2.1 This section deals with local air quality issues alongside climate change considerations in view of the need to consider the impacts of the same measures on both aspects. Previous rounds of Review and Assessment of air quality around Greater Manchester have identified likely exceedances of national objectives for nitrogen dioxide (NO2) and particulates (PM10). This indicates that there is still potential for detrimental health impacts from these particular pollutants within Greater Manchester, and therefore, along with carbon dioxide (CO2) they form the focus of the action plan. We are mindful of the new European and National objectives identified for smaller particulates (PM2.5) which are potentially more harmful to human health.
9.2.2 Our work to improve air quality has contributed towards managing the overall increase in carbon emissions from transport, and many authorities have now adopted challenging targets for reductions through Local Area Agreements.
9.2.3 In looking at air quality trends it is necessary to understand trends in both emission sources as well as using actual monitored data. The EMIGMA information box highlights work undertaken to upgrade the Emissions Inventory for Greater Manchester (EMIGMA), which is now the most comprehensive emissions data system in the UK. The EMIGMA update for 2006 shows that Greater Manchester is broadly on track to achieve emissions reductions for nitrous oxides from transportation and similarly the trend in carbon emissions is within the target trajectory in view of overall traffic growth in the conurbation
The Emissions Inventory for Greater Manchester
Improvements have been made to EMIGMA, (the EMissions Inventory for Greater MAnchester), which is an improved tool for decision making on air quality and carbon emissions.
A comprehensive upgrade to EMIGMA was undertaken in 2007, with more sophisticated modelling of traffic flows and an overhaul of other factor inputs. Crucially we now also have an inventory of CO2 emissions from electricity at point of use included within the EMIGMA which completes the CO2 emissions categories required for reporting against Kyoto targets. This also constitutes a significant improvement on the data used to produce the initial Greater Manchester emissions base line within the GMLTP2 document in 2006.
The EMIGMA is now one of the most comprehensive local emissions databases in the country and we believe this should set a benchmark for practice in other areas of the UK.
Emissions from local traffic
Following the upgrade, the 2005 baseline was revised, with further updates for 2006 due for completion by the end of 2008 and a 2007 update due in 2009. An emissions forecast for 2010 was also undertaken using inputs from the GM Strategy Planning Model and the sub-regional highway model.
The report for 2005 shows that transport emissions accounted for 60% of total emissions of oxides of nitrogen (NOX), 54% of total emissions of PM10 and 29% of total emissions of CO2.
The outputs from EMIGMA show two converse trends between local air pollutants and CO2. In 2010 road transport remains the largest source of emissions of Nitrogen Oxides (NOX) at 54% of total emissions, although there is a significant reduction of 27% from 2005 levels. This reduction is more significant on the local road network (33%). The picture for PM10 is less marked with a reduction of 14% from 2005 levels.
On the other hand, whilst road transport accounts for a lesser proportion of total CO2 emissions in 2005 (32%) this is forecast to increase by 7.5% by 2010. This increase is less than the 9% increase nationally forecast for 2010 (Sustainable Development Commission, 2005 - Climate Change Programme Review). Importantly the increase is only 1% on the local road network, whilst there is a forecast 17% increase from the motorway network.
9.2.4 The following section contains a summary of progress under the key Air Quality Strategy headings. More details on how each authority's air quality action plan, as well as information from GMPTE, the GM Freight Quality Partnership, the Highways Agency and Manchester Airport can be seen on www.gmltp.co.uk website.
Transport Management and Infrastructure
9.2.5 Infrastructure and traffic management improvements form an important part of the Greater Manchester approach to reduce emissions on two fronts. Firstly, improving network efficiency can reduce emissions from existing motor vehicle traffic. Secondly, a shift away from private motor vehicles can be achieved through provision of improved infrastructure for low emission or zero emission traffic (public transport, walking and cycling).
