Executive Summary

This Air Quality Action Plan (AQAP4) has been produced as part of our statutory duties required by the Local Air Quality Management framework. It outlines the action we will take to further improve air quality in York over the next 5 years between 2023 and 2027 to go beyond health-based National Air Quality Objectives in all areas and to work towards meeting stricter World Health Organisation (WHO) Guidelines.

AQAP4 is fully aligned to the Council Plan and reflects ambitions contained within our 10-Year Strategies covering climate, health and wellbeing and the economy.

AQAP4 supports the aims of the council’s Health and Wellbeing Strategy by minimising and reducing public exposure to air pollution and raising public awareness about the impacts of air pollution on health. AQAP4 will also continue to ensure that new developments provide a safe and healthy environment for occupants, support active travel initiatives, and help to address health inequalities in the city. AQAP4 firmly embeds the Council Plan’s priority of sustainable, accessible transport for all and recognises the important continued role of modal shift in air quality improvement. AQAP4 strives to facilitate the uptake of low and zero emission modes of transport to allow York’s residents, workforce and visitors to travel sustainably.

AQAP4 additionally embeds the council’s commitment to healthy and affordable (energy-efficient) homes and has been developed to complement CYC’s Climate Change Strategy and support the guiding principles of our Economic Strategy, which aims to build inclusive, healthy and sustainable communities.

This action plan updates and replaces the previous action plan (AQAP3) which ran from September 2015 and was the principal delivery mechanism for York’s Low Emission Strategy (LES) produced in October 2012. For the current, updated AQAP, a comprehensive review of previously adopted air quality improvement measures has been undertaken. Where still relevant to York’s air quality issues and principal emission sources, measures and targets have been updated to ensure they strive to achieve continual improvement in air quality across the city over the next 5-year period to improve public health outcomes.

Additional measures are included in AQAP4 to reflect:

· the growing evidence base around air quality and health impacts of fine particulate matter, together with new targets introduced through the Environment Act 2021 and obligations for local authorities outlined in DEFRA’s Air Quality Strategy;

· updated emissions source apportionment work for City of York Council’s area;

· the current air quality position across the city with respect to health based Air Quality Objectives, and

· additional work undertaken in relation to freight movements since publication of the last AQAP in 2015.

The complete list of measures is provided in table 5.13 in chapter 5.

Projects delivered through AQAP3 include:

· York’s first fully electric Park & Ride site at Poppleton Bar and the introduction of electric buses across other Park & Ride sites. Five out of six sites are now operating solely using electric buses. The fully electric fleet on the York Park and Ride has been now been expanded to 33 buses and includes one of the largest fleets of electric double decker buses outside London.

· A Clean Air Zone (CAZ) for buses. Buses making 5 or more entrances to the city centre CAZ per day are now required to be Ultra Low Emission Buses (ULEB) (Euro VI diesel or electric).

· A Low Emission Taxi Grant scheme for taxi drivers licensed by City of York Council. We have encouraged over a third of the York taxi fleet to change to low emission alternatives (petrol hybrid or electric); a significant number of these have been supported by our innovative taxi grant scheme. We have also strengthened Taxi Licensing policy and introduced conditions about the types of vehicles that can be licensed.

· Delivery of extensive ‘pay as you go’ fast and rapid charge public electric vehicle recharging facilities across the city. In addition, we have delivered ultra-rapid charging facilities via our network of charging Hyper-Hubs.

· Introduction of low emission vehicles into City of York Council’s fleet, including a number of fully electric waste collection vehicles.

· Development of draft Low Emission Planning Guidance to outline our design and mitigation expectations for all new developments in the city

· Launched an ECO-Stars Fleet Recognition Scheme. The scheme attracted fleet membership from 106 organisations and has provided advice on operational best practice.

· Implemented a package of measures aimed at deterring stationary vehicles from idling, including a ‘Kick the Habit’ anti-idling awareness raising campaign aimed at encouraging people to think about the importance of clean air and the impact this has on their health. The campaign has been supported with anti-idling signage across council owned car parks, city centre bus stops, taxi ranks and other key locations across the city. We have also worked in partnership with local schools and other partner organisations to raise awareness of idling emissions.

In addition to the above, York continues to deliver on walking, cycling and public transport improvements through the Local Transport Plan and I-Travel York Sustainable Travel programmes.

The case for clean air and improving health outcomes

Air pollution is associated with a number of adverse health impacts. It is recognised as a contributing factor in the onset of heart disease and cancer. Additionally, air pollution particularly affects the most vulnerable in society: children and older people, and those with heart and lung conditions. There is also often a strong correlation with equalities issues, because areas with poor air quality are also often the less affluent areas^{^[1]}^{,^[2],[3]}.

The mortality burden of air pollution within the UK is equivalent to 29,000 to 43,000 deaths at typical ages[4], with a total estimated healthcare cost to the NHS and social care of £157 million in 2017[5]. City of York Council is committed to reducing the exposure of people in York to poor air quality in order to improve health. It is estimated that long-term exposure to air pollution (specifically fine particulate, PM_2.5) was a contributory factor to the cause of death in 4.4% of deaths (approximately 90) in York in 2021[6].

Air pollution can also have economic impacts through sickness absence and reduced productivity of a workforce. This, in turn, can affect goods, services and supply chains. Impacts on the economy can also arise through damage to historic monuments (and associated restoration costs) and impacts on ecosystem processes affecting drinking water, timber production and nature (and associated remediation costs). DEFRA has previously estimated that poor air quality cost the economy £2.7 billion through its impact on productivity[7].

Residents, commuters through the city and those who work in York were invited to participate in Our Big Conversation during 2021 and 2022, a city-wide discussion helping the city to get to grips with some of the biggest challenges facing York over the next decade, including transport priorities and associated air quality impacts, carbon reduction and York’s economy. More than half of York residents consider congestion to be a very serious problem in York, with almost half considering local air pollution from traffic and the impact of traffic on climate change to be very serious issues. The survey indicated clear support for continued action to improve walking and cycling facilities and to deliver continued improvements to public transport. Well over half of residents recognised the need to reduce idling emissions, with over half of residents having either already switched to electric or hybrid vehicles (8%) or planning to switch to these modes in the future (43%). Residents indicated clear support for CYC’s investment in EV charging infrastructure, with over half supporting additional charge points to enable the wider uptake of ultra-low and zero tailpipe emission vehicles. Views of York’s residents and workforce reflect a positive shift in priorities nationally with respect to the environment, air quality and health. Local action has been facilitated in part through the government’s active travel programme to support active travel schemes throughout the pandemic and into the future. CYC provisionally allocated £3.3 million to support active travel schemes to be implemented by the end of 2023.

Source contributions and the role of transport

There has been a general downward trend in NO₂ concentrations monitored across the city since 2012. The reductions observed are related to improvements in traffic emissions generally, changes in background air quality and local initiatives introduced through AQAP3, LTP3 and CYC’s wider sustainable travel programmes. Despite these improvements, there remain a number of areas around the inner ring road (within the existing Air Quality Management Area (AQMA) boundary) where exceedances of the annual mean NO₂ objective have been monitored in recent years.

Emissions of oxides of nitrogen (NO_x) and man-made particulate must be reduced to meet the health based national air quality objectives in York to improve public health. AQAP4 recognises that there are no ‘safe’ limits for fine particulate emissions (PM_2.5) and CYC will aim to work to reduce particulate emissions as far as practically possible in line with new Environment Act (2021) commitments.

Our latest source apportionment work has demonstrated that across York’s area, the transport sector continues to be the largest contributor (57%) to total NO_x emissions compared to 15% and 17% of PM₁₀ and PM_2.5 emissions respectively. Road transport is responsible for most of these emissions, with a smaller contribution from sources such as non-road mobile machinery (NRMM) and railways. In comparison, domestic combustion makes up 17% of NO_x emissions compared to 23% of PM₁₀ emissions and 37% of PM_2.5 emissions. It should be noted that the exact contribution from road transport will vary by location and in some urbanised areas will be considerably higher than the figure stated above.

Of the road transport emission contribution, cars are the dominant source of NO_x emissions, comprising over half the traffic emissions on the majority of York roads, and having a much greater contribution on many roads. For example, the contribution from cars in areas of poorer air quality, such as Gillygate and Holgate/Blossom Street, ranged from 64% to 87%. Recent survey work has shown that petrol and diesel vehicles still represent the majority of the car fleet, with around 6% of cars being either electric-hybrid or fully electric.

Light goods vehicles (LGVs)[8] are responsible for less than 10% of road traffic NO_x emissions on the majority of roads, but are more significant in certain areas such as the outer ring road and on key arterial routes, representing up to 25% of total road traffic emissions.

Heavy Goods Vehicles (HGVs)[9] are a significant emission source on the majority of major roads including the outer ring road, key routes into York, and the inner ring road / AQMA, where they contribute between 15 – 25% of the total road NO_x emissions, although there are a few areas around the city centre where HGVs are more significant and contribute between 35% and 55% of the total road traffic NO_x emissions, including at Bootham, Lawrence Street, Barbican Road/Cemetery Road, Hull Road, Lord Mayors Walk and Tower Street. Although there are far less HGVs than cars, these larger vehicles contribute disproportionately to elevated pollution levels in a number of areas. This is consistent with findings from earlier source apportionment work and AQAPs for York.

Bus emissions are less than 10% of the total road transport NO_x emissions on the majority of streets and are most significant on roads with proportionally less emissions, where bus flows form a larger proportion of the overall traffic. Across areas with elevated total NO_x emissions, such as George Hudson Street and Blossom Street, bus emissions generally contribute between 10 and 25% of the total and are therefore still contributing disproportionately to elevated pollution in some areas. It should be noted that the relative contribution of buses to total road NO_x in the city centre has been reduced significantly in recent years due to the Clean Air Zone and upgrades to vehicles servicing high frequency routes. This has been progressed in parallel to the transition to zero tailpipe emission electric buses serving York Park & Ride routes.

Our previous action plan (AQAP3) was adopted by CYC in 2015. AQAP3 previously estimated that reductions in road NO_x of up to 65% would be required to achieve the annual mean NO₂ objective in all locations around the AQMA; the reduction in NO_x emissions required has now reduced by 40% to 25%. Whilst vehicle technology improvements, associated improvements in vehicle emissions and fall in background pollution concentrations in York are responsible for some of the improvements in air quality seen across the city in recent years, there has been a marked reduction in NO₂ concentrations across the AQMA over the last 6-7 years, undoubtedly accelerated due to local air quality interventions delivered during AQAP3, such as upgrades to the York bus and taxi fleets, wider and more accessible EV charging facilities promoting EV uptake, education and awareness around anti-idling, low emission planning measures, sustainable travel initiatives and improvements to walking and cycling infrastructure. The continued success of these measures must be recognised and reflected in AQAP4, which will build on the successful initiatives and programmes delivered to date, with new targets set to reflect CYC’s future ambition.

Actions and priorities for AQAP4

For this updated AQAP, in line with DEFRA guidance, we have outlined 26 actions that can be considered under 10 broad topics[10] as follows:

· Environmental permits

· Freight and delivery management

· Policy guidance and development control

· Promoting low emission plant (includes control of domestic emissions and energy advice services)

· Promoting low emission transport

· Promoting travel alternatives

· Public information (and awareness raising)

· Transport planning and infrastructure

· Traffic management

· Vehicle fleet efficiency

The priority areas that AQAP4 will address are as follows:

· Reduce emissions from freight / delivery vehicles - Measures to reduce emissions from HGVs and LGVs will be an important part of City of York Council’s ongoing strategy for air quality improvement, especially in the city centre AQMA. CYC will continue feasibility work to address first/last mile delivery of light goods in York as part of the development of a city-wide ‘Movement Plan’ and will work with partners to evaluate low emission delivery modes. We will also progress a pilot project to test a ‘micro-consolidation centre’ for the purpose of distributing commercial light goods around the city centre and will consider the feasibility of extending the Clean Air Zone to include HGVs / freight vehicles.

· Reduce emissions from York buses - CYC will continue to work in partnership with bus operators to improve bus provision for all service users. Whilst considerable progress has been made to clean up York’s buses in recent years, CYC must continue to address emissions from lower frequency services and strive to maximise the number of services operating fully electric buses to further reduce exhaust emissions. CYC will work with partners to deliver further bus upgrades (including an all-electric urban bus fleet), using secured DfT funding and consider the feasibility of extending the Clean Air Zone (for buses) to other areas, including York Central. Recent ZEBRA funding will enable 55% of York’s buses to be fully electric by late 2023.

· Reduce emissions from idling vehicles - CYC will raise awareness of the impact of idling vehicle emissions upon public health through our ‘Kick the Habit’ anti-idling awareness / behaviour change campaign, supported by regular anti-idling patrols.

· Reducing emissions from taxis - CYC will continue to work with the taxi trade to facilitate the transition to low emission vehicles via the use of incentives and awareness raising. This will be supplemented by further revisions to Taxi Licensing policy to phase out older, more polluting taxis, following consultation with the taxi trade. We will also explore further opportunities for minimising emissions from taxis in the city centre, including the feasibility of including them within the Clean Air Zone.

· Reduce emissions from CYC vehicles - CYC recognise that the way our own fleet vehicles are renewed is a vital part of the CYC air quality improvement / carbon reduction programmes and that the transition to a cleaner, greener fleet must be done without compromising the essential services CYC delivers to the city and its residents. We also recognise that we must lead by example; the successful operation of ultra-low and zero emission vehicles as part of the CYC fleet will show leadership and will act as a catalyst for other fleet operators in the city to upgrade their vehicles and accelerate their renewal programmes.

· Expand EV charging - CYC’s EV Charging Strategy sets out the rationale for the number and location of public EV charging points, the principles of tariff-setting and CYC’s approach to providing charging for residents in streets without off-road parking. CYC will deliver additional fast and rapid charge points and actively monitor plug-in vehicle uptake in the city to ensure our charging network remains fit for purpose. We will undertake an evaluation of the recently opened HyperHub charging sites and deliver additional sites (subject to consultation).

· Minimise development related emissions - AQAP4 will align with CYC’s Climate Change Strategy, including planning policies and local guidance. CYC will continue to ensure that emissions and air quality impacts from new developments are appropriately assessed and mitigated (including during construction), exposure to poor air quality is reduced via good design practices and that new private trips are minimised via provision of opportunities for sustainable transport.

· Provide local incentives for low emission vehicles and alternative fuels - CYC is committed to further encouraging the wider uptake of ultra-low emission and zero tailpipe emission vehicles (and other micro-mobility modes) via development of incentives and rewards. Such incentives will complement other work priority areas identified.

· Improved public information and awareness - Delivering clear messages to the public around the cause and consequence of poor air quality, particularly around impacts on health, are particularly important for driving behaviour change. Campaigns relating to issues such as energy efficiency, domestic smoke control, bonfires, fireworks and indoor air quality can all be valuable parts of a wider local air quality improvement strategy. CYC will continue to address these wider issues, alongside existing public information campaign work relating to sustainable transport provision in the city.

· Modal shift, active travel and network improvement - Measures to reduce trips, encourage modal shift away from private vehicles towards active travel modes such as walking and cycling, and reduce congestion are considered fundamental to any air quality improvement programme for York. CYC’s Local Transport Plan (LTP) continues to be an intrinsic part of the overall approach to air quality improvement and transport-based emission reduction across the city, with active travel at the apex of the city’s travel hierarchy. We will explore specific traffic management options for Gillygate to reduce emissions and improve air quality.

· Regulation of industrial and domestic emissions - In addition to reducing transport emissions, AQAP4 also has a role to play in reducing emissions associated with domestic and industrial combustion, particularly fine particulate matter (PM_2.5). AQAP4 also recognises the synergies with CYC’s carbon reduction programme and measures to improve energy efficiency and support services.

· Monitor air quality / access to air quality information - Monitoring allows CYC to assess compliance with Air Quality Objectives, evaluate the effectiveness of air quality improvement interventions and provide reliable information to York’s residents, visitors and workers to help them reduce exposure. We will ensure that the location and type of monitoring in the city is reviewed annually and remains relevant and targeted to key sources and pollutants. We will seek further opportunities to improve access to air quality information by residents, especially vulnerable groups.

In this updated AQAP we outline how we plan to effectively tackle air quality issues within our control. However, we recognise that there are a large number of air quality policy areas that are outside of our influence (such as vehicle emissions standards agreed in Europe), but for which we may have useful evidence, and so we will continue to work with regional and central government on policies and issues beyond CYC’s direct influence.

Consultation and strategic alignment

A draft version of AQAP4 was approved for public consultation by the Executive Member for Environment and Climate Emergencyon XXXX 2023. On online consultation questionnaire was made available on CYC’s website between X and X dates to seek feedback on the draft document. In total, X people took part in the consultation; responses have fed into this final version of AQAP4. Further information about consultation activities is provided in chapter 4 and in Appendix A.

Measures in AQAP4 to reduce transport emissions have been informed by consultation and ‘conversations’ around transport and environmental priorities progressed throughout 2021 and 2022. Widespread engagement with York’s residents, workers and businesses as part of York’s ‘One Big Conversation’ brought together the overlapping themes of transport, economy and carbon reduction.

AQAP4 is fully aligned to the Council Plan and reflects ambitions contained within our 10-Year Strategies covering climate, health and wellbeing and the economy.

AQAP4 has been developed to complement CYC’s Climate Change Strategy (2022-2032). Ongoing delivery of AQAP4 must strive to maximise synergies with this strategy; it must also prevent conflicts. Consideration has been given to these issues in preparation of AQAP4 to ensure measures remain appropriate for addressing local air quality and climate change alike.

Measures in AQAP4 support CYC’s Health and Wellbeing Strategy (2022-2032), which aims to tackle health inequalities and promote healthy lifestyles. AQAP4 measures also align with and complement the guiding principles of CYC’s Economic Strategy (2022 – 2032) which aim to build inclusive, healthy and sustainable communities by promoting the positive social and environmental benefits of economic development and working with local businesses to build “green” skills.

AQAP4 is part of the Strategy and Policy Framework (approved by Council in December 2022) that shows how strategic ambition will be delivered through a series of plans, including the Local Plan, The Local Transport Plan (LTP), the Council Plan and this Air Quality Action Plan (AQAP4). CYC’s wider ambitions for not only delivering a green transport network and increasing public and active transport, but also for achieving Net Zero by 2030, reducing health inequalities and improving wellbeing, and supporting a thriving and green economy are all set out in our 10-Year Strategies.

Through previous AQAPs, CYC has already delivered many measures to reduce emissions and protect and improve the health of its residents. However, with an increasing population and further development, preventing emission growth and improving air quality further remain significant and difficult challenges for the foreseeable future. Alongside CYC’s complementary strategies, AQAP4 will continue to work towards our ultimate aspiration of becoming an internationally recognised ultra-low emission city, offering some of the best urban air quality in the UK. We will take bold action to reduce air pollution beyond statutory National Air Quality Objectives and work towards meeting much stricter World Health Organisation (WHO) guidelines.

Responsibilities and Commitment

This AQAP was prepared by the Public Protection Department of City of York Council with the support and agreement of the following officers and departments:

· SUGGESTED LIST THAT NEED TO REVIEW DRAFT, OR REPS

· James Gilchrist (Director of Transport, Environment and Planning)

· Peter Roderick (Acting Director, CYC Public Health)

· Matt Boxall (Head of Public Protection, CYC Public Protection)

· Mike Southcombe (CYC Public Protection Manager)

· Andrew Gillah (Principal Air Quality Officer, CYC Public Protection)

· Julian Ridge (Local Transport Plan Lead, CYC Transport Planning)

· Andy Vose (Local Transport Plan Manager, CYC Transport Planning)

· Shaun Gibbons (Head of Carbon Reduction, CYC)

· Simon Brereton (Head of Economic Growth, CYC)

· Leigh Bell (Public Health Specialist Practitioner, CYC Public Health)

· Andrew Leadbetter (Project Manager, CYC EV Strategy)

· Ian Hoult (Head of Fleet and Operations, CYC)

· Graham Titchener (Head of Parking Services, CYC)

· Becky Eades (Head of Planning and Development Services)

· Alison Cooke (Head of Strategic Planning Policy, CYC Integrated Strategy)

· Duncan McIntyre (Active Travel Manager, CYC)

· Michael Howard (Head of Active and Sustainable Transport, CYC)

· Christian Wood (Head of Programmes and ITS)

· Claire Foale (AD Policy and Strategy, CYC)

This AQAP has been approved by:

· Cllrs xxxxxxxx, Executive Members for Environment and Climate Emergency – subject to approval

This AQAP <has > been signed off by the Director of Public Health.

This AQAP will be subject to an annual review and appraisal of progress. Progress each year will be reported in the Annual Status Reports (ASRs) produced by City of York Council, as part of our statutory Local Air Quality Management duties.

