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October 2016
1
National Ambient Air Quality
Monitoring Programme 2017-2022
Consultation Paper
October 2016
October 2016
2
Contents
Contents .................................................................................................................................... 2
Acknowledgments ..................................................................................................................... 4
1. Executive Summary ........................................................................................................... 5
1.1 National monitoring network .................................................................................... 5
1.1.1 Air Quality Index for Health (AQIH) ................................................................... 9
1.2 Modelling and forecasting ......................................................................................... 9
1.3 Citizen engagement ................................................................................................... 9
1.4 Consultation Process ................................................................................................. 9
2. Introduction ..................................................................................................................... 10
2.1 Programme Objectives ............................................................................................ 10
3. Current status of air quality monitoring in Ireland.......................................................... 12
3.1 National ambient air monitoring networks ............................................................. 12
3.1.1 CAFE Network .................................................................................................. 12
3.1.2 Comparison with other networks .................................................................... 15
3.2 Air Quality Index for Health ..................................................................................... 16
3.3 Compliance with European Requirements .............................................................. 17
3.4 Current Network Partners ....................................................................................... 17
3.5 European Monitoring and Evaluation Programme (EMEP) ..................................... 18
3.6 National radiological monitoring network .............................................................. 19
3.7 Modelling ................................................................................................................. 20
3.8 Citizen engagement ................................................................................................. 21
3.9 Quality Control/ Quality Assurance (QA/QC) .......................................................... 21
3.10 Data handling and Reporting ................................................................................... 22
3.10.1 Public Engagement .......................................................................................... 22
4. Proposal for a National Ambient Air Quality Monitoring Programme ............................ 23
4.1 National Monitoring Network ................................................................................. 23
4.1.1 Air Quality Index for Health (AQIH) ................................................................. 25
4.1.2 Public Engagement .......................................................................................... 25
4.1.3 European Monitoring and Evaluation Programme (EMEP) ............................. 25
4.2 Modelling and forecasting ....................................................................................... 28
4.3 Citizen engagement ................................................................................................. 28
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4.4 Under-pinning supporting actions ........................................................................... 29
4.4.1 Actions to maintain/ enhance compliance with CAFE and 4th Daughter
directive requirements .................................................................................................... 29
4.4.2 Quality Control/ Quality Assurance (QA/ QC) ................................................. 29
4.4.3 Emerging Pollutants: ....................................................................................... 29
4.4.4 Data Handling and Reporting .......................................................................... 29
4.4.5 Emergency Response and Source Apportionment .......................................... 30
5. Resources and governance .............................................................................................. 30
5.1.1 National Ambient Air Monitoring Framework................................................. 30
5.1.2 EPA roles .......................................................................................................... 30
5.1.3 Local authority/ third party roles .................................................................... 31
6. Dissemination and publication of information on air quality ......................................... 32
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Acknowledgments
This paper was prepared by the National Ambient Air Quality Team in the Office of
Radiological Protection, Environmental Protection Agency. The comments and contributions
of the EPA Air Cross Office Team in the preparation of this paper are gratefully
acknowledged.
October 2016
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1. Executive Summary
The World Health Organization has estimated that ambient air pollution in both cities and
rural areas has caused 3.7 million premature deaths worldwide in 2012. Air quality issues in
Europe remain worrying, with 4,494,000 years of life lost due to fine particulate matter in
2012. Of this total, the estimate for Ireland is 14,400 years of life lost. Exposure to air
pollutants poses a considerable health threat to current and future generations,
strengthening the case for urgent action to both achieve a higher air-quality standard in the
EU and for increased localised, up to date air quality information to enable the public to
make informed decisions and to better inform national and regional policymakers.
Following a comprehensive review of the current status of ambient air quality monitoring in
Ireland, a new national ambient air quality monitoring programme is proposed under
Section 65 of the EPA Act, to strengthen the capacity and capability to provide more
comprehensive, localised air quality information linked to public health advice. For each of
the elements of the programme reviewed the accompanying consultation document
presents the current status of Air Quality Monitoring and Reporting in Ireland, along with
the recommended option for the overall development of ambient air quality monitoring
over the next five years.
It is proposed that the new programme will involve a greatly expanded national monitoring
network providing enhanced real-time information to the public, supplemented by an
additional increased local authority capacity to conduct indicator monitoring. The network
can be supported and augmented by increased modelling and forecasting capability, with
the aim of providing an ongoing air quality forecast to the public. Supporting both of these
elements will be citizen engagement and citizen science initiatives to encourage greater
understanding and involvement of the public in air quality issues. The proposed national air
monitoring programme is built around three key pillars:
1.1 National monitoring network A new national monitoring network will be established which will provide improved spatial
coverage across rural and urban centres. The siting of the stations will be based on the
criteria of population size, vulnerability to air quality issues and spatial distribution. The
network of sites will monitor a range of important air quality parameters including
particulates, heavy metals, inorganic and organic gases. The network will provide three
tiers of data as follows:
National monitoring
network
Modelling and forecasting Citizen engagement
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Tier 2
An expanded Air Quality Index for Health (AQIH) network
This network will consist of the existing CAFE directive network and EMEP stations as
outlined in Tier 1, augmented with the addition of a further 35 new air monitoring stations.