Case Study 23
Standish Town Centre Case Study
Problems and Issues prior to implementation
Standish is a small but vibrant town centre in Wigan, at a strategic crossroads. The town suffered from congestion and poor air quality, especially during peak periods, and lacked a pedestrian friendly, accessible environment.
Approach taken
The scheme was developed both to meet the four shared priorities, and also to revitalise the town centre. It had a particular focus on improving pedestrian accessibility. The scheme was the subject of extensive consultation through the local Township Forum and Ward Councillors.
MOVA was introduced in 2006 at the congested, signallised junction of A49 High Street and School Lane, in order to ease congestion by being more responsive to queues on the different arms. Additionally, footways were widened, junction radii tightened, and a raised zebra crossing and disabled parking bays provided. Other street scene enhancements were also made, such as tree planting.
Environmental enhancements, using high quality materials, were made in the historic area around St Wilfred’s Church, the only Grade I listed building in the Borough.
Funding Sources
The overall scheme costs were £280,000 funded from the Transport Infrastructure Fund. There was also a contribution from Maintenance and street scene funds.
Targets and Objectives Met
Air Quality & Congestion – the introduction of MOVA at the traffic signals has had a positive impact on air quality by relieving congestion. The enhanced pedestrian environment may encouraged more walking at the expense of motorised travel, further improving air quality.
Road Safety – The narrowing of junction mouths and the raised zebra crossing have had a positive impact on pedestrian safety in particular.
Accessibility – By improving the pedestrian environment and ensuring that facilities are available for all, Standish has become more accessible for pedestrians and those with mobility impairment.
Regeneration – the town centre is now a more attractive place to shop, visit and do business.
The scheme was very well received by residents, businesses and the Ward Councillors. Given its success, Wigan Council have a programme of similar town centre improvement schemes. Wherever possible, funding will be sought from other sources to fund the environmental enhancements.
9.2.6 Chapter 5 (Congestion and Network Management) provides detail on progress with delivering network management elements of the plan.
Regulation and Enforcement
9.2.7 Greater Manchester Authorities have implemented roadside emissions testing under the umbrella of the Cleaner Vehicles Campaign annually since 2003 and figures have demonstrated a decline in the failure rates year on year. An evaluation of the emissions testing over the first years of LTP2 is to be undertaken for the end of 2008. The campaign has also addressed smoky buses, taxis and commercial vehicles through a ‘one stop’ reporting system (www.cleanervehicles.org.uk) and partnership working between GMPTE, Taxi Licensing teams and VOSA. Manchester has also implemented an idling vehicles enforcement campaign, and this has led to a high degree of compliance by commercial operators.
9.2.8 Enforcement campaigns have proven to be very successful not only through the action of removing grossly polluting vehicles from the roads, but also through the accompanying publicity and awareness raising. As such this is an effective avenue through which awareness of local air quality issues (particulates in particular) can be raised, and the benefits for carbon emission reduction can be highlighted as well.
9.2.9 The GM Licensing Officers sub-group have considered the potential for incorporating an age limit as a licensing condition for taxis. This policy has been adopted by Manchester, Wigan and Oldham Councils, although this is still being considered by other Councils alongside other safety related conditions. In tandem with this most authorities are also implementing twice yearly emissions testing of 100% of the taxi fleet
Smarter Choices
9.2.10 Detail on progress with delivering Smarter Choices actions is given in Chapter 5. Through the studies undertaken by the Interdepartmental Group on Costs and Benefits it is clear that smarter choices can continue to provide significant value for money in delivering emissions reductions.
Planning Policy & Development Control
9.2.11 GM Authorities have continued to embed air quality considerations in development in particular through the transport assessment and travel plan avenues.