If you have any comments on this AQAP please send them to City of York Council’s Public Protection team at:

Address: City of York Council, Public Protection, Hazel Court Eco Depot, James Street, York, YO10 3DS

Telephone: (01904) 551525

Email: public.protection@york.gov.uk

Table of Contents

Executive Summary. i

The case for clean air and improving health outcomes. iii

Source contributions and the role of transport v

Actions and priorities for AQAP4. vii

Consultation and strategic alignment x

Responsibilities and Commitment xii

1 Introduction.. 1

2 Summary of Current Air Quality in York. 2

2.1 Review and Assessment of air quality. 2

2.2 Previous AQAPs for York. 3

2.3 Current air quality in York and recent trends. 4

3 City of York Council’s Air Quality Priorities. 10

3.1 Public Health Context 10

3.1.1 Public Health Outcomes Framework (PHOF) 13

3.1.2 National Institute for Health and Care Excellence (NICE) Guidelines. 14

3.1.3 City of York Council Public Health. 14

3.2 Planning and Policy Context 15

3.2.1 The Council Plan 2023 to 2027. 15

3.2.2 York Low Emission Strategy (LES) 16

3.2.3 Local Transport Strategy (LTP3 / LTP4) 17

3.2.4 York’s Joint Health and Wellbeing Strategy 2022-2032. 18

3.2.5 York’s New Local Plan. 18

3.2.6 York Climate Change Strategy 2022 - 2032. 19

3.3 Source Apportionment 21

3.3.1 Updated Source Apportionment Work for AQAP4. 22

3.4 Required Reduction in Emissions. 32

3.4.1 Progress since AQAP3 and implications for AQAP4. 36

3.5 Potential NO_x emission reduction through AQAP4 traffic measures. 37

3.6 Key Priorities. 40

3.7 AQAP4 Air Quality Indicators. 46

4 Development and Implementation of City of York Council’s AQAP.. 50

4.1 Consultation and Stakeholder Engagement 50

4.1.1 Consultation on AQAP4 draft document 50

4.1.2 Summary of LTP consultation ‘Our Big Conversation – Transport Strategy’ 51

4.2 Steering Group Activities. 55

5 AQAP Measures. 58

5.1 Measure evaluation and cost benefit analysis. 58

5.2 AQAP4 Priority Areas. 60

5.2.1 Reducing emissions from freight / deliveries. 60

5.2.2 Reducing emissions from buses. 63

5.2.3 Anti-Idling Initiatives. 65

5.2.4 Reducing emissions from taxis. 68

5.2.5 Reducing emissions from CYC vehicles. 70

5.2.6 Expansion of EV charging network. 73

5.2.7 Minimise development related emissions. 76

5.2.8 Local incentives for low emission vehicles / modes. 78

5.2.9 Improved public information and awareness. 81

5.2.10 Modal shift, active travel and network improvement 84

5.2.11 Regulation of industrial and domestic emissions. 88

5.2.12 Monitoring air quality and access to air quality information. 91

Appendix A: Response to Consultation.. 103

Appendix B: Reasons for Not Pursuing Action Plan Measures. 104

Appendix C: Cost-benefit summary. 107

Glossary of Terms. 111

References. 112

List of Tables

Table 3. 1 NAEI source sector descriptions. 23

Table 3. 2 NO_x emissions contributions from traffic on selected roads. 29

Table 3. 3 PM_2.5 emissions contributions from traffic on selected roads. 30

Table 3. 4 Reductions in NO₂ required within current AQMA.. 33

Table 3. 5 Reduction in roadside NO_x required within current AQMA.. 34

Table 3. 6 Changes in annual NO_x emissions (kg/y) under each scenario. 38

Table 3. 7 Summary of long-term AQ Targets and WHO Guideline Values for NO₂, PM₁₀ and PM_2.5 and commentary on York position.. 46

Table 4. 1 Consultation Undertaken.. 50

Table 5. 1 Reducing emissions from freight 62

Table 5. 2 Reducing emissions from buses. 64

Table 5. 3 Anti-idling initiatives. 67

Table 5. 4 Reducing emissions from taxis. 69

Table 5. 5 Reducing emissions from the CYC fleet 72

Table 5. 6 Delivery of strategic EV charging network. 75

Table 5. 7 Minimise development related emissions. 77

Table 5. 8 Local incentives for low emission vehicles and modes. 80

Table 5. 9 Improved Public Information.. 83

Table 5. 10 Modal shift, active travel and network improvement 86

Table 5. 11 Regulation of industrial and domestic emissions. 90

Table 5. 12 Monitoring air quality in York. 92

Table 5. 13 Air Quality Action Plan Measures: 2023 – 2027. 94

Table A. 1 Summary of Responses to Consultation and Stakeholder Engagement on the AQAP 103

Table B. 1 Action Plan Measures Not Pursued and the Reasons for that Decision.. 104

Table C. 1 Summary of cost-benefit analysis. 107

List of Figures

Figure 2. 1 Current AQMA boundary (Order No.5) 3

Figure 2. 2 Maximum NO₂ concentrations monitored at a relevant location across key areas of the current AQMA.. 6

Figure 2. 3 Trends in PM₁₀. 8

Figure 2. 4 Trends in PM_2.5. 8

Figure 3. 1 Impacts of air pollution throughout life. 11

Figure 3. 2 Air pollution and health inequalities. 11

Figure 3. 3 Source apportionment of NAEI sources of NO_x in CYC’s area. 24

Figure 3. 4 Source apportionment of NAEI sources of PM₁₀ in CYC’s Area. 24

Figure 3. 5 Source apportionment of NAEI sources of PM_2.5 in CYC’s area. 25

Figure 3. 6 Breakdown of PM_2.5 emissions from ‘domestic combustion’ NAEI sector 26

Figure 3. 7 NO_x emissions traffic source apportionment for selected roads. 31

Figure 3. 8 Percentage reductions in NO₂ (AQAP3 vs AQAP4) 35

Figure 3. 9 Percentage reduction in road NO_x (AQAP3 vs AQAP4) 35

Figure 3. 10 Air Quality ‘Indicator 3’ baseline (2022) and annual targets. 49

3 City of York Council’s Air Quality Priorities

3.1 Public Health Context

Air pollution is the largest environmental risk to public health in the UK. The mortality burden of air pollution (based on both PM_2.5 and NO₂) in the UK, is equivalent to 28,000 to 36,000 deaths at typical ages[13] with a total estimated healthcare cost to the NHS and social care of £157 million in 2017[14].

Epidemiological studies have demonstrated that long-term exposure to air pollution can reduce life expectancy, mainly due to cardiovascular diseases, respiratory conditions and lung cancer. In addition, short-term exposure (over hours or days) to elevated levels of air pollution can also cause health impacts, such as reduced lung function, exacerbation of asthma, increases in respiratory and cardiovascular hospital admissions and mortality[15]. Emerging evidence suggests that air pollution may also affect the brain, with suggested links to dementia and cognitive decline. The health effects of air pollution are varied and complex and can affect everyone, at all stages of life, as illustrated in figure 3.1 below. The focus of the Chief Medical Officer’s Annual Report in 2022 was air pollution; the report lays out the scale of the challenge of reducing air pollution, the substantial progress that has been made and highlights achievable solutions.

Figure 3. 1 Impacts of air pollution throughout life

Title: Impacts of air pollution throughout life - Description: Figure showing health effects of air pollution throughout lifetime

Image from Public Health England: Health Matters

Whilst air pollution can be harmful throughout life and across all age groups, some people are more affected, perhaps because they are exposed to higher levels of air pollution in their day to day lives, live in polluted areas, or are more susceptible to air pollution related health issues, see figure 3.2 below.

Figure 3. 2 Air pollution and health inequalities

Title: Air pollution and health inequalities - Description: Figure showing inequalities to exposure to air pollution. Air pollution has the greatest impact on the most vulnerable

Image from Public Health England: Health Matters

Air pollution also impacts people of working age, resulting in economic impacts through sickness absence and reduced productivity of a workforce. This, in turn, can affect goods, services and supply chains. Impacts on the economy can also arise through damage to historic monuments (and associated restoration costs) and impacts on ecosystem processes affecting drinking water, timber production and nature (and associated remediation costs). DEFRA estimated that in 2012, poor air quality cost the economy £2.7 billion through its impact on productivity[16]. The coronavirus pandemic has clearly demonstrated the critical link between human health, economic prosperity and resilience.

Due to overwhelming evidence that PM_2.5 (particulate matter with an aerodynamic diameter of 2.5μm or less) has a significant impact on human health, including premature mortality, allergic reactions and cardiovascular diseases, local authorities and their associated public health departments are expected to work towards reducing emissions and/or concentrations of fine particulates. DEFRA acknowledge that many local authorities will consider how to address PM_2.5 alongside other pollutants when tackling their own vehicle fleets and services and/or work with communities and businesses to achieve improvements in air quality and that few standalone PM_2.5 measures will be chosen unless in order to address a very specific local problem.

Whilst this updated AQAP is focussed on reducing concentrations of NO₂ (as this is the pollutant for which the current AQMA is declared) it contains a number of measures to specifically target particulate matter. It should also be recognised that a number of the air quality improvement measures developed to address NO₂ concentrations within the AQMA will also have mutual benefit in terms of reducing particulate matter. The current AQAP will therefore have additional public health benefits over and above those delivered via a reduction in NO₂ concentrations within the current AQMA. It should also be acknowledged that delivery of wider public health objectives / benefits, such as reducing obesity and improving mental health wellbeing, will also be delivered indirectly as a result of AQAP4, via promotion of active travel options such as walking and cycling and associated increased levels of physical activity.

Effective local action to reduce air pollution and improve public health requires an inclusive, multi-disciplinary approach across local authority functions involving spatial and transport planners, environmental and public health teams, local political and community leaders and the public. AQAP4 aims to strengthen the existing partnerships across CYC functions, to deliver continual improvement in air pollution and improve public health outcomes in the city.

3.1.1 Public Health Outcomes Framework (PHOF)

The Public Health Outcomes Frameworkincludes an indicator relating to the fraction of mortality attributable to particulate pollution. This indicator enables Directors of Public Health to prioritise action on air quality in their local area to help reduce the health burden from air pollution. Indicator D01 ‘Fraction of mortality attributable to particulate air pollution’ is defined as the fraction of annual all-cause adult mortality attributable to particulate air pollution (concentrations of total PM_2.5). It can be viewed as the mortality burden associated with long-term exposure to particulate air pollution at current levels, expressed as the percentage of annual deaths from all causes in those aged 30 and over.

It is estimated that long-term exposure to air pollution (specifically fine particulate, PM_2.5) was a contributory factor to the cause of death in 4.4% of deaths (approximately 90) in York in 2021[17]. This figure is less than the figure reported for the wider Yorkshire and Humber region in 2021 (5.0%) and less than the average figure reported for England in 2021 (5.5%).

It is widely accepted that fine particulate matter has a significant impact on both morbidity and mortality and diesel emissions have been classified as carcinogenic by the International Agency for Research on Cancer (part of the World Health Organisation). There is particular concern about the ‘black carbon’ fraction of particulate matter due to its health impacts, and its strong ability to absorb light energy and increase global warming. Black carbon emissions in urban environments arise predominantly from diesel transport, but are also a product of biomass combustion, used increasingly for energy production and space heating.

Emissions of oxides of nitrogen (NO_x) and man-made particulate must be reduced to meet the health based national air quality objectives in the remaining areas of York, work towards meeting World Health Organisation (WHO) Guidelines and improve public health. AQAP4 recognises that there are no ‘safe’ limits for particulate emissions (particularly PM_2.5) and CYC will strive to reduce such emissions as far as practically possible. We will continue to work with regional and central government on policies and issues beyond CYC’s direct influence to achieve this aim.

3.1.2 National Institute for Health and Care Excellence (NICE) Guidelines

In 2020, NICE updated recommendations regarding road traffic related air pollution and policy options and interventions for improving local air quality. Interventions to reduce emissions and exposure to road-traffic related air pollution, included within NICE recommendations are as follows:

· Greater consideration of air quality issues during the planning process, to include the provision of charging points for electric vehicles in workplaces, commercial developments and residential areas to facilitate low and zero-emission travel. Minimising exposure of vulnerable groups to air pollution via careful design and siting of developments should also be a consideration.

· Use of Clean Air Zones to provide restrictions on certain classes of vehicle and to support zero and low-emission travel.

· Reducing emissions from public sector transport services and vehicle fleets

· Encouraging smooth driving and speed reduction

· Providing support for active travel and provide a choice of cycle routes, including routes that avoid highly polluted roads and utilise quiet streets or segregated routes.

During the development of AQAP4 and the measures contained within this document, consideration has been given to the NICE recommendations above.

3.1.3 City of York Council Public Health

The work of the Public Health Team is driven by the Council Plan and the Joint Health and Wellbeing Strategyfor York, which is informed by the Joint Strategic Needs Assessment. The York Health and Wellbeing Board sets the strategic vision and direction for health and social care in the city and has a number of statutory responsibilities. Whilst it is a formally constituted Committee of the Council in terms of governance it is a partnership and legislation sets out a minimum membership of at least one council elected member, representatives from NHS Humber and North Yorkshire Integrated Care Board (ICB), directors of adult social services, children’s services and public health, a representative from local Healthwatch (an independent consumer champion for healthcare) and a representative of NHS England, when required. In York we have expanded this membership to include other organisations such as the Police, Independent Care Group, York Health and Care Collaborative and other members of the voluntary sector.

The York Health and Wellbeing Board work together to make improvements to the health and wellbeing of York’s residents and produce a Joint Strategic Needs Assessment (JSNA). The joint strategic needs assessment describes the current and emerging health and wellbeing needs for people who live in York.

AQAP4 has an important role to play in minimising and reducing public exposure to air pollutants and raising awareness about the impacts of air pollution on health. Measures in AQAP4 around further development of low emission planning guidance will help to ensure new development provide a safe and healthy environment for residents, support active travel initiatives and address health inequalities in the city.

3.2 Planning and Policy Context

AQAP4 has been developed with due consideration to the following policies and strategies which have the potential to impact directly on York’s air quality and/or have influenced the scope of measures included in the AQAP.

3.2.1 The Council Plan 2023 to 2027

The Council Plan is City of York Council’s corporate strategy for the period 2023 – 2027. It will guide the council’s priorities whilst providing a framework for financial and performance management and to help the city identify and respond to new opportunities or challenges. It set’s out our organisation’s contribution to delivering the vision for the city and long-term ambitions contained within the 10-Year Plan and 10-Year Strategies covering climate, health and wellbeing and the economy.

Underpinning the priorities set out in the Council Plan are our ‘Four Core Commitments’ – the four outcomes we will put at the heart of council services and the decisions we make:

· Equalities – providing equal opportunity, balancing human rights, standing up to hate, championing communities

· Affordability – finding new ways so everyone benefits from the city’s success, targeting support where it’s most needed

· Climate – understanding the impact our decisions have on the environment, adapting the city to prepare for extreme weather events

· Health – improving health and wellbeing, reducing health inequalities, targeting areas of deprivation

The Council Plan has seven priorities, with the Four Core Commitment outcomes running through each:

a) Heath and wellbeing: A health generating city, for children and adults

b) Education and skills: High quality skills and learning for all

c) Economy and good employment: A fair, thriving, green economy for all

d) Transport: Sustainable accessible transport for all

e) Housing: Increasing the supply of affordable housing

f) Sustainability: Cutting carbon, enhancing the environment for our future

g) How the Council operates

AQAP4 will contribute to the Council Plan by delivering measures to improve air quality and public awareness of air pollution and impacts on health, thus promoting good health and wellbeing. AQAP4 firmly embeds the Council Plan’s priority of sustainable, accessible transport for all and recognises the important continued role of modal shift in air quality improvement. AQAP4 strives to facilitate the uptake of low and zero emission modes of transport to allow York’s residents, workforce and visitors to travel sustainably. AQAP4 has been developed to complement CYC’s Climate Change Strategy, to recognise synergies and prevent conflict, and additionally supports the guiding principles of our Economic Strategy which aims to build inclusive, healthy and sustainable communities.

3.2.2 York Low Emission Strategy (LES)

In 2012, CYC developed and adopted an overarching Low Emission Strategy to holistically reduce air pollution and carbon emissions in the city. The LES built upon the existing congestion reduction and modal shift approach to air quality improvement in York, by encouraging the uptake of low emission fuels and technologies and encouraging better vehicle maintenance and driving techniques. The LES placed particular emphasis on reducing emissions from diesel vehicles, especially HGVs, buses and taxis, which deliver essential services across York’s transport network and cannot be dealt with effectively through modal shift. York’s previous AQAP3 was the main delivery mechanism for this strategy. Whilst many measures within the LES have now been delivered, the overarching aims and vision remain relevant for AQAP4.

3.2.3 Local Transport Strategy (LTP3 / LTP4)

York’s previous LTP3 was developed in 2011 with a vision for York’s transport landscape across the subsequent two decades. However, since then many aspects of how we travel in to and through York has changed, not least as a result of emerging technology and the pandemic changing travel habits. Many of the previous plan’s ambitions have now also been met, such as:

· Funding to deliver major schemes for York Central, committing to increase the capacity of the A1237 York Outer Ring Road and improve the area in front of York Station.

· A Clean Air Zone for buses has been introduced covering much of central York.

· There has been great progress in electrifying the bus network with 85 vehicles in operation by the end of Autumn 2023.

· In the early years of LTP3, funding was obtained to build new park and ride sites at Poppleton Bar and Askham Bar and improve the junction between the A1237 and A59 Harrogate Road

· A mandate has been secured to develop a new station at Haxby

· A new segregated cycle and footpath links Clifton Moor and Haxby

· Improvements for pedestrians and cyclists have been made on Scarborough Bridge and its approaches

· More recently Micklegate has been closed in one direction to motorised traffic.

LTP4’s development recognises that whilst the plan is taking place in an era of great change, there will be a number of fixed points that will need consideration such as commitments to major schemes such as York Central and York Station Frontage, as well as parameters set by regional and central government policies. LTP4 also recognises priorities of the city as demonstrated in the council’s commitment to net-zero carbon neutrality by 2030.

LTP4 will set the vision, objectives and targets for York’s transport strategy for the next generation and will complement strategies developed for York’s Economic Recovery and Carbon Reduction. LTP4 will concentrate on a 15 year period, aligning with the city’s Local Plan, with a proposed review at each five year milestone. Measures in AQAP4 to reduce transport emissions have been informed by a city-wide conversation around transport and environmental priorities progressed throughout 2021 and 2022, that considered experience of and priorities for transport, air quality and carbon reduction, journeys and the economy. CYC also worked with partners at York Civic Trust to contribute to policy research and emerging findings throughout the period of engagement.

CYC has developed a draft Local Transport Strategy, that sets out high level principles and priorities for York that will underpin future transport strategies, to be encompassed within York’s Local Transport Delivery Plan. The draft Local Transport Strategy will strengthen the policy context leading to the development of a list of major schemes. It will articulate York’s transport priorities and enable their incorporation in the Local Transport Plan for York and North Yorkshire. ‘Tackling transport emissions’ is recognised as key policy strand within York’s Local Transport Strategy. Measures in AQAP4 will support both this aim and York’s wider transport vision, to reduce congestion, pollution and traffic levels and make active travel and new modes of travel more attractive.

3.2.4 York’s Joint Health and Wellbeing Strategy 2022-2032

This strategy aims to ensure that every single resident of York can enjoy the best possible health and wellbeing throughout the course of their life. The current updated AQAP continues to have an important role in contributing to the aims of CYC’s Health and Wellbeing Strategy by minimising and reducing public exposure to air pollution and raising public awareness about the impacts of air pollution on health. AQAP4 will also continue to ensure that new developments provide a safe and healthy environment for occupants, support active travel initiatives and help to address health inequalities in the city.

3.2.5 York’s New Local Plan

In 2005, the current Local Plan was approved for development management purposes. Although not 'formally adopted', this is the document CYC use as the basis for development control decisions. It provides a framework to guide and promote development, and to protect the quality of York's unique historic, natural and built environment. The document sets strategic priorities for the whole city and forms the basis for planning decisions; it must be reviewed at regular intervals to be kept up to date.

CYC are currently working towards the New Local Plan being fully compliant with the National Planning Policy Framework (NPPF) and other relevant regulations. Once 'adopted', the new Local Plan will determine how the city develops over the next 15 years and beyond. The new Local Plan will respond to the issues facing York and will consider issues such as transport priorities, air quality and climate change. The plan will reflect the city’s economic ambitions and help to deliver economic success, whilst building strong communities and protecting and enhancing its unique environment. Our new Local Plan is currently in the process of Examination by Independent Planning Inspectors following submission of the Local Plan to the Secretary of State for Housing, Communities and Local Government on 25 May 2018.

AQAP4 contains measures relating to the Local Plan that will build upon previous actions delivered as part of earlier AQAPs for the city. These include the continued development of Low Emission Planning Guidance, to formalise the approach for assessing and mitigating the emissions impacts of new development. AQAP4 also includes measures to tackle emissions associated with solid fuel burning across new development sites.

3.2.6 York Climate Change Strategy 2022 - 2032

In 2019, CYC announced a Climate Emergency and have since set an ambition for CYC to reduce its carbon emissions to net zero by 2030. CYC recognise the threat of climate change at both a global and local scale, and are committed to delivering bold, local climate action to deliver economic and social benefits, such as new green jobs, economic savings, market opportunities and much improved well-being for York residents. Our ambitions will be reflected in the 'York Climate Change Strategy'.

Whilst care has been taken to avoid unnecessary duplication between the Climate Change Strategy aspirations and AQAP4, there remain a number of areas of cross over between the plans and each must be implemented with due regard for the other.

Whilst air quality and climate change are intrinsically linked and there may often be common emission sources contributing to local air pollution and greenhouse gas emissions (e.g. combustion of fossil fuels), it should be noted that in some areas conflicts can arise. Examples have included the use of diesel fuel and the promotion of biomass boilers within urban areas.

Whilst diesel vehicles are generally more fuel efficient than petrol alternatives, older diesel vehicles have high NO_x and PM emissions. Whilst using biomass as a fuel can offer significant carbon savings, it can have a negative impact on local air quality. Emissions of NO_x and particulate from biomass boilers can be significant and may not be appropriate where air quality is already poor (urban environments) or where there is a sensitive population close by (e.g. schools, hospitals or care homes). In the case of large-scale plant, transport emissions associated with fuel deliveries may also be significant for local air quality. Other examples of conflict may include District Heat Network (DHN) schemes, where a single large emission source may be proposed to replace a number of smaller emission sources.

Air quality improvement strategies and planning decisions should complement wider climate change/carbon reduction agendas and all should be well aligned to recognise synergies and prevent conflict. In some cases a compromise approach may be needed to balance the two agendas. For example, a large scale biomass boiler may be allowed but it should be located in a position where the impact on sensitive receptor points will be minimised. Consideration may need to be given to additional emission abatement or control in sensitive areas.

York’s Economic Strategy 2022 – 2032

CYC’s new 10-year Economic Strategy sets out to improve living standards and livelihoods for all of York’s residents and businesses. We aim to do this through increasing productivity, raising earnings, and maintaining our skills advantage. AQAP4 measures complement the guiding principles of our Economic Strategy which aim to build inclusive, healthy and sustainable communities by promoting the positive social and environmental benefits of economic development and working with local businesses to build “green” skills.

3.3 Source Apportionment

The AQAP measures presented in this report are intended to be targeted at the main sources of emissions within City of York Council’s area.

Source apportionment studies for York, including work carried out for the development of previous AQAPs, clearly identified traffic as the main source of NO₂ in the city centre, with between 51 to 72% of NO₂ estimated to be arising from transport sources in the city centre ‘technical breach areas’. In past years, carbon based vehicle taxation policies have resulted in older petrol vehicles being replaced with new diesel vehicles. York’s air quality issues have previously been attributed, at least in part, to the prevalence of diesel vehicles across the city. AQAP3 aimed to address the growth in diesel passenger cars by encouraging the uptake of lower emission alternatives such as electric and hybrid vehicles and this must continue through the lifetime of AQAP4. AQAP3 measures to support this aim are retained in AQAP4, with indicators and targets updated for AQAP4 to ensure that measures remain focussed and drive continuous improvement in the York fleet.

In line with many other local authority areas, York’s earlier source apportionment studies have also highlighted that buses, coaches and HGVs, whilst making up only a small proportion of the total vehicle fleet in some areas, have a disproportionate impact on local air quality due to their relatively high emissions per unit distance travelled (this issue was also exacerbated by the age / emission standard of certain vehicles being operated across York). Measures in AQAP3 to reduce emissions from buses, such as delivery of a Clean Air Zone in the city centre, widespread introduction of electric buses across York’s Park and Ride service and anti-idling policies, have been particularly successful in tackling emissions from such service vehicles. Whilst AQAP4 recognises these successes, further measures are proposed in AQAP4 to ensure continued improvement in the bus fleet and to address additional emissions from HGVs (and LGVs), particularly in relation to movement of freight into and around the city. Additional measures are also proposed to further reduce emissions from taxis.

Previous source apportionment work carried out for York’s current and historical AQMA declarations and areas of air quality ‘technical breach’ is fully summarised in AQAP3 and the reader should refer to this document for details.

3.3.1 Updated Source Apportionment Work for AQAP4

In addition to the detailed source apportioned studies carried out for the purpose of informing the development of AQAP3 (which largely remain relevant to the updated Action Plan and remaining city centre AQMA designation), further source apportionment work has been carried out to refine the evidence base for AQAP4, to ensure that air quality improvement measures continue to be targeted to the main sources of pollution across the city; this will ensure maximum air quality improvement in the shortest possible timescale.

