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Up in the air: EU ambient air quality standards

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Published 25 October 2006, updated 28 May 2012

EU lawmakers look set to clash over the ambient air quality directive next year after the Council took an opposite view from the Parliament's. The proposal is linked to future emissions standards for cars (Euro 5) to be agreed in November.

The Council of Ministers on 23 October 2006 voted to tighten pollution thresholds in ambient air that the European Parliament weakened just weeks before (EurActiv 27/08/06), setting the stage for a showdown when the two EU lawmaking bodies seek agreement next year.

The proposal to revise the EU Ambient air quality directive is now being forwarded to Parliament for a second reading due to take place in 2007.

The directive is the other side of a coin that also comprises tackling pollution at the source with the next generation of emission limits for cars (Euro 5) being approved separately.

In its current form, the proposal leaves unchanged existing rules relating to concentrations of fine dust particles with a diameter of less than 10 micrometer (PM10) which cause respiratory illness among humans.

The new element thus concerns a proposal to limit concentration levels of PM2.5, an even finer dust particle that is currently not regulated and which the Commission says is responsible for 350,000 premature deaths in Europe every year. 

The main elements of the Council's agreement are:

  • A non-binding target value for PM2.5 in 2010 to be replaced by a binding limit value in 2015 (25 micrograms(µ)/m3 for both target value and limit value);
  • the possibility to postpone attainment of the limit value for PM10 until three years after entry into force of the directive, and;
  • the possibility to postpone the deadlines for nitrogen dioxide (NO2) and benzene by a maximum of five years (until 1 January 2015).

In line with the Parliament's position, the revised proposal also leaves more flexibility for member states to adapt to local situations (hot weather, 'imported' pollution) which can worsen air quality.

Limit values, the Council agreed, should apply everywhere except in certain zones where they can be overshot: "Where they can demonstrate that they have taken all reasonable measures to implement the legislation but still need more time to comply with air quality standards in certain places, it is proposed to allow them to request a time-limited extension to the compliance deadline in the affected zones under certain conditions".

Positions: 

EU Environment Commissioner Stavros Dimas said he was "very pleased" by the Council's vote, adding that the directive would "reduce people's exposure to [PM2.5] by 20% between 2010 and 2019".

"Every year 370,000 people in Europe are dying prematurely from diseases linked to air pollution - 350,000 of them because of the fine dust particles known as PM2.5. We have to reduce these shocking figures, and for that we need an ambitious directive," Dimas said.

However, efforts at reducing emissions from cars recently suffered a setback when the Parliament's environment committee effectively delayed until 2011 carmakers' obligation to meet new standards known as Euro 5 (EurActiv 18/09/06).

The new schedule is in line with demands expressed by the European Automobile Manufacturers Association (ACEA). In a position paper last year, ACEA said "a 3 year minimum period is required for industrial development", meaning that it could plan introducing Euro 5 as from 2010 at the earliest. "Earlier pull ahead is not possible," ACEA stated. ACEA spokesperson Sigrid de Vries did not wish to comment on the report until its final approval in plenary. "We confirm our position from last year," she said.

But Green NGO Transport & Environment (T&E) says the technology is already there, pointing out that the new Mercedes-Benz E320 BlueTec already meets new NOx limit values in force in the US. The Parliament, said T&E, delayed those stricter limit values by postponing next generation emissions standards (Euro 6) to at least September 2015.

Jos Dings of T&E said: "Apparently Europe's cleanest, most innovative diesel engine technology is too good for Europeans. We'll have to carry on breathing dirty air until 2015, while the Yanks can stroll down to their local Mercedes dealer today and pick up a clean diesel car."

"For the pollutant PM2.5, Californian and even US federal air quality rules require limit values that are more than twice as strict as those being recommended by the European Parliament," said Finnish Green MEP Satu Hassi in a statement after the Council's vote.

Developments in the Parliament over Euro 5 standards were also met with concern by Yara, the multinational chemicals company based in Oslo, Norway. Yara said the Parliament committee vote last month was "a great disappointment for a wide range of stakeholders, not only for the NGO world, but also for the industry that has dared to look ahead and invest in the R&D of technology and infrastructure for NOx after-treatment systems".

"As EU legislation stands today, clean diesel cars with after-treatment systems will not be required in the EU until 2014/2015," said Yara in a feasibility paper. "The resulting effect is that European car manufacturers for the next nine years will export cleaner vehicles to the US and Japan than what will be available on the European market."

Air policy officer Kerstin Meyer at the European Environmental Bureau (EEB), a federation of 143 environmental NGOs, said: "At least ministers have made clear that they're not seeking as much extra time for meeting our air quality limits for particles as Parliament has recommended. We simply cannot afford to wait for cleaner air. The new car standards must therefore also be brought in sooner and they must be strengthened."

Next steps: 
  • November 2006: Euro 5 proposal expected to be voted on in Parliament Plenary
  • 2007: Second reading of the ambient air quality directive in Parliament and Council
  • 1 September 2009: planned introduction of new Euro5 standards for private cars
  • 1 September 2014: planned review of the Euro 5 standards for private cars (Euro 6)
  • 2015: planned revision of the ambient air quality directive
Background: 

The proposal to revise the directive on ambient air quality is part of a wider 'Thematic strategy on air pollution' put forward by the Commission in September 2005.

The most remarkable part of the strategy is a proposal to limit pollution from transport (cars, ships, and planes), agriculture and small industrial plants that are currently not covered by existing EU clean-air legislation.

According to the Commission, 370,000 people in Europe die prematurely every year from diseases linked to air pollution - 350,000 of them because of Particulate Matter of a diameter less than 2.5 micrometers (PM2.5).

Particulate matters are emitted either directly, (e.g by cars, diesel especially) or formed by a chemical reaction of other 'primary' pollutants (SO2, NOx, NH3) also emitted by vehicles but also by combustion processes in industrial plants and agriculture (NH3 in particular from fertilisers and animal wastes).

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