9.2.12 UDP and LDF policies have sought to address residential and business development within AQMAs where many of the key centres are located. This has been a balance between the need to reduce exposure to local air pollutants at levels that may be detrimental to health, and the overall approach to reducing local emissions of NOX, PM10 and CO2 through concentrating residential and business development in the centres that are well served by public transport and where facilities are accessible on foot and by cycle. The approach adopted by GM Authorities has been to continue to concentrate development in accessible centres accompanied with appropriate parking standards in order to minimise car use, whilst focusing on physical mitigation measures on site and in the immediate locality to reduce exposure to harmful pollutants to within national objectives. This is achieved through measures such as screening with trees and ensuring appropriate standards of ventilation in residential and business premises.
9.2.13 The Greater Manchester authorities are working together with the HA to undertake a conurbation-wide transport modelling exercise. This exercise will look at, amongst other things, the combined impact on air quality of the development aspirations through the ten combined core strategies.
Additional guidance
9.2.14 Work is underway to develop the common planning policy approach with regards to transport related emissions across Greater Manchester. Wigan Council adopted a Development and Air Quality SPD in September 2007 and other Councils have produced various additional guidance as part of broader sustainable transport SPDs.
Clean/Technology, Fuels and Practices
9.2.15 Whilst European directives and national timetables on the introduction of lower emission technology (Euro Standards) are likely to achieve significant reductions in emissions nationally through to the end of the LTP2 period, GM Authorities have scope to accelerate uptake of new technology through development control mechanisms and partnership working with fleet operators.
9.2.16 In relation to the former, as mentioned above, GM Authorities will be working together to agree an approach in relation to the new national Low Emissions Strategy consultation, as well as developing a Greater Manchester Fuel Strategy.
9.2.17 GM Authorities have been seeking and will continue to seek accelerated uptake of low emissions technology amongst its partners such as the Freight Quality Partnership, Manchester Airport and the bus operators. However, the first and most important action any authority can make to influence partners is to lead the way themselves.
9.2.18 All Authorities have developed baselines and have set ambitious targets for their own fleets, through Green Fleet Reviews. Measures have included accelerated uptake of Euro IV and now Euro V vehicles, such as Rochdale’s target to replace their fleet on a 5 year rotation, or Salford’s to replace HGVs on a 3 year rotation in order to take advantage of technological improvements. This will also contribute to GM Authorities’ work to establish LAA targets for NI185 and 186 as discussed above, as well as reporting on NI194 (% reduction in NOx and primary PM10 from LA estate and operations).
9.2.19 Authorities have also sought to maximise the use of alternative fuels. Most authorities have reported that their primary fleet fuel is now 5% biodiesel blend whilst a number have also trialled electric vehicles.
9.2.20 GMPTE have made considerable progress in promoting the uptake of new technology by public transport operators. Some key highlights are below:
- Two out of three buses in Greater Manchester switched to 5% bio-diesel during 2006.
- The number of buses with pollution reduction equipment to reduce harmful black smoke increased by 30% as a result of grants offered by the Energy Savings Trust and GMPTE.
- Almost one in five buses (17%) is now fitted with particulate traps.
Metrolink emissions
9.2.21 A major development has been the switching of the Metrolink network to hydro-electric power in July 2007. Metrolink is now the first UK tram system to use carbon free electricity for its traction current. Additionally, GMPTE have sought to reduce emissions from its own transport infrastructure. As an example following a successful solar-powered bus shelter trial, 50 solar shelters were fitted in 2007/8.
Manchester Airport ground transport emissions
9.2.22 Another significant development through the Manchester Airport Partnership has been a commitment to carbon neutral ground transport by 2015 which was expressed in the Manchester Airport Master Plan (2007) and accompanying Ground Travel Plan and Environment Plan.
Internal and External Partnerships
9.2.23 Many relevant partnership issues have already been discussed above and this section will briefly draw together the main themes and achievements and identify future opportunities for further working.
9.2.24 The GMLTP AQAP has been developed to reflect a multi-agency approach to addressing transport related emissions. In the previous 2 years we have been very successful in fostering joint working across disciplines within Local Authorities, and most notably between public protection and transport planning. We believe this is a significant achievement arising from the first 2 years of GMLTP2.