Whilst consideration of the source contributions of NO_x/NO₂ will ensure that measures are appropriately targeted towards achievement of the health based annual mean objective for NO₂ in all locations in the city, further consideration has been given to PM₁₀ and PM_2.5 in the updated source apportionment work, reflecting the Governments strengthened national commitment (and indeed CYC’s local commitment) to delivering reduction in such pollutants for the protection of public health. The Environment Act 2021 required government to set targets on air quality, including fine particulate matter (PM_2.5), the most damaging pollutant to human health. The Act has also improved existing frameworks laid out in existing substantive primary legislation such as the Environment Act 1995 (which sets up the local air quality management framework, including local government responsibilities to tackle air pollution) and the Clean Air Act 1993 (which enables local authorities to tackle smoke emissions from chimneys of buildings, fixed boilers and industrial plant) enabling more effective action to tackle air pollution and deliver health benefits, as well as increasing transparency and accountability at all levels. DEFRA have produced an Air Quality Factsheet that summarises headline measures.

Whilst AQAP4 contains a number of new measures to specifically target PM₁₀/PM_2.5, it should be recognised that a number of the ongoing air quality improvement measures previously developed to address NO₂ concentrations within the AQMA will also have benefits for PM₁₀/PM_2.5.

NAEI Source Apportionment - emission sources by activity sector

The National Atmospheric Emission Inventory (NAEI) provides emission maps for various pollutants that can be downloaded at 1km x 1km resolution across the UK. One set of maps is produced each year for the most recent NAEI year.

The geographical distribution of emissions across the UK is built up from a number of map distributions for each sector. These individual NAEI sector distributions are developed using information and surrogate statistics appropriate to each sector.

A review of the NAEI 1km x 1km emission maps considered emissions across both CYC’s local authority boundary area and a smaller area covering York’s city centre / inner ring road / areas of existing air quality technical breach. Emissions in each of these areas have been apportioned into the relative contributions from each source sector.

Total emissions from each source sector and pollutant have been expressed as a percentage of all emissions within the area under consideration. Sectors are described in Table 3.1 below.

Table 3. 1 NAEI source sector descriptions

Sector	Description
Energy production	Combustion in energy production and transfer
Domestic combustion	Combustion in commercial, institutions, residential, agriculture. Note for PM_2.5 only, this sector is further split into domestic combustion of ‘wood’, ‘smokeless solid fuels’ and ‘other fuels’
Industry combustion	Combustion in manufacturing industry
Production processes	Production processes
Offshore	Extraction and distribution of fossil fuels
Solvents	Solvent use
Road transport	Road transport
Other transport	Other transport and mobile machinery
Waste	Waste treatment and disposal
Agriculture	Agriculture, forestry and land use change
Nature	Nature
Point sources*	Point sources

*Point source emissions calculated by subtracting the sum of all other sectors above from NAEI total emissions (which include point source emissions).

The contribution of each NAEI activity sector to the total emissions of NO_x, PM₁₀ and PM_2.5 in CYC’s area of administration is shown in Figures 3.4 to 3.6 below.

Figure 3. 3 Source apportionment of NAEI sources of NO_x in CYC’s area

Title: Source apportionment of NAEI sources of NOx in CYC's area - Description: Pie chart showing source apportionment of NAEI sources of NOx in CYC's area

Figure 3. 4 Source apportionment of NAEI sources of PM₁₀ in CYC’s Area

Title: Source apportionment of NAEI sources of PM10 in CYC’s Area - Description: Source apportionment of NAEI sources of PM10 in CYC’s Area

Figure 3. 5 Source apportionment of NAEI sources of PM_2.5 in CYC’s area

Title: Source apportionment of NAEI sources of PM2.5 in CYC’s area - Description: Source apportionment of NAEI sources of PM2.5 in CYC’s area

Across CYC’s local authority area, the ‘transport’ sector continues to be the largest contributor (57%) to total NO_x emissions. Road transport specifically comprises approximately 45% of the total NO_x emissions, compared to 12% and 13% of PM₁₀ and PM_2.5 emissions respectively. Domestic combustion makes up only 17% of NO_x emissions compared to 23% of PM₁₀ emissions and 37% of PM_2.5 emissions.

When considering the smaller 9km² area covering York city centre (the inner ring road and existing areas of air quality technical breach with respect to the annual mean NO₂ objective) some differences are apparent. Whilst the contribution from road transport is broadly consistent between the two areas, domestic combustion increases from 17% across the whole of York to 42% within the smaller city centre area. Similar, but less pronounced increases are observed for PM₁₀ and PM_2.5. This is related to an increased density of commercial and domestic premises (and therefore combustion activity) within the heart of the city.

Combustion from industry (i.e. non-commercial and non-domestic) is notably higher for the wider area of York due to the location of larger scale combustion plant. The impact from agricultural emissions for all pollutants considered is also several orders of magnitude greater for the wider CYC area, as it takes into account the wider rural area of York.

Larger point source emissions absent from the city centre area are represented within the wider York boundary. These point sources include York Crematorium, waste water treatment works and waste disposal/treatment facilities such as Harewood Whin to the west of the city. These facilities are regulated by CYC and the Environment Agency.

With respect to PM_2.5 the NAEI provides a further breakdown of emissions from domestic combustion sources, such as those associated with burning of wood, smokeless solid fuels and other fuels such as gas, oil and LPG. This is shown in figure 3.6 below.

Figure 3. 6 Breakdown of PM_2.5 emissions from ‘domestic combustion’ NAEI sector

Title: Breakdown of PM2.5 emissions from ‘domestic combustion’ NAEI sector - Description: Breakdown of PM2.5 emissions from ‘domestic combustion’ NAEI sector

Note on figure above: domestic combustion sector makes up 36.9% of total PM_2.5 emissions

Across CYC’s area, it is estimated that 31% of PM_2.5 emissions are due to wood burning, compared to only 0.2% from smokeless solid fuels and 4.5% from other boiler technologies. NAEI mapping estimates that domestic combustion of wood accounts for more than double the PM_2.5 emissions produced by road traffic across CYC’s wider area.

The Air Quality (Domestic Solid Fuels Standards) (England) Regulations 2020 made under section 87 of the Environment Act 1995 restrict the sale of certain solid fuels. The regulations have effectively banned the sale of polluting ‘wet’ wood and house coal across England, with only ‘dry’ wood and smokeless mineral fuels being currently legally available for purchase and use. The legislation became law from 1st May 2021 and together with cleaner modern solid fuel appliances, will assist in reducing particulate emissions and improving local air quality and health across York. New measures are included in AQAP4 to further raise awareness of the legal responsibilities of suppliers and consumers, together with the health impacts associated with solid fuel burning and particulate matter emissions across the city.

Updated Road Traffic Source Apportionment

In March 2021, CYC was awarded DEFRA funding to carry out a feasibility study to consider how to reduce emissions relating to deliveries travelling in to and out of York. A key project objective was to consider how to reduce the number of deliveries made to the city centre and around York by LGVs and HGVs and how to reduce emissions from the remaining fleet. Part of the study commission was to undertake a review of baseline emissions associated with all vehicle types using York’s network, to aid understanding of the relative contribution that delivery vehicles make to current pollution levels in the city. The study has also provided further insight into the composition of the wider York vehicle fleet and has created an up to date emissions profile based on vehicle classifications and ages.

Automatic Number Plate Recognition (ANPR) camera surveys were undertaken at 4 locations from 24^th – 27^th August 2021. Vehicle registration data was processed through the DVLA to obtain information on the vehicle fleet composition (vehicle type, age, fuel type and Euro emission classification). The locally observed fleet profiles from the ANPR camera surveys have been used in conjunction with the Emission Factor Toolkit (EFT)(v10.1) and traffic flow data to calculate total emissions on road links across the York network. Physical features that may affect emission rates and/or dispersion, such as junction details, gradients and street canyons were accounted for. In addition, a review of the network was undertaken to identify which locations may be operating for periods of the day under congested conditions. Such locations were modelled using an additional low speed source (i.e. 5 km/h) to represent congested movement and to improve emissions estimates.

Analysis of emissions for each link has been conducted using the EFT and local fleet data to determine the main vehicle contributors to NO_x emissions across the weekday and weekend periods, in both existing and future years. Headline findings from this study are outlined below:

· With respect to cars, petrol and diesel vehicles still represent the majority of the fleet, although there was a clear preference for petrol (52% petrol vs 43% diesel). The remaining ~5% of fuel technology was mostly petrol hybrid, with electric vehicles making up ~1% of the fleet.

· Of the other vehicle classifications, the majority of LGVs and HGVs were diesel fuelled, whereas the bus fleet was diesel and electric. The vast majority of buses operating within the York urban area are Euro VI diesel in line with requirements of the Clean Air Zone, with all but one of the Park & Ride services (Rawcliffe Bar) operating 100% electric buses.

· The trend for cars and LGVs was towards newer Euro V and VI engines, although this was trailing behind EFT national estimates, which is expected to some extent at the time of the survey, due to the effects of the pandemic slowing fleet turnover.

· The HGV fleets were also predominantly diesel Euro V and VI. The rigid HGV fleet was slightly older than the articulated HGV fleet, which is consistent with trends recorded in other cities and interpreted to be related to a larger component of owner-operator vehicles and longer retention of these vehicle types in the fleet.

· Cars are the dominant source of NO_x emissions across all roads, forming over 55% of emissions on the majority of York roads, with cars having a much greater contribution on many roads across the city.

· LGV proportions are highest on eastern and south eastern routes such as Fulford Road and Hull Road. The majority of LGV NO_x emissions make up less than 10% of the total emissions. Emissions from LGVs is more pronounced on the Outer Ring Road , Fulford Road and Askham Lane, where up to 25% of the total NO_x emissions are from LGVs.

· On the key road network within York, HGVs are most dominant on roads coming into the city centre from the north, east and south east routes, for example Gillygate, Wiggington Road, Foss Islands Road, Hull Road and Fulford Road. HGVs are a significant emission source on the majority of major roads including the Outer Ring Road, key routes into York, and the Inner Ring Road, where they contribute between 15 – 25% of the total, although they are insignificant on smaller, local roads. There are a few areas where HGVs are more significant and form between 35 – 55% of the total NO_x emissions on roads with significant total emissions, including areas such as Bootham, Lawrence Street, Barbican Road/Cemetery Road, Hull Road, Lord Mayors Walk and Tower Street.

· Bus emissions comprise less than 10% of the total NO_x emissions on the majority of roads. Areas where bus emissions are most significant are largely on roads with proportionately less emissions (i.e. on Coppergate, Pavement, Merchantgate and Walmgate and on bus only routes). George Hudson Street, Micklegate, Blossom Street and The Mount are roads with elevated total NO_x emissions where bus emissions form between 10 and 25% of the total.

The source apportioned data for NO_x and PM_2.5 for selected roads, including some links within the current AQMA, are shown in tables 3.2 and 3.3 below. This is also represented as a pie chart in figure 3.7. The source contributions for the two pollutants are broadly similar, although cars tend to contribute a comparatively higher proportion of PM_2.5.

Table 3. 2 NO_x emissions contributions from traffic on selected roads

Road	Source Contribution (% NO_x)
Road	Car	LGV	HGV	Bus
Gillygate	64	2	30	4
Wiggington Road	75	1	22	2
Foss Islands Road	69	7	23	0
Hull Road	77	4	18	1
Skeldergate Bridge	86	2	11	0
Fulford Road	66	16	17	1
Tadcaster Road	84	3	11	2
Holgate Road	87	2	10	1
Blossom Street	76	3	18	3

Table 3. 3 PM_2.5 emissions contributions from traffic on selected roads

Road	Source Contribution (% PM_2.5)
Road	Car	LGV	HGV	Bus
Gillygate	84	2	12	3
Wiggington Road	90	1	8	1
Foss Islands Road	83	5	11	0
Hull Road	83	2	12	3
Skeldergate Bridge	91	2	6	1
Fulford Road	76	10	12	3
Tadcaster Road	87	2	6	5
Holgate Road	91	1	5	3
Blossom Street	80	2	9	9

Figure 3. 7 NO_x emissions traffic source apportionment for selected roads

Title: NOx emissions traffic source apportionment for selected roads - Description: Figure showing NOx emissions traffic source apportionment for selected roads, shown as pie charts

Title: NOx emissions traffic source apportionment for selected roads, shown as pie charts - Description: Figure showing NOx emissions traffic source apportionment for selected roads, shown as pie charts (expanded city centre view)

Key: Cars (blue) LGVs (orange) HGVs (grey) Buses (yellow)

3.4 Required Reduction in Emissions

Local authorities are required to identify the reduction in pollutant emissions needed to meet the health-based objectives with their AQMAs to determine the scale of effort required in an AQAP. In the case of NO₂ alongside roads, the required reduction should be stated as the concentration reduction in µg/m³, for example, a 5µg/m³ reduction from 45µg/m³ to 40µg/m³. Whilst this provides an indication of the scale of any air quality challenge faced by a local authority, it is not a suitable parameter for assessing the actual level of emission reduction needed. Any required percentage reductions of local transport emissions should be expressed in terms of NO_x due to the local road traffic. This is because the primary emission is of NO_x and there is a non-linear relationship between NO_x emission reduction and NO₂ concentrations[18]; this is due to the availability of Ozone (O₃).

The required reduction in road NO_x emissions has been carried out in line with the methodology in LAQM-TG22 (Aug 2022). To provide a robust worst-case estimate of the required reduction in emissions, monitoring data pre and post pandemic between 2018 and 2022 has been reviewed and the highest monitored annual mean concentration at a ‘relevant location’ within each historical area of technical breach with the current AQMA chosen for the calculation. A comparison has been made with the figures presented in CYC’s previous AQAP3 document, covering the period 2015-2020, which adopted a similar approach but considered worst case monitoring figures for each area between the years of 2012 and 2014 inclusive. A comparison of this nature provides an indication of improvement in air quality that has been observed across the AQMA since publication of AQAP3, the progress that has been made with implementation of measures in AQAP3 and updates the evidence base with respect to the scale of effort required to meet the Air Quality Objectives across the AQMA area.

Estimates of background NO₂ concentrations across CYC’s current AQMA (corresponding to the relevant year of monitoring) were made using DEFRA’s background mapping data for local authorities. DEFRA publish and regularly update the background maps to assist local authorities in carrying out review and assessment of local air quality. The maps can be used in air quality assessments to better understand the contribution of local sources to total pollutant concentrations. The maps provide information about how pollutant concentrations change over time and across a wide area; they also provide an estimated breakdown of the relative sources of pollution. The 2018 reference year background maps[19], based on monitoring and meteorological data for 2018 have been used for the calculations, and projected to the relevant year of monitoring between 2018 and 2022. As widespread improvements in air quality were observed across York in 2020 compared with previous years (primarily due to a reduction in emissions from vehicles on the York road network caused by work from home directions and non-essential retail being closed during the Covid-19 lockdowns), consideration of monitored concentrations in York in 2018/2019 (pre-pandemic) and in 2021/2022 (post-pandemic) has provided a worst case picture of the required reduction in emissions across the current AQMA. Note that previous calculations of this nature undertaken for AQAP3 considered Salisbury Terrace and Fulford Road AQMAs, but as these AQMAs were revoked in 2017 and 2020 respectively (and concentrations of NO₂ are still well below health-based standards) they have not been specifically included in the current analysis. Tables 3.4 and 3.5 below provide details of the calculations undertaken to determine the percentage reductions in NO₂ and roadside NO_x needed to meet the health-based objectives for NO₂ in the current AQMA.

Table 3. 4 Reductions in NO₂ required within current AQMA

AQMA Area	Maximum annual mean NO₂ (µg/m³) between 2018 and 2022	Required reduction in NO₂ to meet objective (µg/m³)	Required reduction in NO₂ to meet objective (%)
Gillygate / Lord Mayors Walk	47.5 (2021)	7.5	15.8
Lawrence St	41.8 (2018)	1.8	4.3
Holgate / Blossom St	46.3 (2018)	6.3	13.6
Rougier St / George Hudson St	46.7 (2019)	6.7	14.3
Coppergate	42.3 (2018)	2.3	5.4
Fishergate / Paragon St	37.8 (2019)	0 (objective already achieved)	0 (objective already achieved)
Nunnery Lane / Prices Lane	37.4 (2019)	0 (objective already achieved)	0 (objective already achieved)

Table 3. 5 Reduction in roadside NO_x required within current AQMA

AQMA Area	DEFRA Background NO₂ (µg/m³)	Road NO_x equivalent to maximum monitored annual mean NO₂ (µg/m³)	Road NO_x required to achieve objective (µg/m³)	Required reduction in NO_x to meet objective (µg/m³)	Required reduction in NO_x to meet objective (%)
Gillygate / Lord Mayors Walk	13.8	71.1	53.4	17.7	24.9
Lawrence St	13.1	59.1	54.9	4.2	7.1
Holgate / Blossom St	15.7	64.3	49.6	14.8	23.0
Rougier St / George Hudson St	15.1	66.5	50.8	15.7	23.6
Coppergate	17.2	51.8	46.5	5.3	10.1
Fishergate / Paragon St	16.6	42.7	47.6	0 (objective already achieved)	0 (objective already achieved)
Nunnery Lane / Prices Lane	16.6	41.8	47.6	0 (objective already achieved)	0 (objective already achieved)

Based on worst case monitoring undertaken across the AQMA at relevant locations between 2018 and 2022, required reductions in NO₂ ranged from 4.3% (Lawrence Street) to 15.8% (Gillygate). Corresponding reductions required in road NO_x ranged from 7.1% to 24.9% at Lawrence Street and Gillygate respectively.

Figures 3.8 and 3.9 below illustrate the estimated percentage reduction in NO₂ and road NO_x across the AQMA, based on worst case monitoring undertaken at a relevant location between 2018 and 2022. The figures below also display the percentage reductions previously calculated and published in AQAP3, based on monitoring undertaken between 2012 and 2014.

Figure 3. 8 Percentage reductions in NO₂ (AQAP3 vs AQAP4)

Graph showing the percentage reduction in NO2 (AQAP3 vs AQAP4) needed to meet health based objectives across the AQMA

Figure 3. 9 Percentage reduction in road NO_x (AQAP3 vs AQAP4)

Graph showing the percentage reduction in road NOx (AQAP3 vs AQAP4) needed to meet health based objectives across the AQMA

3.4.1 Progress since AQAP3 and implications for AQAP4

The required road NO_x reduction calculations summarised in this chapter and the comparisons made with comparable calculations published in AQAP3 have important implications for air quality action planning in York. Figures X and X demonstrate that there has been considerable progress over the last 7 years across the city centre AQMA in achieving the annual mean NO₂ objective. AQAP3 estimated that reductions in road NO_x of up to 64.7% would be required to achieve the annual mean NO₂ objective in all locations around the AQMA. This figure has now fallen to 24.9%, a decrease of 39.8%.

Considering air quality monitoring undertaken between 2018 and 2022, the annual mean NO₂ objective was consistently met at Fishergate / Paragon Street and Nunnery Lane / Prices Lane, although concentrations were still elevated at 37-38 µg/m³. Estimated percentage reductions in road NO_x require to meet the annual man NO₂ objective in 3 areas of the current AQMA (Gillygate/Lord Mayors Walk, Holgate Road / Blossom Street, and Rougier Street/George Hudson Street) were broadly similar at approximately 23-25%, with reductions on road NO_x of 7% and 10% required on Lawrence Street and Coppergate respectively.

It should be noted that these percentage reduction figures are based on worst case monitoring undertaken between 2018 and 2022. This provides a robust analysis. As monitoring results in 2020 were lower due to the pandemic and did not reflect longer term trends seen in the city in recent years, the reduction figures are based on annual mean concentrations monitored pre-pandemic in 2018 / 2019 (most sites). The only exception to this is Gillygate, where 2021 monitoring figures were slightly higher than pre-pandemic levels (with 2022 figures only marginally lower than 2021).

Whilst vehicle technology improvements, associated improvements in vehicle emissions and lower background pollution concentrations in York are responsible for some of the improvements in air quality seen across the city in recent years, there has been a marked reduction in NO₂ concentrations across the AQMA over the last 7 years, undoubtedly accelerated due to local air quality interventions delivered during AQAP3, such as upgrades to the York bus and taxi fleets, wider and more accessible EV charging facilities promoting EV uptake, education and awareness around anti-idling, low emission planning measures, sustainable travel initiatives and improvements to walking and cycling infrastructure. The ongoing success of these measures must be recognised and reflected in AQAP4 via continued delivery of such initiatives, with new targets set to reflect CYC’s future ambition.

As previously mentioned, widespread improvements in air quality were observed in York in 2020 compared with earlier years, primarily due to a reduction in emissions from vehicles on the York road network caused by work from home directions and non-essential retail being closed during the Covid-19 pandemic. This reinforces both previous (and updated) source apportionment work demonstrating that traffic is a significant source of NO₂ in the city and supports the measures the council has taken so far to reduce vehicle emissions. As monitoring results for 2020 are not representative of long-term trends in NO₂ concentrations, the Covid-19 pandemic has meant that the ongoing impact of AQAP3, including major air quality improvement measures implemented in 2020 such as the impact of the York Clean Air Zone (introduced January 2020) and new electric Park and Ride bus services, have been difficult to quantify. The true impacts of such measures may only be apparent in subsequent years, as traffic levels and behaviour return to ‘normal’ and the air quality impact of such interventions can be verified via ongoing air quality trends. CYC will continue to report upon air quality annually via Annual Status Reports.

3.5 Potential NO_x emission reduction through AQAP4 traffic measures

The exact emission impact of AQAP4 is difficult to quantify precisely as there are many factors which may influence future emission levels in the city. These include:

· The extent and rate at which AQAP4 measures are delivered locally. This will be dependent on additional funding and resources to support delivery (e.g. for permanent freight consolidation facilities, for example).

· The on-road emission performance of newer vehicles compared with specified emission standards.

· The age and rate of replacement vehicles in York, including the rate of uptake of ultra-low and especially zero emission vehicles.

· The number of journeys which can be switched to more sustainable transport modes such as walking, cycling and public transport.

· Future trip demand on the York road network, influenced by factors such as the state of the economy and new development.

· Developments in neighbouring local authority areas may also, to some extent, influence vehicle types and usage patterns in York.

An estimate of NO_x emission reduction potential on a section of road within CYC’s existing AQMA, under various AQAP delivery scenarios, has been made using DEFRA’s Low Emission Factor Toolkit (version 11.0)[20]. A range of scenarios have been modelled to consider the emissions impact potential of AQAP4 and to provide some sensitivity testing with respect to measures that affect different vehicle types. Table 3.7 includes a description of each scenario and a summary of the predicted emission reduction that could be achieved under each of the scenarios modelled. Whilst the results of this emission reduction screening exercise have been used to understand the potential magnitude of some of the outcomes of AQAP4, the exact emission reduction potential will vary depending on exact location, fleet composition and specific traffic conditions (including queuing) on the network. For this screening assessment, the York bus fleet has been more accurately reflected in the EFT based on CAZ requirements and estimated proportions of buses that were already electric / Euro VI (and lower) across the network. The age profile / emission classification of other vehicle categories was considered broadly consistent with default EFT values and sufficiently accurate for this high-level screening exercise.

Table 3. 6 Changes in annual NO_x emissions (kg/y) under each scenario

Scenario	Description of Scenario	NO_x emissions (kg/y)	Change in NO_x emissions relative to base (kg/y)	Change in NO_x emissions relative to base (%)
1	Baseline	330.7
2a	Reduce cars by 5%	320.6	10.1	3.0
2b	Reduce cars by 10%	310.6	20.1	6.1
2c	Reduce cars by 15%	300.5	30.2	9.1
2d	Reduce cars by 20%	290.4	40.2	12.2
2e	Reduce cars by 30%	270.3	60.4	18.3
2f	Reduce cars by 40%	250.2	80.5	24.3
2g	Reduce cars by 50%	230.1	100.6	30.4
3a	Reduce all vehicles classes by 5%	314.2	16.5	5.0
3b	Reduce all vehicles classes by 10%	297.6	33.1	10.0
4a	Reduce HGVs by 25%	326.1	4.6	1.4
4b	Reduce HGVs by 50%	321.6	9.1	2.8
4c	HGV Ban	312.4	18.2	5.5
5a	Reduce LGVs by 25%	308.1	22.5	6.8
5b	Reduce LGVs by 50%	285.6	45.1	13.6
6	All buses electric	311.5	19.2	5.8
7	5% of cars and LGVs electric	316.1	14.6	4.4
8	10% Cars and LGVs electric	301.5	29.1	8.8
Potential emission reduction from AQAP4 traffic measures	Combination of scenarios 2a, 4a, 5a, 6 & 8		85.5	25.9 %

Calculations presented in section 3.4 estimated that reductions in road traffic emissions of up to 25% may be required to meet the objectives across all areas of the existing AQMA based on worst case air quality monitoring between 2018 - 2022. The indicative emission modelling work presented here has shown that reductions in road traffic NO_x emissions of approximatively 26% could be achieved through a combination of measures and associated outcomes delivered through AQAP4 (and associated local strategies / policies) such as:

· Further reduction in car usage of 5% via shift to more sustainable modes such as walking, cycling and public transport

· Reduce HGV and LGV movements by 25% through freight consolidation facilities and other initiatives

· Transition of 10% of car/taxi and LGV fleet to electric vehicles with zero tailpipe emissions, through expansion of local charging infrastructure, awareness raising and incentives

· Conversion of remaining bus fleet to electric vehicles with zero tailpipe emissions

It should be noted that in future years, falling background pollutant concentrations and improvements in vehicle emissions generally across the fleet will also drive reductions in emissions in York over and above those presented above. Further sensitivity analysis undertaken using the EFT demonstrated that routine fleet replacement and improvements in vehicle emissions may be sufficient to drive the required level of emission reduction within the next 2-3 years (assuming no growth in traffic due to development). CYC has a statutory duty to deliver air quality improvement as quickly as possible and this AQAP must take all measures reasonably practical to deliver cleaner air and achieve further reductions in vehicle miles travelled in York.

It should also be noted that NO_x emission reduction across York can also be influenced, albeit to a lesser extent, by measures to tackle non-transport related emissions such as those associated with commercial and domestic heat and power provision. AQAP4 presents a comprehensive and targeted list of updated air quality improvement measures to deliver further reductions in NO_x (and PM) emissions over and above those likely to be realised through natural fleet replacement and falling background concentrations.

3.6 Key Priorities

AQAP4 provides a framework for continuing current activity in the city to reduce NO₂ concentrations and presents additional measures for wider emission improvement across the city. The key priorities of AQAP4 are to ensure that the downward trend in NO₂ concentrations across the existing city centre AQMA continues, such that sustained compliance[21] with health based objectives is achieved at all locations; this will allow the ultimate revocation of the existing AQMA. Measures delivered through the lifetime of AQAP4 will also strive to deliver improvements in particulate matter, to recognise the growing evidence base around particles and health impacts as reflected in the Environment Act 2021.

Through AQAP4, CYC will ensure that concentrations of all local pollutants are reduced as far as practically possible and that opportunities for low emission travel in the city are maximised for residents, workers and visitors alike. CYC will also continue to facilitate and encourage walking, cycling and low emission public transport use, which have co-benefits for health and wellbeing.

The results of our updated source apportionment work and wider emissions analysis have shown that:

· In line with earlier AQAPs, transport emissions remain the predominant source of NO_x emissions across the AQMA and wider CYC area and we must therefore continue to deliver sustainable transport solutions and work towards reducing emission across all vehicle categories.

· NO_x emissions from private cars continue to make up a large proportion of these transport emissions, contributing to well over 50% of transport emissions on the majority of roads and over 80% in some areas. The contribution from cars in areas of poorer air quality, such as Gillygate, Holgate and Blossom Street, ranges from 64% to 87%. These figures show that CYC must continue to facilitate modal shift and promote active travel modes to minimise private car journeys. We must also maximise the uptake of zero emission vehicles via incentives and provision of suitable charging infrastructure. This should be supported via measures such as ongoing campaign work to reduce idling emissions from cars and robust planning guidance to ensure private vehicle trips are minimised on new developments.

· NO_x emissions from LGVs generally make up less than 10% of the total emissions, but in certain areas of the outer ring road and on key routes, the contribution can be greater at up to 25%.

· HGVs are a significant emission source on the majority of roads including the Outer Ring Road, key routes into York, and the Inner Ring Road, where they contribute between 15 – 25% of the total NO_x transport emissions. HGVs are more significant in some areas and form between 35 – 55% of the total NO_x emissions on roads with significant total emissions, including areas such as Bootham, Lawrence Street, Barbican Road/Cemetery Road, Hull Road, Lord Mayors Walk and Tower Street. Due to the relatively lower flows of HGVs in relation to cars, these larger vehicles are contributing disproportionately to elevated pollution levels in a number of areas. This is consistent with findings from earlier source apportionment work and AQAPs for York.

· Bus emissions comprise less than 10% of the total road transport NO_x emissions on the majority of streets and are most significant on roads with proportionally less emissions, where bus flows form a larger proportion of the overall traffic. Across areas with elevated total NO_x emissions, such as George Hudson Street and Blossom Street, bus emissions generally contribute between 10 and 25% of the total and are therefore still contributing disproportionately to elevated pollution in some areas. It should be noted that the relative contribution of buses to total road NO_x in the city centre has been reduced significantly in recent years due to the Clean Air Zone and upgrades to vehicles servicing high frequency routes. This has been progressed in parallel to the transition to zero tailpipe emission electric buses serving the majority of York Park & Ride routes.

· There are opportunities to reduce fine particulate emissions, PM_2.5 from domestic combustion of solid fuels. Whilst in part this is being addressed via new legislation around the types of fuels that can be legally sold, there are opportunities for CYC to raise awareness of the impacts of burning solid fuels and ensure that suppliers/retailers are complying with legal requirements. Measures to address this issue will also help to reduce NO_x emissions, albeit to a lesser extent. Across CYC’s area, it is estimated that 31% of PM_2.5 emissions are due to wood burning, compared to only 0.2% from smokeless solid fuels and 4.5% from other boiler technologies such as natural gas, oil and LPG. The latest source apportionment work undertakenestimates that domestic combustion of wood accounts for over twice the PM_2.5 emissions of those produced by road traffic.

Priority areas over the lifetime of AQAP4 are shown below.

· Priority 1 – Reduce emissions from freight / delivery vehicles. CYC will continue feasibility work to address first/last mile delivery of light goods in York as part of the development of a city-wide ‘Movement Plan’. We will continue to work with partners to evaluate low emission delivery modes. We will also progress a pilot project to test a ‘micro-consolidation centre’ for the purpose of distributing commercial light goods around the city centre and will consider the feasibility of extending the Clean Air Zone to include HGVs / freight vehicles.

· Priority 2 – Reduce emissions from York buses. Buses play an important role in York’s sustainable travel infrastructure and form a vital transport service for residents and visitors. CYC will continue to work in partnership with bus operators to improve bus provision for all service users. Considerable progress has been made to clean up York’s buses in recent years, but CYC must continue to address emissions from lower frequency services and strive to maximise the number of services operating fully electric buses to further reduce exhaust emissions. Recent DfT funding will allow us to pursue an all-electric urban bus fleet for the city. We will also consider the feasibility of extending the Clean Air Zone (for buses) to other areas, including York Central

· Priority 3 – Reduce emissions from idling vehicles. CYC will raise awareness of the impact of idling vehicles upon public health through our ‘Kick the Habit’ anti-idling awareness / behaviour change campaign, supported by regular anti-idling patrols.

· Priority 4 – Reduce emissions from taxis. We will continue to work with the taxi trade to facilitate the transition to low emission vehicles via the use of incentives and awareness raising, thereby providing taxi drivers with information to allow informed choices about vehicle emissions and total cost of ownership of low emission and/or electric taxis. This will be supplemented by revisions to Taxi Licensing policy to phase out older, more polluting taxis, in consultation with the taxi trade. We will also explore further opportunities for minimising emissions from taxis in the city centre, including the feasibility of including them within the Clean Air Zone.

· Priority 5 – Reduce emissions from CYC vehicles. CYC recognise that the way our own fleet vehicles are renewed is a vital part of the CYC air quality improvement and carbon reduction programmes and that the transition to a cleaner, greener fleet must be done without compromising the valued services CYC delivers to the city and its residents. We also recognise that we must lead by example; the successful operation of ultra-low and zero emission vehicles as part of the CYC fleet will show leadership and will act as a catalyst for other fleet operators in the city to upgrade their vehicles and accelerate their renewal programmes.

· Priority 6 – Expand EV charging. CYC’s EV Charging Strategy sets out the rationale for the number and location of public EV charging points, the principles of tariff-setting and CYC’s approach to providing charging for residents in streets without off-road parking. The current strategy outlines an equitable approach to charging infrastructure that will support improved air quality, climate change objectives and financial vitality, and aligns with wider transport policy objectives of maximising active travel and minimising private vehicle / car usage. CYC must enable and maximise EV use, rather than embedding private car ownership. CYC will deliver additional fast and rapid charge points and actively monitor plug-in vehicle uptake in the city to ensure our charging network remains fit for purpose. We will undertake an evaluation of the recently opened HyperHub charging sites and seek funding to deliver additional sites. Our current EV Charging Strategy will be reviewed and refreshed within the lifetime of AQAP4.

· Priority 7 – Minimise development related emissions. Delivery of AQAP4 must strive to maximise synergies with the CYC’s carbon reduction aspirations, via the alignment of respective planning policies and local guidance. CYC will continue to ensure that emissions and air quality impacts from new developments are appropriately assessed and mitigated, exposure to poor air quality is reduced via good design practices and that new private trips are minimised via the provision of sustainable transport solutions.

· Priority 8 – Provide local incentives for low emission vehicles and alternative fuels. CYC is committed to further encouraging the wider uptake of ultra-low emission and zero emission vehicles (and other micro-mobility modes) via development of incentives and rewards. Such incentives will complement other work priority areas identified.

· Priority 9 – Improve public information and awareness. Delivering clear messages to the public around the cause and consequence of poor air quality, particularly around impacts on health, are particularly important for driving behaviour change. Campaigns relating to issues such as energy efficiency, domestic smoke control, bonfires, fireworks and indoor air quality can all be valuable parts of a wider local air quality improvement strategy. CYC will continue to address these wider issues, alongside existing public information campaign work relating to sustainable transport provision in the city.

· Priority 10 – Modal shift, active travel and network improvement. Measures to reduce trips, encourage modal shift away from private vehicles towards active travel modes such as walking and cycling, and reduce congestion are considered fundamental to any air quality improvement programme for York. CYC’s Local Transport Plan (LTP) continues to be an intrinsic part of the overall approach to air quality improvement and transport based emission reduction across the city, with active travel at the apex of the city’s travel hierarchy. Major schemes and complementary work programmes with the potential to contribute directly to air quality improvement across the city are referenced within this AQAP. We will explore specific traffic management options for Gillygate to reduce emissions and improve air quality.

· Priority 11 – Regulation of industrial and domestic emissions. In addition to reducing transport emissions, AQAP4 also has a role to play in reducing emissions associated with domestic and industrial combustion, particularly fine particulate matter (PM_2.5). AQAP4 also recognise the synergies with CYC’s carbon reduction programme and measures to improve energy efficiency and support services.

· Priority 12 – Monitor air quality / access to air quality information. Monitoring allows CYC to assess compliance with Air Quality Objectives, evaluate the effectiveness of air quality improvement interventions and provide reliable information to York’s residents, visitors and workers to help them reduce exposure. CYC must respond to changing monitoring priorities, especially in relation to the relative importance of nitrogen dioxide and particulate matter and the links to human health. We will ensure that the location and type of monitoring in the city is reviewed annually and remains relevant and targeted to key sources and pollutants.

The following chapters of AQAP4 provide an overview of all measures and interventions and their associated key performance indicators, targets and anticipated funding sources. Measures will be delivered by a range of partners, both within CYC departments and across the wider city.

3.7 AQAP4 Air Quality Indicators

Through delivery of AQAP4 and our complementary strategies we will take bold action to reduce air pollution beyond statutory National Air Quality Objectives and work towards World Health Organisation (WHO) Guidelines in the longer term.

The WHO published revised long-term Air Quality Guidelines (AQGs) for pollutants in ambient air in September 2021. The new AQGs for particulate matter (PM) and nitrogen dioxide (NO₂) are substantially lower than the previous guidelines. The updated long-term (annual average) AQG for PM₁₀ is 15µg/m³, for PM_2.5 is 5µg/m³ and for NO₂ is 10µg/m³ (see table below).

Table 3. 7 Summary of long-term AQ Targets and WHO Guideline Values for NO₂, PM₁₀ and PM_2.5 and commentary on York position

Pollutant	Averaging period	UK Limit (µg/m³)	WHO (2021) Guideline (µg/m³)	CYC Position
AQ (England) Regulations 2000 (apply to Local Air Quality Management)
Nitrogen Dioxide (NO₂)	Annual Mean	40	10	Current UK Limit exceeded in 3 areas of the current AQMA in 2022 (max concentration recorded at a point of relevant exposure was 47µg/m³ on Gillygate). WHO Guideline exceeded at all monitoring sites in York in 2022.
Particulate Matter (PM₁₀)	Annual Mean	40	15	Current UK Limit met at all PM₁₀ monitoring locations (max concentration recorded in 2022 was 17.9µg/m³). WHO Guideline exceeded at all PM₁₀ monitoring locations in 2022
Environmental Targets (PM) regulations 2023 (apply to national government, but local authorities are expected to contribute measures locally to drive compliance)
Fine Particulate Matter (PM_2.5)	Annual Mean	10 by 2040 (interim target of 12 by 2028)	5	Current UK Limit met at all PM_2.5 monitoring locations (max concentration recorded in 2022 was 8.8µg/m³). WHO Guideline exceeded at all PM_2.5 monitoring locations in 2022

The long-term WHO AQGs were developed based on evidence from studies of spatial variation in long-term average concentrations of air pollutants. The relative risks found in these studies of spatial variation in long-term average concentrations (often cohort studies) are typically larger than those reported from studies of effects associated with short-term temporal variations in concentrations. The WHO chose the AQGs to represent long-term concentrations at which it was confident, from the available evidence, that there is an increase in adverse health effects^{^[22]}.

It should be stressed that the WHO air quality guidelines are significantly more stringent than current UK Air Quality Objectives and do not apply in UK law. The WHO acknowledge that the guidelines are extremely challenging public health recommendations and achieving the guideline levels would be the ultimate goal. The UK’s Committee on the Medical Effects of Air Pollutants (COMEAP)^{^[23]} suggests that WHO’s revised AQGs for pollutants in outdoor air are suitable as long-term targets to inform policy development.

Annual Reporting of Air Quality

Annual Mean concentrations and trends in NO₂, PM₁₀ and PM_2.5 across York will be reported annually as part of CYC’s Annual Status Report to DEFRA. This will be published on CYC’s website. A full comparison with current UK limits (and WHO Guidelines) will be made in an Annual Air Quality Update report to the Executive Member for Environment and Climate Emergency.

In addition to the Key Performance Indicators (KPIs) used to monitor progress for specific AQAP4 measures (see Chapter 5), the following indicators are proposed to track changes in long term nitrogen dioxide concentrations across York for clear comparison with current UK health-based objectives and WHO Guidelines.

· Indicator 1 – Average annual mean nitrogen dioxide concentration across key areas of the AQMA. This indicator provides an average nitrogen dioxide concentration based on all monitoring undertaken within specific areas of the AQMA (e.g. Gillygate / Lord Mayors Walk area, Holgate Road / Blossom Street area etc). Monitoring results include diffusion tube data and data from continuous monitors (if applicable to the area in question). This indicator is useful for looking at general trends across the AQMA and establishing how the rate of improvement varies area by area. This indicator has previously been reported annually as part of CYC’s statutory Annual Status Report to DEFRA.

· Indicator 2 - Maximum nitrogen dioxide concentration (at relevant location) across key areas of the AQMA. This indicator provides a maximum recorded annual mean nitrogen dioxide concentration within specific areas of the AQMA. In line with Local Air Quality Management requirements and current UK objectives, this only considers monitoring at points of relevant public exposure and is therefore useful to look at the validity of the AQMA boundary year to year. This indicator has also previously been reported annually as part of CYC’s statutory Annual Status Report to DEFRA.

· Indicator 3 - Average of maximum annual mean nitrogen dioxide concentrations recorded across three areas of technical breach (at points of relevant public exposure). CYC’s air quality monitoring network currently demonstrates sustained exceedances of the health-based annual mean NO₂ objective of 40µg/m³ in 3 areas of the city, namely Gillygate/Lord Mayor’s Walk, Blossom Street/Holgate Road, and Rougier Street / George Hudson Street. These are referred to as areas of ‘technical breach’. Whilst not all monitoring points within these areas are exceeding health-based standards, there is at least one monitor at a point of relevant public exposure within each area that is above the annual mean objective of 40µg/m³. The indicator considers an average of the maximum annual mean concentrations of NO₂ in these three areas. This indictor is a new indicator and provides a simple and meaningful single indicator that will enable CYC to measure the new administration’s policy commitments as delivered via the Council Plan and AQAP4.

The baseline 2022 figure for this indicator is 44.1µg/m³ and in the 3 specific areas mentioned there has been around 25% reduction in this figure over the last 10 years since 2012. Whilst the rate of improvement has not been consistent (it has slowed considerably in recent years), CYC will aim to maintain a continued average 2.5% annual reduction in this indicator with a target to achieve a figure of less than 40 µg/m³ before 2026 (with all areas also below 40 respectively). This target is considered challenging but realistic. Within the 5-year lifetime of AQAP4, it is expected that Indicator 3 (and all technical breach areas respectively) will be confidently below 40 µg/m³ and within health-based standards.

Figure 3. 10 Air Quality ‘Indicator 3’ baseline (2022) and annual targets

Graph to show the Air Quality ‘Indicator 3’ baseline value of 44.1 for 2022 and a 2.5% annual improvement target over AQAP4s 5 year timeframe

The three indicators described above, together with full reporting of air quality concentrations as measured at all CYC monitoring sites, will provide a transparent means for CYC to assess rates of air quality improvement and compliance with legal standards and aspirational WHO guidelines in the longer term.

5 AQAP Measures

Table 5.13, later in this section, summarises the measures in AQAP4. It contains:

· a list of the actions that form part of the plan

· the responsible individual and departments/organisations who will deliver this action

· estimated cost of implementing each action (overall cost and cost to the local authority)

· expected benefit in terms of pollutant emission and/or concentration reduction

· the timescale for implementation

· how progress will be monitored

Further information on the cost / benefit of these measures is provided in section 5.1 below and in Appendix C. CYC’s future Annual Status Reports will provide regular annual updates on implementation of these measures.

5.1 Measure evaluation and cost benefit analysis

For the current, updated AQAP4, a comprehensive review of previously adopted air quality improvement measures has been undertaken. Where still relevant to York’s air quality issues and principal emission sources, measures and targets have been updated to ensure they strive to achieve continual improvement in air quality across the city throughout the AQAP4 period.

Absolute impacts on air quality will vary between AQAP4 measures, as will implementation costs. Whilst some actions are already underway, some are in the planning stages or may not yet have funding secured. As a result, actions have different implementation times and in some cases these may extend beyond the timeframe of AQAP4.

As part of AQAP4 development, an updated evaluation of all measures proposed has been undertaken to consider issues such as air quality impacts, feasibility, funding streams, costs, implementation timescales and alignment with wider CYC strategies.

Whilst DEFRA do not expect local authorities to undertake detailed cost-benefit analysis with AQAPs, it is expected that measures should be ranked according to their cost (both financial and other environmental impacts) and the improvements to air quality that each measure might bring.

AQAP4 measures have been reviewed in terms of the issues outlined in the list below, informed by professional judgement of CYC officers, experience gained from previous CYC projects / feasibility studies, the LAQM Action Toolbox in LAQM.TG22 and information and case studies on the Air Quality Hub.

· Air Quality Impact – Impacts relate to the anticipated reduction in emissions or concentrations of local pollutants such as NO₂. This is based on professional judgement and, where possible, draws on experience gained from studies undertaken in York and elsewhere.

o Low (ü) – minor improvement anticipated but unlikely to be explicitly detectable (i.e. within uncertainties of monitoring / modelling technique)

o Medium (üü) – improvement anticipated of up to ~2µg/m³ NO₂ that could be demonstrated via desktop modelling study

o High (üüü) – significant impact anticipated of over 2µg/m³ NO₂ that could be demonstrated via modelling and likely to be detectable via local monitoring

· Cost of implementation – the following scoring and symbology provides an approximate indication of implementation costs as appropriate for AQAP development; more detailed costing will follow as part of specific project plans. For ease of future reporting, cost bandings have been aligned with Annual Status Report reporting requirements as follows:

o £££££££ >£10m

o ££££££ £1m - £10m

o £££££ £500k - £1m

o ££££ £100k - £500k

o £££ £50k - £100k

o ££ £10k - £50k

o £ <£10k

· Feasibility - wider feasibility has considered the following issues and has been assigned an overall feasibility ranking of Low (ü), Medium (üü) or High (üüü):

o Compatibility and synergies with wider CYC polices including climate strategy, planning policies

o Public health impacts (PM_2.5 and wider determinants)

o Wider non-air quality impacts (social economic, wider economic)

o Stakeholder views - including likely public perception and political acceptability (note this is subject to consultation)

o Sources of funding available / possible

· Implementation timescales – assigned values of:

o Short term (<2 years) – actions that can be delivered now to reduce emissions

o Medium term (2-5 years) – medium term delivery, but within timeframe of AQAP4

o Long term (>5 years) - may extend beyond timeframe of AQAP4

Section 5.2 below provides an overview of the areas prioritised for action and outline the AQAP4 commitments within each respective area. A high-level cost-benefit analysis has been undertaken and is documented under each area and summarised in Appendix C. Measures not taken forward in AQAP4 are discussed further in Appendix B.

5.2 AQAP4 Priority Areas

5.2.1 Reducing emissions from freight / deliveries

Over the past decade, last-mile deliveries have become dominated by smaller diesel vans, mainly due to the rapid growth of Internet shopping. This has impacted negatively on air quality and traffic congestion. Last-mile delivery emissions can be reduced by replacing diesel delivery vehicles with ultra-low emission vehicles or zero-emission bicycles/e-cargo bikes and portering (operating from depots outside busy and congested areas). Freight consolidation schemes combine deliveries from several distributors onto a single vehicle before they enter urban and residential areas. This reduces the total number of vehicle movements and reduces congestion and emissions. Since most HGV/LGV’s are diesel vehicles, which emit NO_x and PM, and with expected constraints on capacity for deliveries within York’s city centre, there is a need to identify how freight logistics can address these problems in the future. The first/last mile of deliveries is an important focus, as this is the least efficient in terms of time, emissions and congestion.