9.2.25 The LTP Air Quality Working Group has sought to strengthen working relationships with the HA, freight operators (through the Freight Quality Partnership), bus operators and VOSA in view of the significant potential for these organisations to deliver emissions reductions on the local network. Work with freight operators, bus operators and VOSA has already been discussed in the above sections.
9.2.26 Another significant achievement has been improvements to Airport ground transport through the Manchester Airport Partnership. The Airport’s Ground Travel Plan was revised in 2004 and was subject to wide public consultation as part of the Airport Master Plan in 2006.
Materials Recycling
9.2.27 GM Authorities have been working towards a benchmarking process for recycling of highway aggregates and use of recycled aggregates for highway structural maintenance and construction. Considerable progress has been achieved, for example in Stockport, where 100% of aggregates are recycled.
9.2.28 Following the introduction of the WEEE Directive (2007) all Local Authorities are now recycling street lighting electrical waste.
Noise
9.2.29 Whilst noise was identified in the SEA as a potential area where the LTP may have an adverse impact, there have been no measures leading to significant increases in noise arising from the implementation of the LTP and we are in line with the objective for noise identified in the SEA.
9.2.30 Many of the actions implemented through the AQAP can also contribute to reducing traffic noise although these benefits are not monitored through the plan.
9.2.31 GM Authorities are able to implement many additional improvements through highway maintenance. One particular measure has been the selection of noise reducing surfacing through structural maintenance programmes where practicable.
9.2.32 Noise emissions from road works are maintained within Health and Safety limits and are clearly documented with the Design Manual for Roads and Bridges (DMRB). GM Authorities are implementing the Control of Noise at Work Regulations (2005) which came into force in April 2006 and includes a more stringent noise threshold at which action should be taken. We continue to monitor and control noise from plant and equipment during highways operations. This ensures that overall noise is minimised for the public at large.
Biodiversity
9.2.33 The DMRB (Volume 11, Section 3) provides fairly detailed guidance on assessment of biodiversity impacts of transport schemes and all our maintenance and major scheme assessments comply with these requirements. This includes both impact avoidance and mitigation measures (such as mitigation banking through creation of alternative habitats) as recommended through the SEA.
9.2.34 Biodiversity is a key aspect that is being addressed through the development of individual Authorities’ TAMPs, particularly with regard to the control of invasive and noxious weeds and verge mowing regimes under anticipated changing climatic conditions. We recognise that climate change may have a significant impact on verge ecosystems and individual species’ growth patterns, and this will be addressed as part of Authorities’ Adaptation Strategies.
9.2.35 A practical action being carried out by all Authorities as part of their TAMPs is to develop comprehensive GIS based inventories of verges, TPOs, occurrences of noxious or invasive weeds and various landscape elements to inform the co-ordinated delivery of maintenance activities in line with bio-diversity objectives (such as in species selection).
9.2.36 GM Authorities have been proactively engaging with Natural England in the appraisal of major schemes such as in habitat surveys for Metrolink Phase 3a or the Greater Manchester Highway Retaining Walls Major Scheme and measures to control invasive weeds and protect habitats for Great Crested Newts as part of the Leigh Salford Manchester guided bus way scheme.
Water Management
9.2.37 The SEA dealt with three key issues in relation to surface water management namely the handling and treatment of polluted run off from road surfaces, the capacity of the drainage system itself and cleansing and maintenance of the existing highway drainage infrastructure.
9.2.38 The first two issues are linked insofar as they are based on the premise that the current drainage network which is largely through the public sewerage system and is likely to be put under increasing pressure from extreme rainfall patterns leading to increases in flooding and pollution events.
9.2.39 Some work has been undertaken to implement sustainable drainage systems (SUDS) and this has been incorporated into new road construction designs.
9.2.40 Through the development of Transport Asset Management Plans (TAMPs) individual authorities have developed detailed inventories of their highway gullies (see 10 ‘Maintenance and Asset Management’) in order to develop more proactive cleansing and gully repair programmes.