York has:

· Undertaken a freight improvement study (2013); recommendations were considered during the preparation of earlier Local Transport Plans (LTP3).

· Obtained DEFRA funding in 2021 to carry out a feasibility study and subsequent pilot scheme to reduce emissions relating to deliveries travelling in to and out of York (currently ongoing). The project will focus on how to reduce the number of deliveries made to the city centre and around York by LGVs and HGVs and will identify suitable sustainable alternatives which may include a delivery ‘hub’ allowing the last or first mile of the journey to be made by low emission modes, including e-cargo bikes. The council is engaging with businesses, including delivery companies, as part of the study.

· Established a freight forum, comprising of external stakeholders, to share knowledge and advise on freight logistics and a possible strategy for York. The forum consists of representatives from the freight transport industry, local operators, interest groups, York Civic Trust, the Local Enterprise Partnership and CYC representatives.

· Provided advice to fleet operators on operational best practice through delivery of an ECO Stars Fleet Recognition Scheme, a measure delivered through AQAP3.

AQAP4 commitments:

· Continue feasibility work to address first/last mile delivery for light goods in York, with the aim of reducing emissions of NO_x, PM and CO₂ from HGV/LGV’s entering the city centre via a reduction in the overall number of vehicles undertaking deliveries and emissions from the remaining fleet. We will continue to work with partners to evaluate low emission delivery modes that could replace journeys by conventionally fuelled HGVs/LGVs as part of the development of a city-wide ‘Movement Plan’.

· Undertake a pilot project to test a ‘micro-consolidation centre’ for the purpose of distributing commercial light goods around the city centre, with the first/last mile of travel undertaken by low emission modes. We will consider expanding the scope of the pilot to test use of the consolidation centre for residential deliveries, where appropriate.

· Following feasibility work, we will explore funding opportunities for permanent freight consolidation facilities (or other innovative approaches) in the city to reduce emissions associated with deliveries.

· Consider the feasibility of extending the Clean Air Zone to include HGVs / freight vehicles

Table 5. 1 Reducing emissions from freight

Action	Reducing emission from freight
Air quality impact	Medium to High impacts within the AQMA and city centre, especially where freight consolidated out of city centre and deliveries transferred to zero emission modes. Exact impacts subject to further work and review of pilot. Impacts associated with CAZ extension subject to further feasibility work.
Cost	££££ Feasibility study and pilot (freight consolidation centre) £100 - £500k Permanent consolidation facilities subject to further costing, (informed by pilot evaluation) Extension of CAZ to include HGVs subject to further feasibility work and costing
Feasibility	Medium to High - Permanent consolidation facilities likely to be widely supported as directly support air quality and climate agendas, and will have positive economic impacts in terms of green job creation (both for consolidation hub and onward last-mile delivery of goods using low emission modes). Removal of some delivery vehicles from the network would improve reliability of deliveries and create a safer and more pleasant environment for shoppers and visitors. Would also address congestion and improve public realm, particularly within city centre, outside foot street hours. Additional benefits may arise in relation to preservation of historic buildings, especially where facilities act to reduce numbers of HGVs in space constrained historic core. Ultimately depends on external investment / partners and planning process. City-wide Movement Plan will be developed as a statement of intent for discussion with the new Mayor Extension of CAZ to include HGVs subject to further feasibility work
Implementation timescales	Feasibility study / pilot project – Short term (< 2 years) Freight consolidation facilities – Medium (2 – 5 years) CAZ extension – subject to further feasibility work
Ownership	CYC, freight transport industry, local operators
Partners	Interest groups, York Civic Trust, the Local Enterprise Partnership, York Business Improvement District (BID)
Funding	DEFRA funding already secured for initial feasibility work and pilot study Future freight consolidation or initiatives likely to be subject to external funding and suitable partner organisations

5.2.2 Reducing emissions from buses

Buses play an important role in York sustainable travel infrastructure and form a vital transport service for residents and visitors. CYC has a Clean Air Zone (CAZ) for buses in the city centre and operates electric buses across the majority of Park and Ride services. Through the lifetime of AQAP4, CYC will continue to work in partnership with bus operators to improve bus provision for all service users and minimise tailpipe emissions from buses.

York has:

· Delivered a Clean Air Zone (CAZ) for buses in the city centre and allocated funding to help to replace/retrofit 93 buses to CAZ compliant vehicles. Buses making 5 or more entrances to the city centre CAZ per day are now required to be Ultra Low Emission Buses (ULEB) (Euro VI diesel or electric).

· Raised awareness of the impact of bus idling and implemented a Traffic Regulation Condition to prohibit bus idling within the CAZ area; this applies to all local bus services, irrespective of service frequency or engine type.

AQAP4 commitments:

· Work with partners to upgrade (CAZ exempt) inter-urban and rural services to ultra-low emission vehicles. Where it is not practical to electrify routes, services will be upgraded to Euro VI to further improve local air quality and reduce greenhouse gas emissions.

· Work in partnership with bus operators to deliver an all-electric, zero emission bus fleet for all services operating predominantly in the York urban area. It remains a CYC ambition to pursue an all-electric bus fleet where all buses are capable of operating in electric zero-tailpipe emission mode in key locations. York’s Bus Service Improvement Plan (BSIP) is the delivery vehicle for CYC’s known aspirations for bus services in the city, particularly their conversion to electric drive, but also other measures such as bus priorities or improvements to stops, shelters and passenger information. The BSIP outlines the vision for York’s bus network, which is to be inclusive, accessible to all, attractive and welcoming – becoming a source of pride for the city and its residents. CYC was awarded funding in 2022 to deliver this vision. The BSIP is delivered through York’s Enhanced Bus Partnership, which brings together the Local Transport Authority, operators, stakeholders and the public. Additional funding has also been awarded to CYC through DfT’s ZEBRA fund, to deliver 44 new electric buses and associated infrastructure.

· Continue to work in partnership with bus operators to eliminate unnecessary bus idling across the network, especially within the city centre designated AQMA / CAZ area.

· Consider the feasibility of extending the CAZ to other areas, including York Central

Table 5. 2 Reducing emissions from buses

Action	Reducing emissions from buses
Air quality impact	Improvements in air quality seen in recent years due in part to widespread uptake of electric and low emission buses (coupled with a reduction in anti-idling events). Further upgrades to low frequency services likely to result in Low air quality impacts over and above impacts delivered through existing CAZ. However, an all-electric York bus fleet likely to result in additional High air quality impacts across the AQMA and wider network due to elimination of tailpipe emissions Electric buses will eliminate local emissions of NO₂, tailpipe emissions of PM and offer considerable carbon savings. CAZ extension to other areas will ensure bus emissions are minimised in other key locations
Cost	Cost of developing York’s BSIP covered by one-off payment of £100,000 that the DfT has made to all requested authorities to cover the cost of development. £££££££ Additional low frequency bus upgrades and/or conversion of further services to electric drive subject to further feasibility work. CYC awarded £8.4m funding for 44 new electric buses through DfT’s ZEBRA fund (March 2022) which will be matched by a further £10m investment by First. In April 2022, CYC was awarded an additional £17m to support the development of key schemes and initiatives in the BSIP, including wider electrification of the urban bus fleet. Approximately £12m will be used to fund the conversion of 60 additional buses and associated infrastructure.
Feasibility	Medium to High – strong political and public will to continue to work alongside bus operators to deliver further improvements to vehicles. Supports sustainable transport objectives in Council Plan, also economic development objectives, objectives to improve air quality and reduce carbon emissions. Because bus services generally support more active travel (through walking to bus stop, but also because availability of an effective bus service encourages lower car ownership and hence greater use of active travel modes such as walking and cycling) measures also support health objectives in the Council Plan. Funding identified. Note that an all-electric bus city involves high costs but these will be met by external funding that has already been secured. Other benefits of electric buses include reduction in noise, and improve passenger/driver experience Any CAZ extension proposals subject to review by Traffic Commissioner
Implementation timescales	Medium (2-5 years), but transition to electric buses for whole fleet may potentially extend beyond AQAP timescales, subject to vehicle production and delivery timescales
Ownership	CYC (Sustainable Transport Service) / Bus operators
Partners	Manufacturers of low emission buses, charging infrastructure providers, emissions abatement equipment providers, Office of the Traffic Commissioner
Funding	DfT / DEFRA funding

5.2.3 Anti-Idling Initiatives

Leaving engines running when parked (stationary idling) causes unnecessary emissions, wastes fuel and adds to local noise levels. Through the lifetime of AQAP4, CYC will continue to tackle engine idling across the city via awareness raising and where necessary, enforcement.

York has:

· Obtained member approval for implementation of a package of measures aimed at deterring stationary vehicles from idling, including the use of discretionary powers under the Road Traffic Regulations 2002 to issue fixed penalty notices to drivers who refuse to switch off their engines when asked.

· Launched a ‘Kick the Habit’ anti-idling awareness-raising campaign (2019), aimed at encouraging people to think about the importance of clean air and the impact that this has on health. We have undertaken annual promotional work in relation to vehicle idling as part of Clean Air Day, working with schools, local businesses and residents groups.

· Undertaken regular daytime and night-time anti-idling enforcement patrols. Enforcement of idling legislation is delivered by staff in Public Protection, with support from Civil Enforcement Officers. During 2021, the duties of CYC’s Support Marshalls were extended to include monitoring of vehicle idling in key city centre locations, this has now been extended to Public Protection Support Offices, who undertake monitoring of idling as part of other routine operations.

· Erected anti-idling signage in CYC car parks, coach parks, city centre bus stops, taxi ranks and other key locations across the city.

AQAP4 commitments:

· Continue to undertake annual awareness of CYC’s ‘Kick the Habit’ anti-idling campaign with local schools and partner organisations such as York Hospital and the University of York

· Explore further anti-idling signage in key locations on the public highway (informed by future complaints) and develop new anti-idling resources to support the campaign as required. We will work with local businesses to raise awareness and minimise occurrences of idling away from the public highway, particularly where this coincides with public exposure (e.g. seating areas in close proximity to idling vehicles)

· Review CYC’s approach to anti-idling enforcement and seek opportunities to obtain additional staff resources for undertaking enforcement patrols. This will include both on the public highway and across CYC’s estate (e.g. coach parks).

· Undertake further anti-idling promotion amongst the taxi trade via awareness raising and information. We will also consider opportunities to raise awareness of vehicle idling associated with other activities that require CYC consent, such as mobile catering units.

· Increase anti-idling patrols in response to public complaints.

Table 5. 3 Anti-idling initiatives

Action	Anti-idling initiatives
Air quality impact	Likely to be Low but may increase to medium in specific hotspot locations, dependent upon extent of idling and vehicles involved
Cost	Kick the Habit campaign and resources already developed, main future costs in relation to promotion (signage / additional resources) and staffing (enforcement). £ - £££ Ongoing promotion can be delivered for <£10k per year, with additional dedicated staff resource for enforcement likely to be £50-£100k per year.
Feasibility	High – unlikely to conflict with any CYC policy and will directly support emission and carbon reduction agendas. Reduced idling will also help protect public health and create a safer and more pleasant environment. Ongoing promotion of existing campaign likely to be supported both by public and politically. No direct socio-economic implications. Ongoing promotion/enforcement will assist bus/freight/delivery operators to enforce their own policies which will result in fuel savings and reduced operating costs. Other benefits include reduction in noise. Budget available for ongoing publicity but wider enforcement subject to funding / additional staff resource. Potential for some enforcement duties to incorporated into existing CYC posts.
Implementation timescales	Short term (<2 years) – anti-idling campaign already developed and will continue to be rolled out and promoted
Ownership	CYC (Public Protection/ Parking Services / Sustainable Transport)
Partners	Bus companies, taxi companies, freight / delivery companies, local businesses. Promotion undertaken with partners such as York Hospital, University of York
Funding	CYC internal budget available for ongoing promotion and development of additional resources to support existing campaign. Wider scale enforcement subject to additional staff resource and funding

5.2.4 Reducing emissions from taxis

Taxis provide essential transport services in the city but are intensively used in the city centre and across residential areas where air quality issues remain. Many people depend on such vehicles for trips when other forms of transport are unsuitable or unavailable, including the vulnerable and some school children who are likely to be more susceptible to poor air quality and respiratory illness. It is important that we continue to work with the taxi trade to understand their needs and ensure operators are part of our wider air quality improvement programme. We will continue to facilitate the transition to low emission vehicles across the taxi fleet via the use of incentives (subject to external funding) and awareness raising, thereby providing taxi drivers with information to allow informed choices about vehicle emissions and total cost of ownership of low emission and/or electric taxis.

York has:

· Previously adopted Taxi Licensing policy that incorporated environmental considerations and required CYC licensed vehicles to meet minimum vehicle emission standards.

· Encouraged over a third of the York taxi fleet to change to low emission alternatives (petrol-hybrid or electric) through CYC’s low emission taxi grant scheme.

· Provided information to taxi drivers about anti-idling policies as part of the annual CYC vehicle licence renewal process and has placed anti-idling signage at key city centre taxi ranks.

· To help meet unmet demand for hackney carriage vehicles, CYC’s Licensing and Regulatory Committee approved the issuing of ten new hackney carriage vehicle licences (end of 2022) bringing the total number to 190. In response to a continuing desire to improve local air quality, the new licences will only be issued to wheelchair accessible vehicles, which are also fully electric or plug in electric hybrid.

AQAP4 commitments:

· Consult further with the taxi trade regarding revisions to CYC’s Taxi Licensing policy and conditions about the type and age of vehicle that will be licensed by CYC in the future. Conditions will reflect CYC aspirations for an ultra-low emission taxi fleet and strive to achieve continual emission reduction from licensed vehicles (both hackney carriage and private hire vehicles).

· Seek opportunities to obtain further grant funding to enable taxi drivers to upgrade their taxis to low emission vehicles. We will also work alongside the trade to understand their requirements with respect to electric vehicle charging infrastructure needs as part of our ‘Public EV Charging Strategy’ review.

· Explore and consider opportunities for addressing emissions associated with non-CYC registered taxis. We will consider the feasibility of including all taxis within the city centre Clean Air Zone.

· Continue to work with the taxi trade to minimise engine idling and undertake further awareness raising in relation to this issue, installing further anti-idling signage where necessary.

Table 5. 4 Reducing emissions from taxis

Action	Reducing emissions from taxis
Air quality impact	Likely to be Low across AQMA and wider city but may increase to Medium in specific locations with high proportions of taxis such as taxi ranks, especially where electric vehicles are being used. Petrol hybrid vehicles produce considerably lower emissions of NO_x and PM compared with older diesel vehicles and offer substantial carbon savings. Air quality impacts associated with CAZ extension to taxis subject to further feasibility work
Cost	££ - £££££ Future policy changes and associated consultation subject to costs of £10-£50k, with wider support/incentives for taxi drivers to upgrade vehicles likely to be much higher (~£500k - £1m) over the existing grant funds secured by CYC for this purpose Extension of CAZ to include taxis subject to further feasibility work and costing
Feasibility	Medium to High - Will directly support emission and carbon reduction agendas and cleaner low emission taxis likely to be widely supported by public. May be socio-economic impacts. Further strengthening of existing Taxi Licensing Policy may be subject to challenge by the taxi trade; impacts on the trade must be carefully considered to ensure numbers of licensed vehicles meet demand and to minimise economic impacts (particularly following impacts on the taxi trade during Covid-19). Whilst low emission vehicles may have higher purchase costs, these can usually be offset via longer term fuel and tax savings. CYC must ensure that an adequate number of wheelchair accessible vehicles (WAVs) remain in the fleet; licensing policy needs to consider options available for these vehicles and set emission / age standards accordingly. A cleaner taxi fleet will improve the image of the city with positive implications for tourism and inward investment. Ultra-low emission / electric taxis likely to be quieter offering benefits for late night transport in residential areas. Extension of CAZ to include taxis subject to further feasibility work
Implementation timescales	Updates to Taxi Licensing Policy and consultation will progress during 2023 Short term (< 2 years) Opportunities for further grant funding for drivers (subject to grant opportunities) Short to Medium term (<2 – 5 years)
Ownership	CYC (Public Protection / Taxi Licensing)
Partners	Taxi operators, charging infrastructure providers
Funding	Work to support policy change and associated consultation with trade funded through CYC internal budget. External grant funding required to support additional vehicle upgrades (over and above DEFRA funding already obtained)

5.2.5 Reducing emissions from CYC vehicles

Effective fleet renewal policies can help to ensure that the energy, carbon and local air quality impacts of local authority operated vehicles are considered as part of fleet replacement programmes. Fleet management policies can further drive energy and carbon savings and deliver air quality benefits. CYC own and operate a wide range of vehicles and equipment to support building maintenance, highways maintenance, waste management and delivery of other key services. Such vehicles make regular, frequent trips within York city centre. CYC also procure the services of third party owned vehicles such as in connection with education (e.g. school buses and taxi services). The current CYC fleet comprises 535 vehicles and items of plant equipment. This includes 180 vehicles that are under 3.5 tonnes. We recognise that the way our own fleet vehicles are renewed is a vital part of the CYC air quality improvement and carbon reduction programmes and that the transition to a cleaner, greener fleet must be done without compromising the important services the council delivers to the city and its residents. We also recognise that we must lead by example; the successful operation of ultra-low and zero emission vehicles as part of the CYC fleet will show leadership and will act as a catalyst for other fleet operators in the city to accelerate their fleet renewal programmes.

York has:

· Agreed to commence the transition to an electric fleet for all vehicles under 3.5 tonnes as part of a four-year replacement programme. This was agreed in March 2020 by City of York Council’s Executive

· Installed ‘Fast’ charging infrastructure at the Hazel Court Eco-depot for charging up to 6 vehicles simultaneously, this has allowed trials of ultra-low emission plug-in vehicles across various services to be undertake in recent years.

· Reduced ‘grey fleet’ trips and worked in partnership with Enterprise Car Club to provide a range of pool vehicles at various locations near West Offices (Main CYC HQ), Hazel Court and across the city which can be booked online and accessed via a smart membership card. A number of diesel pool cars have been replaced with the very latest petrol hybrid technology as part of the car club initiative and are now regularly used across various CYC services.

· Undertaken a programme of driver training, incorporating eco-driving elements. We have also undertaken trials of telematics systems and evaluated fuel additives across the fleet in recent years. CYC has also implemented a Masternaut telematics system for improving safety, reducing emissions and improving vehicle and driver efficiency.

AQAP4 commitments:

· Implement a fleet replacement programme for all vehicles under 3.5 tonnes. A four-year programme was considered adequate for services to be restructured around an electric fleet. CYC does not intend to purchase any new petrol / diesel vehicles during this transition period, but short-term lease replacements may be necessary if existing vehicles fail and an electric vehicle is not available, or the service cannot immediately operate an electric vehicle due to charging infrastructure requirements.

· In line with the above replacement programme, CYC will upgrade power distribution to the Hazel Court Eco Depot to ensure that suitable infrastructure is in place and can support the phased approach to fleet replacement and gradual increase in number of EVs across all services.

· Continue to explore the options for fleet vehicles over 3.5 tonnes to move away from fossil fuels such as diesel. Whilst many specialist items of fleet are in the early stages of development and testing (and early adoption brings associated risks for service areas) CYC Fleet Services will continue to arrange trials and evaluation of these vehicles to assess suitability for core service areas.

Table 5. 5 Reducing emissions from the CYC fleet

Action	Reducing emissions from CYC fleet
Air quality impact	Likely to be Low - Medium across AQMA and wider city, and may increase further in specific locations across CYCs estate and considering all operations. Considerable CO₂ benefits through fleet upgrades to electric and other low emission technologies.
Cost	££££££ Upgrades to power distribution at Hazel Court Depot estimated at £1.5m Upgrades to 153 vehicles over programme lifetime (capital and revenue costs) estimated at £1m - £10m.
Feasibility	High – phased fleet replacement programme already agreed for vehicles under 3.5 tonnes. Directly supports carbon and air quality agendas. No future conflict with wider CYC policy and likely to be supported widely by public. Indeed, a cleaner fleet will improve public perception of CYC and may encourage uptake of low emission vehicles by others. CYC will endeavour to promote and showcase upgrades to other organisations. Considerable progress has already been made with reducing grey fleet trips via use of low emission Car Club vehicles and other sustainable modes. CYC staff in post to oversee and develop staff initiatives to further reduce grey fleet mileage. Alternatively fuelled vehicles can provide a better driving experience for drivers, with the potential for considerable longer term financial savings for CYC
Implementation timescales	Medium term - Whilst initial implementation already commenced, fleet replacement programme for vehicles under 3.5 tonnes likely to be complete within 2 to 5 years. Short term - Trials of vehicles over 3.5 tonnes ongoing and arranged as suitable vehicles come to market
Ownership	CYC (Environmental Services and Fleet)
Partners	Vehicle manufacturers, infrastructure providers
Funding	CYC budget for fleet renewal / electric vehicle capital purchase and ongoing revenue costs

5.2.6 Expansion of EV charging network

Local Authorities are uniquely positioned to provide strategically located charging infrastructure that will support residents, commuters, fleets and through traffic to conveniently and affordably recharge electric vehicles. CYC’s EV Charging Strategy (approved March 2020) sets out the rationale for the number and location of public EV charging points, the principles of tariff-setting and CYC’s approach to providing charging for residents in streets without off-road parking. The strategy outlines an equitable approach to charging infrastructure that will support improved air quality, climate change objectives and financial vitality, and aligns with wider transport policy objectives of maximising active travel and minimising private vehicle usage. CYC’s Executive have also endorsed a commitment to continue to explore options for on street charging and facilities for charging electric taxis in the city centre.

York has:

· Pioneered public charging for electric vehicles (EV) when we launched a public charging network for EVs in 2013. We have gained significant experience and knowledge since 2013 through the CYC network and have improved CYC’s internal management of the network, resulting in a dramatic improvement in chargepoint reliability.

· Launched a Public EV Charging Strategy in March 2020, setting out the next phase of the delivery of York's EV charging network up to 2025. Delivery of the Strategy is already underway, enabling the provision of a robust and fit for purpose EV charging network across York.

· Stimulated the EV market via increasing requirements for EV chargepoints in new developments, requiring ‘fast’ chargepoints in 5% of spaces (with an additional 5% of spaces to be chargepoint ‘ready’). This has provided more opportunities for charging at destinations and will complement CYC’s investment in CYC owned long-stay car parks. CYC are also supportive of commercial EV chargepoint networks which will support consumer choice, geographical spread and enhanced roll-out rates.

· Opened two HyperHub EV charging sites; dedicated charging hubs with 24/7 access, providing 16 charging bays, 8 Rapid and 8 Ultra Rapid. HyperHubs have been part funded by Office for Low Emission Vehicles and the European Regional Development Fund.

AQAP4 commitments:

· We will review standard charging tariffs on an annual basis to ensure we can deliver a modern and reliable network and continue to make our tariff as simple as possible; users just pay per kWh. Electricity for all charge points originates from the wider CYC contract, which purchases renewable energy.

· We will roll-out new Fast and Rapid chargers across York’s car parks and Park and Ride sites.

· Seek external funding to deliver a minimum of 5% fast charger provision in long-stay car parks and Park and Ride sites. We will actively monitor plug-in vehicle uptake in York and review the figure of 5% provision (supported by HyperHubs) every 12 months to ensure we can respond quickly to ensure the CYC network remains fit for purpose.

· We will evaluate the success of the first two HyperHubs and consider options and funding to deliver additional sites. We will also work constructively with commercial operators to ensure the best range of charging facilities and networks are available in York.

· We will maintain a first class network of Fast, Rapid and Ultra-Rapid chargers supported by commercial operators, providing a wide consumer choice and market leading charging experience.

· We will deliver an updated ‘Public EV Charging Strategy’ by 2025, to ensure we continue to provide a robust and fit for purpose future EV charging network across York.

Table 5. 6 Delivery of strategic EV charging network

Action	Delivery of strategic EV charging network
Air quality impact	Medium to High – as EV uptake increases, emissions of NO_x and PM will decrease. Benefits to local air quality will increase over time. In line with local and national planning guidance, changes in vehicle AADT of 5% or more (comparable to 5% BEV uptake) across an AQMA may result in measurable AQ impacts, this aligns with CYC’s aspiration to provide 5% of parking spaces with charge point provision. Uptake of electric vehicles will have a positive impact on carbon emissions, especially where power obtained through renewable energy tariffs. Total impact of implementing EV charging is difficult to quantify due to uncertainties over electric vehicle uptake but for every conventionally fuelled vehicle replaced local emissions of NO_x and tailpipe PM₁₀ are eliminated.
Cost	££££££ Remaining work programme to 2025 estimated at £4-£5m. CYC has provisionally secured this funding (with some elements of match funding to be confirmed). Current plans to develop 2 further Hyper Hub sites at a cost of £3-£4m (included in cost estimate above)
Feasibility	High – EV Strategy and future work programme approved. Directly supports carbon and air quality agendas. Supports wider sustainable transport objectives in Council Plan and reinforces Low Emission Planning Guidance principles that require EV infrastructure on new developments. Funding sources identified. An established and evolving EV charging network provides EV drivers with more confidence to visit York for business or leisure trips and may influence destination choice. Development and maintenance of EV charging network creates jobs. Switching to EVs can offer considerable fuel and tax savings to local businesses and residents. Expansion of strategic EV charging network provides opportunities for wider EV ownership, even those without off-street parking. Wider uptake of EVs will also result in reduced traffic noise.
Implementation timescales	Short term (< 2 years) for delivery of existing programme of Fast / Rapid / Ultra-Rapid charge points Medium term (2-5 years) for evaluation of existing hyper hubs and to consider locations and feasibility of additional sites. New Public EV Charging Strategy to be produced by 2025
Ownership	CYC (Transport / EV Strategy)
Partners	BP Pulse (access partner), EV charge point manufacturer(s)
Funding	CYC, ERDF, OLEV

5.2.7 Minimise development related emissions

Air quality improvement strategies and planning decisions should complement wider climate change/carbon reduction agendas and these should be well aligned to recognise synergies and prevent conflict. In some cases a compromise approach may be needed to balance the two agendas. Ongoing delivery of AQAP4 must strive to maximise synergies with the CYC’s carbon reduction aspirations, via the alignment of respective planning policies and local guidance. It must also continue to ensure that emissions and air quality impacts from new developments are appropriately assessed and mitigated.

York has:

· Developed Low Emission Planning guidance to accompany policy ENV1 ‘Air Quality’ of the Local Plan. This guidance, outlines CYC’s design and mitigation expectations for all new developments in the city and is actively used for development control purposes.

· Developed local standards and template planning conditions in relation to provision of electric vehicle (EV) recharging facilities (and associated management and maintenance) and requirements for Construction Environmental Management Plans (CEMPs) on new development sites.

AQAP4 commitments:

· Update local Low Emission Planning Guidance to further reflect synergies between air quality improvement and carbon reduction strategies, such as those relating to heat and power provision. Formal adoption of updated guidance is subject to the Local Plan and examination process. Public Protection will work closely with Planning Policy colleagues to ensure local air quality issues are adequately addressed as part of this process.

· Ensure that planning applications are reviewed in line with the above Low Emission Planning Guidance and that resultant emissions / air quality impacts are appropriated assessed and mitigated. We will seek to ensure that assessment of air quality impacts considers cumulative impacts from nearby sites to minimise ‘emissions creep’ across the city.

· DEFRA research has shown that a large proportion of Non-Road Mobile Machinery (NRMM) emissions come from the construction industry and that NRMM has the potential to contribute to local pollution hotspots. CYC will consider emission control requirements for Non-Road Mobile Machinery (NRMM) on development sites in York.

· Ensure that local standards for EV charging infrastructure across all sites with parking provision (currently 5% active provision is required) remain appropriate for current EV use (and anticipated future EV uptake) in the city and are aligned to CYC’s vision as laid out in CYC’s EV Charging Strategy. CYC will continue to lead by example with respect to providing first-class EV charging provision on across CYC’s estate and council led development.

Table 5. 7 Minimise development related emissions

Action	Reducing development related emissions
Air quality impact	Medium – Local planning decisions have an important role to play in maintaining and improving local air quality, since they can significantly affect the design, location and management of emission sources and sensitive receptors. Local guidance can assist in securing infrastructure for ultra-low emission vehicles and that emissions during construction are minimised. Minimising exposure to poor air quality through the planning system via principles of good building design will also bring about additional benefits in terms of public health, especially for sensitive groups.
Cost	££ £10-£50k - Mainly staff time in connection with updates to guidance and associated consultation / development of new standard planning conditions. Will also be staff costs associated with assisting developers to comply with guidance and to check the accuracy and effectiveness of impact assessments and mitigation. Costs associated with NRMM currently unknown and subject to further research and national guidance
Feasibility	High – existing guidance currently exists and is actively used for development control purposes. Existing air quality policy hooks within Local Plan. Effective management and mitigation of development related emissions will help maximise development opportunities. Provision of low emission vehicle infrastructure, low emission vehicles and other low carbon technologies on new developments will make developments more attractive to the end users and offer opportunities to showcase low emission measures to the wider population of York. Contributions towards low emission public transport, service vehicles and other low emission infrastructure will have positive air quality and climate change benefits beyond development sites and help to achieve a general improvement in public transport. Future action around NRMM subject to review of national type approval system
Implementation timescales	Anticipated to be Short term < 2 years but dependent on Local Plan process.
Ownership	CYC (Planning / Integrated Strategy / Public Protection)
Partners	Developers, landowners, construction industry
Funding	CYC internal budget (for guidance updates / consultation) Planning obligations / s106 for mitigation measures

5.2.8 Local incentives for low emission vehicles / modes

Low emission vehicle use and associated refuelling / EV recharging infrastructure is now well established in York. CYC also has additional plans to further improve public EV charging facilities in the future. CYC is committed to further encouraging the wider uptake of low emission vehicles and use of the facilities provided via development of incentives and rewards. These may be linked to such things as parking fee reductions and discounted attraction entrance fees. Any incentives must be sustainable in the longer term, as electric vehicle ownership and usage continues to grow in line with the government’s announcement to ban the sale of new conventional petrol and diesel engine vehicles from 2030.

York has:

· Developed an EV charging network across the city, which has experienced rapid growth in usage in recent years. In 2014 there were 1,510 charging sessions, which increased to 13,695 session in 2018. CYC’s EV charging strategy affirms our commitment to provide a high quality public network that supports and accelerates the transition to EV, ultimately enabling the decarbonisation of road transport.

· Since 2013, EV users haven’t paid parking fees in CYC charging bays, instead at fast charging bays users have received up to 12 hours of free provided they are plugged into a charger. We have reviewed this incentive as part of our EV Charging Strategy and whilst daytime parking fees now apply in fast charging bays, free parking is now offered for rapid and ultra-raid charging bays. We have committed to making fast charging bays in CYC car parks available for overnight charging free of charge for residents.

· In recent years, offered a 50% discount on certain types of CYC parking permit if associated with a low emission vehicle.

· Pioneered a low emission taxi grant scheme in 2013, accelerating the uptake of low emission taxis in the city. Further incentives were offered to York registered taxi drivers in 2014/15 and 2015/16 using LSTF funding and CYC obtained further funding from DEFRA in 2020/21 to support additional vehicle upgrades. Currently over a third of the York taxi fleet operate low emission petrol-hybrid or electric vehicles

AQAP4 commitments:

· Review ResPark arrangements and areas covered to consider priority parking / reduced parking fees for low emission vehicles. We will periodically review the local definition of ‘low emission vehicle’ in the context of national policy and local parking discounts to ensure that incentives remain appropriate and deliver continuous improvement. We will also review the need for a parking surcharge on specific vehicles based on their emissions

· Explore further incentives for use of low and zero emission vehicles, both privately and across local businesses. Whilst we must prioritise the uptake of zero tailpipe emission vehicles across the network, we acknowledge that for some sectors alternative fuels may need to be considered (especially heavy duty vehicles) and we will work with partners to assess needs and support infrastructure requirements. In line with CYC’s Climate and Economic Strategy, we will assist and support local business to transition to ultra-low emission and electric vehicles

· Participate in trials and explore further incentives to increase use of modes such as E-Bikes / E-Scooters

Table 5. 8 Local incentives for low emission vehicles and modes

Action	Local incentives for low emission vehicles and modes
Air quality impact	Currently unknown - additional incentives likely to accelerate uptake of alternative fuels and low emission vehicles and will lead to positive air quality impacts. Air quality impacts dependent upon incentives available and uptake.
Cost	Currently unknown – subject to further investigation. May be some small capital costs and ongoing revenue costs (e.g. potential loss of parking income / provision of rewards).
Feasibility	Medium - Whilst local incentives to encourage low emission vehicles well aligned with carbon and air quality agendas, incentives such as CYC parking fee reductions subject to member approval and CYC budgetary process. Financial savings made through the purchase and use of low emission vehicles will reduce operational costs and may result in greater consumer spending in other areas e.g. leisure and shopping. Supports CYC Economic Strategy and support for EV uptake by local businesses. Also potential links to tourism and inward investment. Opportunities for linking incentives to developer emission mitigation plans / green travel plans. In addition to low emission vehicles, incentives can be applied to walking, cycling and use of public transport to ensure that all positive behavioural changes are rewarded and not limited to low emission vehicle purchase. This will also ensure that incentives can be made accessible to all, including non-drivers and those with disabilities. Likely to be well received by the public/visitors as opportunities for reward or financial/material gain generally viewed positively
Implementation timescales	Short to Medium term (<2 – 5 years)
Ownership	CYC (Parking Services, Transport Planning, Public Protection, Economic Development, Marketing and Communications)
Partners	Make it York, Parking infrastructure delivery partners, Developers, Micro-mobility solution partners
Funding	Structuring / pricing of parking fees subject to review and CYC budgetary process. Wider incentives also subject to budgetary review.

5.2.9 Improved public information and awareness

Delivering clear messages to the public around the cause and consequence of poor air quality, particularly around impacts on health, are particularly important for driving behaviour change. Whilst raising awareness about the health impacts of air pollution and encouraging people to minimise transport related emissions tend to be the main focus of most local authority emission reduction campaigns, there are other actions that the public can take to help improve air quality and protect their health. Campaigns relating to issues such as energy efficiency, domestic smoke control, bonfires, fireworks and indoor air quality can all be valuable parts of a wider local air quality improvement strategy. CYC will continue to address these wider issues, alongside existing public information campaign work relating to sustainable travel, as part of package of measures to improve dissemination of information to the public.

York has:

· Provided news and advice on sustainable travel around York via the I-Travel York campaign. CYC’s I-Travel provide support to York’s businesses and schools to develop travel plans and promote sustainable travel. Promotion of walking, cycling and public transport use are also central to this campaign, which also provides information around EV ownership and charging.

· Provided information locally about air quality via CYC’s air quality webpages and social media, including information about air pollution and health, low emission vehicles, air quality improvement measures and the planning process. CYC also provides information about current air quality levels across the city.

· Undertaken ad-hoc promotion of the rules around solid fuel burning in smoke control areas and garden bonfires.

· Been the lead local authority in the development of a DEFRA funded national Air Quality Hub; an information and knowledge sharing resource for local authority air quality professionals. The hub’s aim is to help local authorities create robust air quality policies and take effective action to improve air quality across the UK.

AQAP4 commitments:

· Regularly review information on CYC’s webpages to ensure information remains accessible, relevant and up to date.

· Publish an annual summary of air quality data on our website, to aid local transparency and increase accessibility of air quality to the wider public. We will ensure that data from York’s automatic air quality monitors continues to be available to the public via an online portal; this will include the publication of a daily Air Quality Index for the city. We will progress an air quality alert system for residents and visitors, especially vulnerable groups, to help minimise exposure when pollution levels are high. We will also explore wider behaviour change messaging in response to high pollution episodes, to include press releases, digital signage and social media.

· We will work with Public Health to inform the public about the health impacts of air pollution and how behaviour change can reduce emissions and exposure, particularly amongst vulnerable members of the public (i.e. people with pre-existing respiratory or cardio-vascular conditions). We will continue to also explore and promote spaces that encourage active travel such as walking and cycling.

· Undertake annual public awareness raising via local publications and CYC’s social media presence to support the national ‘Burn Better’ campaign to help householders choose cleaner fuels and ensure they are aware of best practice in terms of maintenance of solid fuel burning appliances.

· Undertake annual public awareness raising in relation to smoke control areas and the use of appropriate fuels and appliances. This will include consideration of indoor air quality.

· Undertake awareness raising around the impacts of bonfire smoke on health

· Develop further air quality resources for schools and businesses to support the work of CYC’s I-Travel team and promote sustainable travel initiatives across CYC’s area. We will ensure that air quality monitoring data is considered to help target interventions to those areas with the highest pollution levels.

Table 5. 9 Improved Public Information

Action	Improved Public Information
Air quality impact	Public awareness around solid fuel burning, smoke control areas and bonfires will directly target reductions in particulate matter across the city, bringing additional health benefits to York residents. It is hard to quantify this in terms of absolute air quality impact, other than to say it will be positive. Air quality benefits of wider sustainable travel initiatives and reduction in private car use likely to be Medium in the longer term. Exposure reduction initiatives will ensure public exposure is minimised and bring about additional health benefits. Providing information about opportunities for active travel such as walking and cycling can also contribute to air quality improvement.
Cost	Annual cost of publicity likely to be <£10k (£) but the development of specific campaigns and air quality forecasting / alert services likely to have greater associated costs of approximately £50k - £100k (£££).
Feasibility	High - Very well aligned with air quality, carbon, public health and planning agendas. Unlikely to conflict with wider CYC policy and campaign work likely to be well supported by the public and CYC members and will be perceived as worthwhile and informative. Direct positive benefits in terms of reducing fine particulate emissions and associated public health benefits Increasing awareness of air quality and health impacts and providing advice can help reduce sickness absence and reduce pressure on local health facilities. Funding available for annual publicity, but would require additional funding for specific campaign work (note that DEFRA funding already obtained to develop an air quality forecasting and alert service and to raise awareness of PM emissions and health impacts) Funding available for I-Travel campaign, which is already well established.
Implementation timescales	Most measures Short term (<2 years) for initial implementation and will recur annually. May run into Medium term (2-5 years) for website upgrades or dedicated campaign work
Ownership	CYC (Public Protection / Sustainable Transport / Public Health)
Partners	CYC (Marketing and Communications), website infrastructure partners, local publications
Funding	Annual public awareness raising and development of associated resources around solid fuel burning and smoke control can be funded via CYC’s internal budget. DEFRA funding was obtained in early 2023 to develop an air quality forecasting and alert service and to undertake an awareness campaign in relation to PM emissions and health impacts, with specific emphasis on domestic solid fuel burning Major revisions to CYC’s existing air quality web presence, if required, is subject to additional funding (CYC budget and/or DEFRA grant)

5.2.10 Modal shift, active travel and network improvement

Measures to reduce trips, encourage modal shift and reduce congestion are considered fundamental to any air quality improvement programme for York. This has been recognised through all previous iterations of CYC’s Air Quality Action Plan for the city centre AQMA. Measures in CYC’s Local Transport Plan (LTP) continue to be an intrinsic part of the overall approach to air quality improvement and transport based emission reduction across the city. Active travel (principally walking and cycling) plays an important role in a modern, sustainable city and for a number of years CYC has played a nationally significant role in the development of active travel measures as national strategy has sharpened its focus in this area. Active travel is at the apex of the city’s travel hierarchy as laid out in our Local Transport Plan.Further information on trip reduction, modal shift and active travel measures can be found in CYC’s current LTP. For completeness and to avoid unnecessary duplication, only the major LTP based schemes that support air quality action planning in York have been included in this updated AQAP4 as distinct measures.

York has:

· Obtained funding to deliver major schemes for York Central, increasing the capacity of the A1237/Outer Ring Road and improving the area in front of York Station.

· Delivered a Clean Air Zone for buses covering much of central York.

· Made significant progress electrifying the bus network with 33 electric buses now in use in York, expanding to 85 buses by the end of Autumn 2023.

· Built new park and ride sites at Poppleton Bar and Askham Bar and improved the junction between the A1237 and A59 Harrogate Road

· Secured mandates to develop projects to improve the area around Castle car park and for a new station at Haxby

· Delivered improvements for pedestrians and cyclists, such as on Scarborough Bridge and its approaches and a new segregated cycle and footpath linking Clifton Moor and Haxby

· Introduced restrictions on motorised traffic in some areas.

· Has participated in trials to offer residents, commuters and visitors E-Scooters and E-Bikes to encourage more sustainable micro-mobility.

AQAP4 Commitments:

· Deliver key priorities for bus services as laid out in the Bus Service Improvement Plan (BSIP). The BSIP responds to consultation with operators and adjacent local authorities and reflects operational assessments of the network, research with bus passengers and CYC’s own Our Big Conversation engagement with local residents and businesses.

· Deliver further capacity upgrades to the outer ring road. Air quality assessment undertaken for the scheme (A1237 from A19 Shipton Road to A1036 Little Hopgrove) has shown that it will result in a reduction in traffic flows through the city centre AQMA and indicates a long-term beneficial residual effect on air quality within central York. The scheme includes upgrades to pedestrian and cycle facilities, creating an orbital cycle and pedestrian route to help encourage the uptake of active travel. Construction work is anticipated to take 2 years, with completion in 2025.

· Continued delivery of I-Travel York programme. This programme underpins the objectives of the Local Transport Plan and programme initiatives will complement highway and traffic measures to enable people to travel more sustainably. Examples of measures that will be delivered include work with schools to promote sustainable travel choices, minimise idling events during school pick-up / drop-off, and deliver Bikeability cycle training; work with businesses to embed sustainable travel modes into current business models and encourage uptake amongst employees; and provision of travel information and sustainable travel events.

· Develop a city-wide Movement Plan to mitigate impacts of upgrading and dualling the A1237, reducing congestion and enabling active travel. This Movement Plan will also consider opportunities for further management of freight deliveries.

· As part of the Government’s Emergency Active Travel Fund CYC will enable more walking and cycling as a long-term method for commuting as we emerge from the pandemic, and to address the current capacity constraints on public transport. Proposed schemes to be progressed through feasibility and delivered where supported can be viewed at Active Travel Fund.

· Deliver a Local Cycling and Walking Infrastructure Plan (LCWIP) which will designate strategic networks within York for cycling and walking and will identify and prioritise infrastructure schemes to deliver such networks.

· Continue to investigate new and innovative modes of transport to complement the existing e-scooter and e-bike hire schemes in operation across the city.

· We will explore specific traffic management options for Gillygate to reduce emissions and improve air quality.

Table 5. 10 Modal shift, active travel and network improvement

Action	Modal shift, active travel and network improvement
Air quality impact	Air quality impacts are scheme dependent and are likely to range from Low to High Modal shift measures fundamental to tackling non-exhaust PM component from traffic, as will reduce PM emissions associated with brake and tyre wear and road surface abrasion. Road surfaces and repair strategies are also likely to influence this important source of non-exhaust PM.
Cost	Costs are scheme dependent but as a package fall into the highest cost bracket of >£10m £££££££ Bus Service Improvement Plan requested £34m from the DfT and a further £14m post 2025 to improve York’s bus network. £17.5m was awarded for the period 2023 to 2025. In addition to £12m to complete the electrification of York’s bus fleet, the funding bid also includes £2.5m to improve bus service frequencies, provide more routes and support the reintroduction of park and ride services from Poppleton Bar; £5m to provide better, cheaper tickets for young people, and better tickets which are valid for travel on all bus services in York; £5m to provide bus priorities and support rapid bus services to new developments around York, and £5m to upgrade York’s park and ride network, allowing it to support a wider range of bus services, provide overnight parking at more sites and refurbish the two oldest sites, at Rawcliffe Bar and Grimston Bar. CYC also requested funding to provide benches and lighting at more bus stops, provide audio announcements on all buses in York and install 100 more real time bus information screens across the city. CYC have provisionally allocated around £3.3m to support active travel schemes to be implemented by the end of 2023. Costs of specific cycling and walking infrastructure schemes are scheme dependent ITravel York Programme – annual costs estimated at £450k for business, school and community engagement ££££
Feasibility	Medium to High - LTP4 will build on the work already done for initiatives like My City Centre and the Local Plan and will complement the strategies being developed for York’s economic recovery, air quality and carbon reduction/climate change agendas. Reduced congestion and improved public transport / sustainable transport provision will improve the public realm and support economic growth. Measures will result in direct air quality improvements and support carbon reduction aspirations. The LTP has a critical role in promoting equality of access to the transport network. Some measures may improve access to some areas of the city for some users and modal shift measures will support provision of accessible transport for all. It should be noted that some future LTP policies or schemes may fail during the feasibility or design stages, or be delayed because it is not possible to attract funding for them or because closer scrutiny of more developed plans shows them to have unacceptable costs and/ or impacts. However, inclusion of them within the LTP signals an intent to seriously investigate their feasibility and seek to deliver them if they are shown to be feasible and acceptable. All active travel schemes which impact on residents and businesses will be subject to public consultation prior to progression. By using the consultation to develop high quality cycle and pedestrian routes, CYC aim to encourage more people to walk and cycle as part of their everyday travel in the city. The Active Travel Programme is part of CYC’s overall Transport Capital Programme and highlights upcoming projects and proposed schemes (some projects are subject to successful bids) to be implemented by the end of 2023. BSIP delivered through the Enhanced Bus Partnership.
Implementation timescales	Draft LTP4 document due 2024. Policy document will focus on a 15 year period, with a review at every 5 year period. Timescales are scheme dependent (see LTP4 and complementary strategies such as Bus Service Improvement Plan) Completion of ORR upgrade works expected within Medium term (2-5 years) I-Travel York programme – Ongoing (subject to funding) Active travel measures – variety of schemes subject to further feasibility and funding, but most expected to be delivered by the end of 2023/24 - Medium term (2-5 years) Development of LCWIP - Currently ongoing
Ownership	CYC (Sustainable Transport)
Partners	Various CYC departments involved in project feasibility and delivery, alongside external partners such as bus operators, infrastructure providers and developers
Funding	CYC and external funding (e.g. DfT) for specific schemes BSIP Funding (£17m) Active Travel Programme – provisional allocation of £3.3m, with some schemes subject to successful funding bids

5.2.11 Regulation of industrial and domestic emissions

As transport emissions decrease with time, the relative proportions and importance of emissions from sectors such as domestic and industrial combustion increases, especially with respect to PM₁₀ and PM_2.5 emissions, but also NO_x. Due to the established links between fine particulate pollution and human health, together with the evidence highlighting that there are no ‘safe’ levels of particulate, it is important that AQAP4 raises public awareness of non-transport emissions, especially in the context of particulates. AQAP4 must also recognise the synergies with CYC’s carbon reduction programme and measures to reduce combustion activities generally across the city, via increased energy efficiency and advice services.

York has:

· Undertaken routine scheduled inspection of industrial premises under CYC control (Part A2 or Part B activities).

· Investigated and prevented dark smoke emissions from industrial, trade and other premises

· Undertaken ad-hoc promotion of the rules around solid fuel burning, smoke control areas and garden bonfires.

AQAP4 Commitments:

· Continue to regulate non-transport emissions from industrial premises under CYC control (Part A2 or Part B activities). Where required, we will support other agencies (e.g. Environment Agency) with regulating emissions to air from larger processes outside CYC’s direct control.

· Continue to investigate and prevent dark smoke emissions from industrial or trade premises, such as those from bonfires (Clean Air Act)

· We will ensure that smoke control area boundaries are reviewed; where necessary these will be amended. We will investigate complaints of non-compliance with smoke control area regulations, taking enforcement action where necessary in line with updates to the Clean Air Act 1993 (as required by Environment Act 2021). This will require a new CYC policy for civil penalties for smoke emissions within Smoke Control Areas.

· We will investigate sales of non-authorised solid fuels and complaints of non-compliance. We will undertake regular review of known retailers selling solid fuels to ensure they meet required standards in terms of labelling and information at the point of sale (e.g. ‘Ready to Burn’ certification).

· Complementing the above commitments, CYC will reduce future emissions through CYC’s Housing Delivery Programme, the most ambitious council-led scheme for a generation and the largest zero carbon house building programme in the country. The programme is a long-term investment in high-quality new affordable homes for current and future generations pioneering low carbon lifestyles and promoting health and wellbeing. Sites will embrace principles of energy efficiency and support sustainable transport choices and connectivity.

· CYC will also facilitate home upgrade energy efficiency grants alongside partner organisations and promote business initiatives to reduce energy use and emissions across York. We will also support building retrofit events in York which will support residents to discover how their homes can be made more efficient. CYC’s Local Area Energy Plan outlines potential demonstrator projects for near term implementation. Producing a LAEP will contribute to delivering the net zero ambition for York by 2030, providing an optimised, cost-effective, and evidence-based pathway to achieving our target.

Table 5. 11 Regulation of industrial and domestic emissions

Action	Regulation of industrial and domestic emissions
Air quality impact	Low - Medium Difficult to quantify this in terms of absolute air quality impact, other than to say it will be positive. Addressing domestic emissions / solid fuel burning will directly target PM_2.5. Regulation of industrial premises and enforcement of smoke regulations will seeks to minimise emissions across the city, including fine particulates, for the protection of public health. Review of smoke control area boundaries could offer wider opportunities to minimise emissions in certain areas via the use of authorised fuels and restrictions on the types of appliance that can be used. However, as the majority of areas with the outer ring road as well as Haxby and Wiggington are already included within the smoke control area, expansion to currently undeveloped sites will serve to minimise future emissions, rather than affecting the current baseline air quality position. New policy position for civil penalties for smoke emissions will act as a deterrent to unauthorised burning and serve to reduce fine particulate emissions. Home upgrade energy efficiency grants and advice services to residents and businesses will complement wider emission reduction measures of AQAP4.
Cost	Main costs to CYC in relation to staffing resource needed for investigation and enforcement, publicity and associated resources. May be higher costs associated with extension to smoke control areas and provision of financial support to existing homeowners to upgrade appliances, where applicable. Costs subject to further investigation but would not be relevant to currently empty undeveloped sites. Staffing costs estimated at £10-£50k per year (££) on an ongoing basis (although delivered through existing staff resources where possible)
Feasibility	High – most measures currently ongoing and resourced. Control of domestic and industrial emissions directly supports air quality improvements and CYC’s carbon reduction agenda. Specifically supports public health agenda via reduction in particulates and supports sustainable, low carbon development. Permitting regime is designed to prevent and/or minimise the impact to human health and the environment. Local authority advice and support to local industries through this regime helps them to meet emission regulation requirements and reduce operational costs thus benefitting the local economy. Measures likely to be generally supported via the public as not only will they benefit local air quality but the control of emissions/smoke can help avoid occurrence of nuisance and odours and identify occurrences of illegal waste disposal.
Implementation timescales	Mostly Short term (<2 years) and ongoing Housing delivery programme Long term (>5 years)
Ownership	CYC (Public Protection) - regulation of industrial premises and enforcement of smoke regulations CYC (Major Projects) - housing delivery programme CYC (Carbon Reduction) - energy efficiency upgrades and advice
Partners	CYC (Marketing and Communications), Operators of industrial processes, Environment Agency, Housing delivery and energy efficiency partners
Funding	CYC internal budget. Enforcement and investigation of smoke emissions delivered via existing staff resource, subject to new policy position for civil penalties following updates to Clean Air Act 1993 (in line with Environment Act 2021). Regulation of industrial processes subject to CYC cost recovery based on activity and applicable regulations. Domestic heating upgrades (if deemed necessary) subject to external funding source

5.2.12 Monitoring air quality and access to air quality information

Monitoring air quality across York allows CYC to assess compliance with Air Quality Objectives, evaluate the effectiveness of air quality improvement interventions and to provide information to York’s residents, visitors and workers to help them reduce exposure. CYC have been monitoring air quality for over 20 years and have a huge repository of open access data; summary information is shared annually via Air Quality Annual Status Reports (ASRs). Air quality monitoring data is also used to inform the suitability of new development for its location and the requirement for mitigation to reduce public exposure and prevent further air quality deterioration.

York is currently:

· Monitoring air quality (NO_x/NO₂) at over 200 locations in the city via a network of NO₂ diffusion tubes and real-time air quality monitoring stations, two of which form part of DEFRA’s Automatic Urban and Rural Network (AURN). We also monitor PM₁₀ and PM_2.5 at some locations.

AQAP4 commitments:

· Continue to monitor air quality across CYC’s area, focussing on the AQMA, key transport corridors and wider strategic locations

· Publish an annual summary of air quality data and progress with AQAP4 measures on our website, to aid local transparency, increase accessibility of air quality information to the wider public and encourage buy-in to delivering air quality improvement measures by those best placed to assist. This summary will be actively shared with local leads for Public Health and Transport and we will brief CYC relevant elected Air Quality portfolio holders.

· Ensure that data from York’s automatic air quality monitors is available to the public via an online portal; this will include the publication of a daily Air Quality Index for the city.

· Respond to changing monitoring priorities, especially in relation to the relative importance of NO₂ compared with PM_2.5 and the links to human health. We will ensure that the location and type of monitoring in the city is reviewed annually and remains relevant and targeted to key sources and pollutants. This may be subject to additional funding where new equipment or upgrades are needed and will be informed by future DEFRA guidance on this subject.

Table 5. 12 Monitoring air quality in York

Action	Monitoring air quality in York
Air quality impact	No direct air quality impact per se, but used to monitor ongoing impact of AQAP4 and wider CYC strategies affecting traffic and local development. Indirect impacts via awareness raising in relation to CYC interventions and greater uptake of sustainable transport
Cost	££ £10-£50k per annum (for ongoing operational costs). Additional monitoring / equipment upgrades subject to additional capital costs
Feasibility	High – level and scope of monitoring subject to local capital and revenue budget but existing network well established and two sites affiliated into DEFRA’s AURN (and receive financial support for continued operation).
Implementation timescales	Annual review - Ongoing
Ownership	CYC (Public Protection)
Partners	DEFRA (AURN sites), University of York (equipment trials)
Funding	CYC internal budget (supported by DEFRA for operation of AURN sites). Future upgrades to existing monitoring infrastructure will require additional capital funding (either from CYC or external source)

Table 5. 13 Air Quality Action Plan Measures: 2023 – 2027

Measure No.	Measure	Category	Classification	Estimated Year Measure to be Introduced	Estimated / Actual Completion Year	Organisations Involved	Funding Source	Defra AQ Grant Funding	Funding Status	Estimated Cost of Measure	Measure Status	Target Reduction in Pollutant / Emission from Measure	Key Performance Indicator	Progress to Date	Comments / Potential Barriers to Implementation
1a	Explore opportunities / options for reducing freight emissions	Freight and Delivery Management	Delivery and Service Plans Freight Consolidation Centre Freight Partnerships for city centre deliveries	2023	2023/24	CYC Freight transport industry Local operators York Civic Trust Local Enterprise Partnership York Business Improvement District (BID)	DEFRA funding secured for feasibility study and pilot	Yes	Partially Funded	£100k - £500k	Planning	Baseline emission assessment undertaken (2021) demonstrated that HGVs are a significant emission source on the majority of major roads, where they contribute 15 – 25% of total road NO_x emissions and up to 55% in some areas. LGVs generally responsible for less than 10% of road traffic NO_x emissions, but are more significant in certain areas such as the outer ring road and on key routes like Fulford Road, representing up to 25% of total road emissions.	Feasibility studies completed Reduction in freight mileage / freight emissions	Initial feasibility study to address first/last mile delivery of light goods in York undertaken Oct/Nov 2021. Reviewing recommendations and progressing pilot study Freight forum established 2021 Council Plan commitment to develop a city-wide Movement Plan that will consider management of freight deliveries	Initial feasibility study funded. Permanent consolidation facilities subject to further costing and investment
1b	Undertake pilot project to test ‘micro-consolidation centre’ for distribution of commercial light goods	Freight and Delivery Management	Freight Consolidation Centre	2023	2024	CYC Local delivery operators and support staff	DEFRA funding secured for pilot	Yes	Funded	£100k - £500k	Planning	Subject to evaluation of pilot and reduction in freight mileage	Completion / evaluation of pilot Reduction in freight mileage / freight emissions (as demonstrated through pilot)	Currently seeking pilot delivery partners and suitable premises	Pilot funded Anticipated that the pilot will be supported by Blueberry Academy, who provide specialist support for young people and adults with learning differences, autism, social, emotional and mental health needs and/or other disabilities.
1c	Consider feasibility of extending Clean Air Zone to include freight vehicles	Promote Low Emission Transport	Clean Air Zone (CAZ)	2023	Currently unknown	CYC Freight transport industry Local operators York Civic Trust Local Enterprise Partnership York Business Improvement District (BID)	Currently unknown	No	Not funded	Currently unknown	Planning	Currently unknown	To be developed	CYC Council Plan 2023 – 2027 aspiration to consider extension of CAZ to freight vehicles	Subject to further feasibility work
2a	Upgrade (CAZ exempt) inter-urban and rural services to ultra-low emission (electric) vehicles	Promoting Low Emission Transport	Clean Air Zone (CAZ)	2022/23	2025	CYC Sustainable Transport Bus operators Manufacturers of low emission buses Charging infrastructure providers Emissions abatement equipment providers	DfT Bus Operators (match funding)	No (DfT funded)	Funded	tba	Implementation	Buses generally contribute less than 10% of traffic emissions on the majority of streets and are most significant on roads with proportionally less emissions, where bus flows form a larger proportion of the overall traffic. In areas like George Hudson Street and Blossom Street, between 10 - 25% of the total road NO_x emissions are due to buses	% inter-urban and rural services electric / Euro VI diesel BSIP target to convert all inter-urban and rural services to Euro VI diesel by 2024/25 (if it not practical to electrify the routes) Enhanced Partnership Plan (Sept 2022) contains high level objective of at least 95% of inter-urban and rural services to be operated using vehicles of Euro VI standard or better by 2024/25.	See update for associated measure 2b. Where it is not practical to electrify routes, all inter-urban and rural services will be upgraded to Euro VI	An advisory minimum emission standard applied to CAZ exempt vehicles of Euro IV by January 2020, increasing to Euro V from January 2022 and ULEB / Euro VI from January 2024
2b	Work in partnership with bus operators to pursue an all-electric, zero emission bus fleet for all services operating predominantly in the York urban area	Vehicle Fleet Efficiency	Promoting Low Emission Public Transport	2022/23	2025	CYC Sustainable Transport Bus operators Manufacturers of low emission buses Charging infrastructure providers	DfT Bus Operators (match funding)	No DfT funded	Funded	>£10m	Implementation	Emission contributions from buses discussed under measure 2a The new buses will be used on First’s routes 1, 4, 5 and 6, for the York Hospital shuttle bus and on Park&Ride route 2, reducing carbon emissions in York by 2,300 tonnes per year as well as reducing NO_x and particulate emissions across the city. This adds to the current annual reduction of 1,600 tonnes achieved by the zero-emission Park and Ride fleet.	% Electric Bus within ‘urban’ bus fleet BSIP target to convert all bus services operating predominantly in the York urban area to electric vehicles by 2024/25. Enhanced Partnership Plan (Sept 2022) contains high level objective of At least 90% of bus services operating predominantly in the York urban area to be operated using electric vehicles by 2024/25.	In March 2022, CYC was awarded £8.4m through DfT’s ZEBRA fund to buy an additional 44 new electric buses. This will be matched by a further £10 million investment by First. Once in operation, this will expand the York bus fleet to 77 all-electric buses, which will run more than half the bus-miles operated in the city, including the entire Park and Ride network Bus Service Improvement Plan (BSIP) bid submitted to DfT in October 2021. In April 2022, CYC was awarded an additional £17m to support the development of key schemes and initiatives in the BSIP, including wider electrification of the urban bus fleet. Approximately £12m will be used to fund the conversion of 60 additional buses and associated infrastructure.	Additional benefits include reduction in carbon emissions, noise pollution and improved passenger (and driver) experience York will receive 24 single deck GB Kite Electroliners and 20 Double Deck StreetDecks. This will more than double the number of electric buses in use in the York area, helping to improve air quality by reducing diesel exhaust emissions, First Bus placed order with UK manufacturer Wrigthbus in Sept 2022
2c	Extend CAZ (for buses) to York Central	Promoting Low Emission Transport	Clean Air Zone (CAZ)	2023	Currently unknown	CYC Sustainable Transport Bus operators Traffic Commissioners Office	Currently unknown	No	Not funded	Currently unknown	Planning	-	Change to the Traffic Regulation Condition (TRC)	CYC Council Plan 2023 – 2027 aspiration to consider extension of CAZ area to York Central	Subject to discussions with the Traffic Commissioners Office and a change to the Traffic Regulation Condition
3a	Continued promotion of CYC ‘Kick the Habit’ campaign	Traffic Management Public Information	Anti-idling enforcement Via leaflets / the Internet / Other	2023	Ongoing	CYC Public Protection / Parking Services / Sustainable Transport. Bus companies, taxi companies, freight / delivery companies, local businesses. Promotion undertaken with partners such as York Hospital, University of York and local schools	CYC internal funding for ongoing promotion and development of resources to support the campaign	Original campaign resources funded through DEFRA grant funding	Funded	<£10k	Implementation	Previous feasibility work undertaken by CYC suggested at 5 busiest service bus locations, estimated savings of 1,526kg NO_x, 36kg PM₁₀, 46,555kg CO₂,and 17,949 litres of fuel per year could be made by addressing idling.	Estimate of idling time saved (mins)	Existing ‘Kick the Habit’ campaign Annual promotion on Clean Air Day	Partnership working with schools, hospital and academic institutions Opportunities to roll-out campaign in other local authority areas
3b	Erect further signage / develop new anti-idling resources / review approach to anti-idling enforcement	Traffic Management	Anti-idling enforcement	2023	Ongoing	CYC Public Protection / Parking Services / Sustainable Transport	CYC	Original campaign resources funded through DEFRA grant funding, ongoing resource development likely to be CYC funded	Partially funded	New resources <£10k Staff resource for enforcement subject to higher cost but opportunities to incorporate idling duties into other related posts.	Planning	Difficult to quantify exact emission savings as measures aimed at preventing idling / education	N/A	Permanent signage in CYC car parks, at most city centre bus stops, multiple taxi ranks and at other key locations since scheme launch in 2019. Anti-idling leaflets produced for different target audiences (schools, taxi drivers, commercial vehicles etc)	Applicable to all vehicle modes, including cars, taxis, buses, LGVs, HGVs
4a	Review and update of CYC Taxi Licensing Policy to accelerate uptake of ULEVs	Promoting Low Emission Transport	Taxi Licensing conditions	2023	2024	CYC Public Protection / Taxi Licensing	CYC	No	Funded	£10k - £50k	Planning	Air quality / emissions impact can be quantified when policy revisions are agreed	Adoption of new Taxi Licensing Policy	Consultation with the taxi trade previously undertaken in 2020	Review of policy subject to consultation with taxi trade and member approval CYC will consider opportunities for addressing emissions associated with non-CYC registered taxis that operate in the city
4b	Seek further opportunities for CYC to support taxi drivers to upgrade vehicles to ULEVs	Promoting Low Emission Transport	Taxi emission incentives	2023	Ongoing	CYC Public Protection / Taxi Licensing	Likely to require external funding	Previous DEFRA grant funding obtained for Low Emission Taxi Grant scheme	Not funded	£500k - £1m	Planning	Converting the remaining taxi fleet to electric or petrol-hybrid technology can offer considerable emission savings compared with older diesel technology	% low emission taxis (electric / hybrid) across CYC licensed taxi fleet Baseline (June 2023) is 34%	Low Emission Taxi Grant scheme rolled out 2021/22 34% of York registered taxis were electric or petrol hybrid as of June 2023	CYC will also work alongside the taxi trade to understand requirements of charging infrastructure needs.
4c	Consider feasibility of extending the Clean Air Zone to include taxis	Promoting Low Emission Transport	Clean Air Zone (CAZ)	2023	Currently unknown	CYC Public Protection / Taxi Licensing Taxi Trade	Currently unknown	No	Not funded	Currently unknown	Planning	Currently unknown	To be developed	CYC Council Plan 2023 – 2027 aspiration to consider extension of CAZ area to include taxis	Subject to further feasibility work
5a	Implement an EV fleet replacement programme for all vehicles under 3.5 tonnes	Promoting Low Emission Transport	Company Vehicle Procurement – Prioritising uptake of low emission vehicles	2023	2025	CYC Highways and Fleet	CYC	No	Funded	£1m - £10m Estimate of costs of upgrades to 153 vehicles over programme lifetime (capital and revenue costs)	Implementation	CYC’s 2020 vehicle fleet emitted 1763t of CO₂ every year (including HDVs). NOx/PM reduction not yet estimated	% of EVs in CYC Fleet <3.5T (Sept 2023 figure 33.5%)	Phased fleet programme agreed for vehicles under 3.5 tonnes Upgrades to power distribution at Hazel Court Depot progressed 2022	Phased vehicle upgrade as part of replacement programme will see gradual increase in EVs across all services
5b	Explore options for fleet vehicles over 3.5 tonnes to move away from diesel	Promoting Low Emission Transport	Company Vehicle Procurement – Prioritising uptake of low emission vehicles	2023	Ongoing	CYC Highways and Fleet	CYC	No	Partially funded	£1m - £10m	Planning	CYC’s 2020 vehicle fleet emitted 1763t of CO2 every year (including HDVs). NOx/PM reduction not estimated	% ULEV (over 3.5 tonnes) (Sept 2023 figure 3.6% which relates to 2 electric refuse vehicles)	Zero-emission 'eCollect' refuse collection vehicles (eRCVs) are used six days a week on commercial waste collections benefitting the city with zero emissions and quieter operations.	CYC will continue to arrange trials and evaluation of vehicles to assess suitability for core service areas.
5c	Maximise CYC journey efficiency (and minimise emissions) through use of telematics, training and sustainable travel options for staff	Vehicle Fleet Efficiency	Driver training and ECO driving aids	2023	Ongoing	CYC Highways and Fleet / Rethinking Travel	CYC	No	Funded	Dependent upon exact options progressed	Planning	NOx/PM reduction not estimated	Telematics feedback and evaluation Use of pool bikes, car club vehicles, discounted public transport tickets for work travel	ECO driver training previously undertaken Masternaut telematics system rolled out 2021	-
6	Delivery of CYC Public EV Charging Strategy / roll-out of additional charge points / hubs	Promoting Low Emission Transport	Procuring alternate refuelling infrastructure to promote Low Emission Vehicles, EV Charging	2023	Ongoing Strategy introduced 2020 and will run until 2025 with annual review	CYC Transport (EV Strategy) BP Pulse (access partner) EV Charge Point manufacturers	CYC	No Funding for HyperHubs secured through OLEV/ERDF	Funded	£1m - £10m bracket Remaining charge point rollout programme to 2025 estimated at £4 - £5m	Implementation	Emission reduction dependent upon EV uptake. For every conventionally fuelled vehicle replaced local emissions of NO_x and tailpipe PM₁₀ are eliminated.	Number of operational fast, rapid and ultra-rapid CYC charge points (Sept 2023 figure is 103 comprising 84 Fast, 11 Rapid 11 and 8 Ultra Rapid) Number of charging episodes (2022 figure was 24,109)	Extensive ‘pay as you go’ fast charge public electric vehicle recharging network consists of 84 Fast, 11 Rapid 11 and 8 Ultra Rapid chargers (Sept 2023) Two Hyperhub sites delivered and operational Two further Hyperhub sites in development	Work programme agreed and funded CYC will monitor plug-in vehicle uptake in York and usage of CYC’s network (at least annually) to assess if charge point provision meets demand. Updated EV charging strategy to be produced by end 2025
7a	Review / update Low Emission Planning Guidance and ensure alignment with carbon reduction policies	Policy Guidance and Development Control	Air Quality Planning and Policy Guidance	2023	Anticipated 2024 Timescales for adoption of updated guidance/SPG is subject to the Local Plan and examination process.	CYC Public Protection / Planning / Integrated Strategy / Carbon Reduction	CYC	No	Funded	£10-£50k	Implementation	NOx/PM reduction not estimated	Revision and adoption of updated low emission planning guidance	Draft guidance written and currently being actively used for development control purposes	Cost anticipated mainly in relation to staff time and consultation CYC will ensure that local standards for EV charging infrastructure provision remain appropriate for current EV use (and anticipated future EV uptake) in the city and are aligned to CYC’s vision as laid out in CYC’s EV Charging Strategy. Consideration of energy efficiency with respect to commercial / domestic heating Consideration of low NOx boiler technologies Consideration of emissions from Non-Road Mobile Machinery (NRMM) and local standards
7b	Ensure development related emissions are appropriately assessed and mitigated in line with CYC guidance	Policy Guidance and Development Control	Air Quality Planning and Policy Guidance	2023	Ongoing	CYC Public Protection / Planning	CYC	No	Funded	£50-£100k Staff time plus oncosts	Implementation	NO_x/PM reduction not estimated	Planning applications reviewed in terms of air quality and a summary of any conditions imposed are summarised as part of CYC’s Annual Air Quality Status report to DEFRA.	Ongoing assessment of planning applications Development of standard planning conditions for air quality issues Development of local standards for EV charging provision AQ Policy ENV1 developed as part of Local Plan	Cost anticipated mainly in relation to staff time for implementing guidance Assessment of air quality impacts will consider cumulative impacts from nearby sites to minimise ‘emission creep’ across the city. Standards for EV charging provision subject to annual review
8	Continue to explore incentives and opportunities to encourage the wider uptake of low and zero emission vehicles	Promoting Low Emission Transport	Priority parking for LEV's Company Vehicle Procurement -Prioritising uptake of low emission vehicles Public Vehicle Procurement -Prioritising uptake of low emission vehicles	2023	Ongoing	CYC Transport / Public Protection / Parking Services / Transport Planning Partners may include infrastructure delivery partners, developers, micro-mobility solution providers	CYC	No	Not funded	Scheme Dependent	Planning	NOx/PM reduction not estimated	Number of low emission parking permits issued Further ULEV / ZEV / micro mobility trials undertaken	Parking incentives whilst use of rapid and ultra-rapid charge points Low emission discount offered on parking permits Advice to businesses on EV transition and infrastructure	CYC will explore further incentives to increase use of micro-mobility modes, such as E-Bikes / E-Scooters
9a	Improve public access to air quality information and advice	Public Information	Via the Internet	2023	Ongoing	CYC Public Protection / Public Health	CYC	No	Partially funded	Dependent on activity but likely to be <£10k for review and update of existing web content	Implementation	N/A	Web content subject to ongoing periodic review to consider topics of local significance and interest Availability of local, up to date, air quality monitoring data and annual summary reports	Air quality pages of CYC website Real-time air quality data available at Air Quality England. Diffusion tube data available on YorkView Promotion of smoke control area (SCA) requirements	Updates will assist with providing information to the public about the health impacts of air pollution and how behavioural change can reduce emissions and exposure. Updates will also cover issues such as the impacts of bonfire smoke
9b	Air Quality Alert / Notification Service	Public Information	Via the Internet / Via other mechanisms	2023	2024	CYC Public Protection / Public Health External IT platform provider	Measure subject to DEFRA grant	Yes	Funded	£50k - £100k	Planning	Measure aimed at reducing exposure rather than pollution reduction per se	Ongoing platform usage (e.g. visitor stats and subscriptions to notification service), supplemented with registered platform user feedback	DEFRA AQ Grant obtained for Air Quality Forecasting and Alert Service in 2023, currently in development	Will result in improved knowledge and awareness of air pollution, links to health impacts, and means to reduce exposure to pollutants via lifestyle choices / travel route / modal choice We will also explore wider behaviour change messaging in response to high pollution episodes
9c	Local promotion of ‘Burn Better’ campaign and rules around Smoke Control Areas (SCAs)	Public Information	Via the Internet / Via leaflets / Via other mechanisms	2023	Ongoing	CYC Public Protection / Public Health	CYC for ongoing local promotion of SCAs and existing campaigns New dedicated particulate awareness and reduction campaign subject to DEFRA grant	Yes	Funded	Local promotion of SCAs and existing campaigns <£10k New particulate campaign £10k - £50k	Planning	NO_x/PM reduction not estimated but communications campaigns can increase awareness of air quality issues and drive behavioural change	Annual promotion undertaken Reduction in solid fuel burning / change in domestic heating patterns, awareness of correct maintenance and efficient use of appliances and fuel certification schemes	Promotion undertaken via CYC media channels Autumn/Winter 2022 Compliance checks across solid fuel distribution outlets were progressed throughout 2022 to ensure that all solid fuels being sold were certified as ‘Ready to Burn’ DEFRA AQ Grant obtained in 2023 for campaign work in relation to domestic solid fuel burning and links to air pollution and health	Promotion of ‘Burn Better’ campaign will help householders choose cleaner fuels and ensure they are aware of best practice in terms of maintenance of solid fuel burning appliances.
10a	Continue to promote sustainable travel in York	Promoting Travel Alternatives	Intensive active travel campaign & infrastructure Promotion of cycling Promotion of walking School Travel Plans Workplace Travel Planning	2023	Ongoing (funding dependent)	CYC Sustainable Transport CYC Marketing and Communications Schools Local businesses Sustrans	DfT	No	Partially funded	£100k - £500k (annually) for engagement with businesses, schools and the general community	Implementation	Hard to precisely quantify but target to increase modal shift away from private car to walking / cycling and public transport use	Various KPIs reported as part of Local Transport Plan, such as: Cycle counts / cycle training delivered School travel plans delivered Businesses adopting sustainable travel modes Increase in bus patronage Increase in walking / cycling	Since 2021/22 CYC’s I-Travel programme has delivered: E-cycle switch scheme E-cargo bike scheme Delivery of active travel campaign ‘Better Points’ scheme ‘Bikeability’ training to all Primary and Secondary state schools Urban Cycle Skills training for adults and families York Walking Festival Production of cycle route videos and audio walking guides School Travel Planning CYC is currently developing a Local Cycling and Walking Infrastructure Plan (LCWIP)	Existing I-Travel programme subject to ongoing funding Continued work with schools to promote sustainable travel choices, minimise idling events, deliver cycle training, produce school travel plans and facilitate events to promote Walk to School week / Clean Air Day etc Continued work with businesses to embed sustainable travel modes into current business models and encourage uptake Also see measure 10c for updates on CYC’s LCWIP
10b	Delivery of Bus Service Improvement Plan (BSIP)	Transport Planning and Infrastructure	Bus route improvements Public transport improvements – interchanges, stations and services	2023	2025?	CYC Sustainable Transport Bus companies Infrastructure providers	DfT	No	Funded	>£10m	Implementation	Bus emissions (post CAZ implementation) generally up to 10% of road traffic emissions on majority of network, but up to 25% in some areas of AQMA – see section 3.3	Various KPIs outlined in BSIP, examples include: Passenger trips per year Bus punctuality /excess wait time Service frequency % Electric Bus BSIP Target of 20 million bus passenger trips a year by April 2025 (25% increase on the peak seen in 2017/18).	Award of £8.4m through DfT’s ZEBRA fund in March 2022 to fund 44 electric buses, with an additional award of £1.8m to increase the scope to co-fund a further 9 buses Award of £17m in April 2022 to support the development of key schemes and initiatives in line with York’s Bus Service Improvement Plan, including wider electrification of the urban bus fleet, bus priority measures, improvements to stops, shelters and passenger information	See BSIP report to Executive Member of Transport
10c	Delivery of other LTP infrastructure measures	Transport Planning and Infrastructure	Other	2023	Ongoing	CYC Infrastructure providers	Scheme dependent	No	Scheme dependent	Scheme dependent	Implementation	Scheme specific York Outer Ring Road Air Quality Impact Assessment demonstrated a long-term ‘moderate beneficial’ residual effect on air quality within York city centre	Scheme specific / to be developed	Capacity upgrades to York Outer Ring Road (YORR) CYC is in the process of developing a Local Cycle and Walking Infrastructure Plan (LCWIP), which will designate strategic networks within York for cycling and walking and will identify and prioritise infrastructure schemes to deliver such networks. Consideration of Gillygate specific measures in progress	Scoping report for CYC LCWIP
11a	Regulation and control of industrial emissions	Environmental Permits	Other	2023	Ongoing	CYC Public Protection	CYC	No	Funded	£10k - £50k	Implementation	NO_x / PM emission reduction not estimated but will prevent further deterioration in air pollution via regulation and control of existing processes	Scheduled CYC inspections completed per annum	Annual inspection programme ongoing	Scheduled inspections undertaken by CYC Public Protection staff. Work programme subject to maintaining existing staff resource
11b	Regulation and control of domestic emissions	Promoting Low Emission Plant	Other Policy	2023	Ongoing	CYC Public Protection	CYC	No	Funded	£10-£50k	Planning	NOx / PM emission reduction not estimated – subject to review of boundaries and further assessment	Review smoke control area boundaries and implementation of new legislation, including enforcement methods Reduction in complaints of smoke nuisance	Compliance checks across key solid fuel distribution outlets have been undertaken as part of other routine CYC operations.to ensure that all solid fuels being sold were certified as ‘Ready to Burn’ in line with the Air Quality (Domestic Solid Fuels Standards) (England) Regulations 2020.	Work programme subject to maintaining existing staff resource Revised enforcement approach in line with amendments to the Clean Air Act 1993 made through the Environment Act 2021 CYC will also investigate sales of non-authorised solid fuels and complaints of non-compliance.
11c	Provision / promotion of energy advice services and upgrade grants to domestic and business sectors	Promoting Low Emission Plant	Other Policy	2023	Ongoing	CYC Carbon Reduction	External grant funding	No	Funded	Scheme dependent	Implementation	Home upgrade energy efficiency grants and advice services to residents and businesses will complement wider emission reduction measures of AQAP4. Across York, domestic buildings are the largest sources of greenhouse gas emissions at 31.9%.	Grants awarded / energy savings / carbon reduction	Rollout of Home Upgrade Grant (HUG) that provide insulation for low-income households to reduce heating bills and carbon emissions Building retrofit events delivered Resource Efficient Business (REBiz) programme Production of CYC Local Area Energy Plan outlining demonstrator and ‘low regret’ projects for near term implementation	CYC gas consumption will be reduced through a range of initiatives including building efficiency improvements, transitioning to electrical heating and encouraging staff to take steps to reduce energy usage when working from home. CYC secured £175,980 grant funding from the Government’s Low Carbon Skills Fund to create decarbonisation plans for 21 schools and 5 leisure centres in the City, identifying opportunities to reduce energy consumption, providing both financial and carbon savings. Building fabric upgrades (energy efficiency) and low carbon heating technology upgrades will contribute to improved local air quality and carbon reduction targets
12a	Maintain CYC’s air quality monitoring network and respond to changing monitoring priorities	-	-	2023	Ongoing	CYC Public Protection Academic Institutions (equipment trials)	CYC	No	Funded (routine operation of existing equipment) Future upgrades subject to additional funding	£10-£50k per annum	Implementation	No direct air quality impact but used to monitor impact of AQAP measures and complementary CYC strategies affecting traffic and local development	Average and/or maximum concentrations of NO₂, PM₁₀ and PM_2.5 across key areas in the AQMA / the wider area of York	Established monitoring network including 9 real-time monitoring stations and 233 passive NO₂ diffusion tubes across CYC area	Full details of CYC’s up to date monitoring strategy and any changes are provided annually in CYC’s Annual Air Quality Status Reports New and upgraded monitoring equipment subject to internal / external funding and national standards
12b	Ensure AQ data is disseminated to the public and shared with local leads for air quality, public health and transport	Public Information	Via the Internet Other	2023	Ongoing	CYC Public Protection	CYC	No	Funded	£10-£50k per annum	Implementation	N/A	Publication of annual air quality summary / ASR Briefings to local leads for Air Quality Real-time air quality data publication on online portal	AQ data currently disseminated via Air Quality England website and CYC Annual Status Reports hosted on council website Successful DEFRA AQ Grant bid for air quality alert / forecasting service	Costs relate to annual staff costs. Additional mechanisms to disseminate data, would be subject to additional funding.

Area	Option	Targets emissions	Air Quality Impact	Cost	Wider Feasibility	Other Comments
Reducing emissions from freight	1a. Explore further opportunities for reducing freight emissions	Mainly HGVs/LGVs	Medium - High	££££	Medium - High	Initial feasibility study funded and delivered.
1b. Micro-consolidation centre pilot	Mainly HGVs/LGVs	Medium - High	££££	Medium - High	Pilot funded
1c. Consider feasibility of extending Clean Air Zone to include HGVs / freight vehicles	HGVs/LGVs	Currently unknown	Currently unknown	Currently unknown	Subject to further feasibility work.
Reducing emissions from buses	2a. Upgrade CAZ exempt inter-urban and rural services to ULEVs (electric) or Euro 6 buses	Buses	Low	££££ (cost dependent on practicality of electrifying routes vs upgrade to Euro 6)	Medium - High	BSIP / ZEBRA funding obtained
2b. Pursue all electric, zero emission fleet for all urban services	Buses	Medium - High	£££££££	Medium - High	BSIP / ZEBRA funding obtained
2c. Extend CAZ for buses to York Central site	Buses	Low	Currently unknown	High	Timescales subject to development of YC site
Anti-idling initiatives	3a. Continue to Promote ‘Kick the Habit’	All traffic	Low - Medium	£	High	Initial campaign developed
3b. Develop new resources and review enforcement approach	All traffic	Low	£££	Medium	Wider enforcement subject to funding
Reducing emissions from taxis	4a. Review Taxi Licensing policy	Taxis (car / minibus)	Low - Medium	££	Medium - High	Subject to consultation
4b. Seek further resources for taxi upgrades to ULEVs	Taxis (car / minibus)	Low - Medium	£££££	Medium	Subject to external funding
4c. Consider feasibility of extending the Clean Air Zone to include taxis	Taxis (car / minibus)	Currently unknown	Currently unknown	Currently unknown	Subject to further feasibility work
Reducing emissions from CYC fleet	5a. Implement EV fleet replacement for vehicles under 3.5t	CYC fleet (LGVs, Cars)	Low - Medium	££££££	High	Phased fleet programme agreed
5b. Explore options for fleet vehicles over 3.5t to move away from diesel fuel	CYC fleet (LGVs / HGVs)	Low - Medium	££££££	Medium	Trials ongoing
5c. Maximise CYC journey efficiency through telematics, training and sustainable travel options	All CYC fleet vehicles	Low	tba	Medium - High	-
Expand EV charging network	6. Delivery of CYC Public EV Charging Strategy	Mainly cars/vans/LGVs	Medium - High	££££	High	Work programme agreed / funded
Minimise development related emissions	7a. Review and update low emission planning guidance	All vehicle types	Low - Medium	££	High	Costs mainly in relation to staff time
7b. Ensure development related emissions are appropriately assessed and mitigated	All vehicle types	Medium	££	High	Costs mainly in relation to staff time. Opportunities for developer contributions to wider low emission measures
Local incentives for low emission vehicles / modes	8. Explore incentives / opportunities for wider uptake of ULEVs	Mainly private cars, although potentially all modes	Anticipated low (dependent upon incentive)	Scheme dependent	Anticipated medium	-
Improved public information and awareness	9a. Improve public access to air quality information and advice	Supporting measure	N/A	£ - ££	High	Opportunities for resource development for schools / businesses
9b. Air quality alert / notification service	Supporting measure	N/A	££	Medium	DEFRA funding obtained
9c. Local promotion of ‘Burn Better’ and smoke control areas / use of appropriate fuels etc	Non-transport emissions	Low - Medium (mainly PM_2.5)	£	High	DEFRA funding obtained for wider PM campaign
Modal shift, active travel and network improvement	10a. Continued to promote sustainable travel in York	Reduction in private car use	Low - Medium	£££££ (annually)	Medium - High	Existing ITravel programme, subject to funding
10b. Delivery of Bus Service Improvement Plan	Bus	Medium – High (bus upgrades)	£££££££	Medium - High	Funding obtained
10c. Delivery of LTP infrastructure measures	All traffic	Scheme dependent	Scheme dependent	Medium - High	ORR capacity upgrades / LCWIP / active travel measures
Regulation of industrial and domestic emissions	11a. Regulation and control of industrial emissions	Industrial emissions	Low - Medium	££	High	Subject to maintaining existing staff resource
11b. Regulation and control of domestic emissions	Domestic emissions	Low – Medium (will directly target PM_2.5)	££	High	Subject to maintaining existing staff resource
11c. Energy advice services and upgrade grants to domestic and business sectors	Business and domestic emissions	Low / Supporting measure	Scheme dependent	Medium - High	-
Monitoring of air quality and access to air quality information	12a. Maintain CYC monitoring network and respond to changing monitoring priorities	Supporting measure	Supporting measure	££	High	Equipment upgrades subject to funding
12b. Ensure AQ data is effectively disseminated to the public and shared with local leads	Supporting measure	Supporting measure	££	High	Costs relate to annual staff costs

[1] Environmental equity, air quality, socioeconomic status and respiratory health, 2010

[2] Air quality and social deprivation in the UK: an environmental inequalities analysis, 2006

[3] https://pubs.rsc.org/en/content/articlelanding/2023/va/d3va00054k (overview at https://www.york.ac.uk/news-and-events/news/2023/research/deprived-communities-air-pollution/)

[4] Defra. Air quality appraisal: damage cost guidance, January 2023

[5] Public Health England. Estimation of costs to the NHS and social care due to the health impacts of air pollution: summary report, May 2018

[7] Valuing the impacts of air quality on productivity. Ricardo-AEA. Available online at: https://uk-air.defra.gov.uk/assets/documents/reports/cat19/1511251135_140610_Valuing_the_impacts_of_air_quality_on_productivity_Final_Report_3_0.pdf

[8] Generally vans and other goods vehicles <3.5 tonnes

[9] Generally rigid and articulated trucks / goods vehicles > 3.5 tonnes

[10] Topic areas consistent with National Air Quality Action Plans and EU Categories as required by DEFRA Guidance.

[11] Relevant locations with respect to the annual mean NO₂ objective include all locations where members of the public might be regularly exposed to poor air quality. Examples include building facades of residential properties, schools, hospitals and care-homes. They do not include building facades of offices or other places of work, where members of the public do not have regular access.

[12] York AURN monitoring sites use reference method equivalent monitoring techniques, approved by DEFRA, for measuring particulate and comparison with health based objectives. Results from other sites in York that measure particulate are shown in York’s ASRs and are considered indicative.

[14] Public Health England. Estimation of costs to the NHS and social care due to the health impacts of air pollution: summary report, May 2018

[17] From Primary Care Mortality Database (PCMD), there were 2045 deaths (all causes) of people in York aged 30 and above in 2021. Indicator D01 shows that air pollution (specifically PM2.5) is attributable to the cause of death in 4.4% of these deaths (approximately 90 deaths).

[19] https://uk-air.defra.gov.uk/data/laqm-background-home

[20] Baseline flows and fleet proportions taken from DfT counter 75395, Blossom Street, York.

[21] DEFRA guidance LAQM TG22 states that the revocation of an AQMA should be considered following three consecutive years of compliance with the relevant objective as evidenced through monitoring

[22] https://www.gov.uk/government/publications/comeap-statement-response-to-who-air-quality-guidelines-2021/comeap-statement-response-to-publication-of-the-world-health-organization-air-quality-guidelines-2021

[23] https://www.gov.uk/government/groups/committee-on-the-medical-effects-of-air-pollutants-comeap

Local Authority Officers	Andrew Gillah, Mike Southcombe
Department	Public Protection, Place Directorate
Address	City of York Council, Public Protection Hazel Court Eco Depot, James Street York, YO10 3DS
Telephone	01904 551525
E-mail	public.protection@york.gov.uk
Report Reference number	CYC AQAP4
Date	September 2023

Action category	Action description	Reason action is not being pursued (including Stakeholder views)
Alternatives to private vehicle use	Rail based Park and Ride	Due to the location of the railway station and fact that it is already served by extensive public transport routes, additional long-stay parking facilities would introduce additional private vehicle trips into the AQMA area and may even divert existing trips away from low and zero emission bus services operating in the city. CYC will continue to work alongside the station to facilitate improved pedestrian access, modal exchange and the creation of new accessible public spaces - see York Railway Station Frontage scheme for updates.
Promoting Low Emission Transport	Clean Air Zone (CAZ) extension to all vehicle types e.g. Cars	Note that the cost of implementing and enforcing a wider CAZ likely to have a severe detrimental impact on the local economy and significant resource implications. The bus-based CAZ in York has been facilitated via grant support to operators from CYC and external sources. Updated source apportionment work has shown that trends for LDV (cars and vans) and HGV fleets are already towards newer engines; natural fleet replacement / turnover will see the proportions of cleaner vehicles increase further within the timeframe of AQAP4. This will also be facilitated in the longer term via government commitments to decarbonise road transport and stop selling new petrol/diesel cars from 2030 (with other vehicle classes likely to be affected from 2035). Work is ongoing to improve EV charging opportunities across the city. Local taxi emissions will be addressed via strengthened CYC Taxi Licensing Policy and incentives, which will phase out older more polluting taxis. The nature of the York road network also makes diversion/re-routing of non-CAZ compliant vehicles extremely challenging, particularly in the city centre.
Promoting Low Emission Transport	CNG refuelling facilities	Recent research has shown that vehicles fuelled by CNG may emit especially large numbers of ultra-fine particles, with the highest particle number emissions measured during urban driving (i.e. low speeds, cold-starts) which has implications for York’s city centre environment and fine particulate exposure reduction targets as outlined in the Environment Act 2021. In line with local air quality and carbon reduction aspirations, promotion of hydrocarbon based fuels is no longer considered appropriate for AQAP4.
Promoting Travel Alternatives	Promote use of inland waterways	Potential disruption from flooding that could affect passenger and goods transport.
Public Information	Via Television	Public information via leaflets, internet and possibly radio forms a part of AQAP4 but there is unlikely to be enough resources or budget to extend this to television. CYC will endeavour to continue to attract local media coverage of campaigns and air quality related issues wherever possible.
Traffic Management	Reduction in speed limits, 20mph zones	A reduction in traffic speeds within the existing AQMA, which already experiences slow moving traffic and congested conditions, is unlikely to result in further measurable air quality improvements, although it is acknowledged that this may have positive road safety implications and will be considered in the wider context of CYC’s road safety schemes.
Traffic Management	Testing vehicle emissions (on street)	Resource implications of on street vehicle emission testing considered likely to far outweigh the likely benefit. Pulling up vehicles for testing can result in additional congestion which could impact on air quality in the AQMA. Any available budget for enforcement action is considered better targeted at enforcing idling, where issue can be resolved promptly. There is an existing mechanism for reporting excessively smoky lorry or bus exhausts to the Driver and Vehicle Standards Agency (DVSA) for investigation.
Vehicle Fleet Efficiency	Fleet efficiency and recognition schemes	Alongside many other authorities within the Yorkshire region, CYC has previously rolled out an ECO Stars Fleet Recognition Scheme (funded through DEFRA grant). Many of the fleet vehicles travelling around York are already members of the scheme (either via existing York membership or through membership of schemes in nearby local authority areas). CYC is not currently actively recruiting new members to the York ECO Stars scheme (currently 106 members), but existing members are being supported as required. This will be revisited should future demand for ECO Stars be apparent and if external funding sources are available.

Yes/No	Consultee
Yes	the Secretary of State
Yes	the Environment Agency
Yes	the highways authority
Yes	all neighbouring local authorities
Yes	other public authorities as appropriate, such as Public Health officials
Yes	bodies representing local business interests and other organisations as appropriate

Abbreviation	Description
AQAP	Air Quality Action Plan - A detailed description of measures, outcomes, achievement dates and implementation methods, showing how the local authority intends to achieve air quality limit values’
AQMA	Air Quality Management Area – An area where air pollutant concentrations exceed / are likely to exceed the relevant air quality objectives. AQMAs are declared for specific pollutants and objectives
AQS	Air Quality Strategy
ASR	Air quality Annual Status Report
BAM	Beta Attenuation Monitor
CYC	City of York Council
Defra	Department for Environment, Food and Rural Affairs
EU	European Union
LAQM	Local Air Quality Management
NO₂	Nitrogen Dioxide
NO_x	Nitrogen Oxides
PM₁₀	Airborne particulate matter with an aerodynamic diameter of 10µm (micrometres or microns) or less
PM_2.5	Airborne particulate matter with an aerodynamic diameter of 2.5µm (micrometres or microns) or less

NAEI Source Apportionment - emission sources by activity sector

Updated Road Traffic Source Apportionment

4 Development and Implementation of City of York Council’s AQAP

4.2 Steering Group Activities

Public Protection Air Quality Working Group

Local Transport Plan (LTP) Working Group

DEFRA Freight Study / Low Emission Deliveries Working Group