These stations will be located to provide improved spatial coverage and targeted
monitoring, and will represent a doubling of Ireland’s current air monitoring capacity. It will
provide the opportunity for a significant improvement in the availability of real-time air
quality data to the public. Data from Tier 2 will provide a solid basis for the development of
an improved AQIH system.
Tier 3
The provision of “indicator” air quality monitoring data at a local level.
It is proposed that PM (airborne particulate matter) monitoring at local level is undertaken
at an initial 14 sites. These local “indicator” sites will provide monitoring that is appropriate
to local requirements, and will be operated by local authorities (LA) and other public bodies.
The data generated will supplement the Tier 2 network by providing local air quality data for
local communities.
All data from the Indicator network will be collated and analysed by the EPA and will inform
decisions on the placement of monitoring stations and the requirement to carry out
investigative work.
Tier 1
The CAFE directive network monitoring stations
The existing CAFE directive network monitoring stations will be enhanced and automated
to provide additional real time Air Quality Index for Health (AQIH) data, and will
incorporate the automated stations that are established under the European Monitoring
and Evaluation Programme (EMEP).
Data from Tier 1 will continue to meet Ireland’s air monitoring requirements under the
CAFE and 4th Daughter directives.
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Figure 1.2 Proposed national ambient air monitoring network incorporating indicator monitoring locations
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1.1.1 Air Quality Index for Health (AQIH)
An expanded AQIH network with a doubling of Ireland’s current air monitoring capacity
represents a step-change in the provision of accessible real-time air quality information to
the public. The expansion from the current 31 station network to a 66 station national
network will enable an enhanced AQIH to move from the current six region index to a
station based index. Air quality health information will be provided for 64 stations. In total,
supplemented by a proposed minimum of 14 indicator monitoring stations, the network will
comprise 80 monitoring stations, of which 64 provide real time data to the AQIH. The extent
of this improvement and the associated upgrade in public information is clear on
comparison of Figure 1.1 detailing the current national network with Figure 1.2 outlining the
proposed national monitoring network, including potential indicator monitoring locations.
1.2 Modelling and forecasting There is an increasing awareness of the need for Ireland to develop its capacity and capability in ambient air quality modelling. This proposal aims to provide, on a phased basis, the following modelling capability:
General ambient air quality modelling at urban and regional scales
Ambient air quality forecast modelling
Incident response/ point source modelling in relation to ambient air quality incidents
Ambient air quality modelling as proposed here will enable the provision of information for locations between monitoring stations and provide source identification information. It will also allow scenarios to be modelled to inform general air quality policy development and assist in forming air quality plans. Modelling will also pave the way for the provision for the first time in Ireland, of an operational air quality forecast model. An ambient air quality forecast will inform the public in advance of the predicted air quality and enable choices to be made regarding work and leisure activities; this is particularly important for those who are vulnerable from a health perspective.
1.3 Citizen engagement It is proposed that air quality related citizen engagement and citizen science will be
progressed to raise awareness and understanding of air quality issues and encourage
individual participation in improving air quality as follows:
A programme of citizen engagement initiatives in partnership with key
stakeholders to include for example: programmes to support interaction with
schools.
Developing opportunities for citizen science activities.
1.4 Consultation Process Please submit views and comments on the proposed National Ambient Air Monitoring
Programme to [email protected] by 25th November 2016.
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2. Introduction
Clean air is a basic requirement of human health and well-being, however, air pollution
continues to pose a significant threat to health worldwide. The World Health Organization
has estimated that ambient air pollution in both cities and rural areas has caused 3.7 million
premature deaths worldwide in 2012. Air quality issues in Europe remain worrying, with
4,494,000 years of life lost due to fine particulate matter in 2012. Of this total, the estimate
for Ireland is 14,400 years of life lost. Exposure to air pollutants poses a considerable health
threat to current and future generations, strengthening the case for urgent action to both
achieve a higher air-quality standard in the EU and for increased localised, up to date air
quality data to enable the public to make informed decisions and to better inform national
and regional policymakers.
At present, air quality monitoring in Ireland is undertaken by EPA in partnership with a
number of local authorities, universities and state agencies, primarily to meet the
requirements of the Ambient Air Quality and Cleaner Air for Europe Directive (CAFE), the 4th
Daughter Directive and national implementing regulations. The EPA is the competent
authority and the specified monitoring and reporting body under this legislation. In 2014 no
levels above the EU limit values were recorded at any of the ambient air quality network
monitoring sites. However the tighter World Health Organisation (WHO) guideline values for
protection of human health were exceeded for Ozone and Particulate Matter (fine dust) 1PM10 and PM2.5 at several sites and current indications are that these guideline values may
tighten further in the next revision by WHO.
In comparison with the national monitoring networks in other European countries our
network is much smaller, has fewer stations per head of population and has less automatic
equipment capable of providing near real-time information on air quality to the public. Per
million of population the Irish network has six stations compared to ten in Norway, eleven in
Northern Ireland and 17 in Scotland.
Data from the national network is used to generate an Air Quality Index for Health (AQIH)
which is a web based index providing near real-time information to the public on the air
quality in their area. The usefulness of the AQIH data is hugely dependent on the number of
stations in the network as more stations provide more localised information. Historically,
monitoring has been primarily designed to meet legislative requirements. This proposed
programme can advance air quality monitoring in Ireland towards providing accessible,
health linked, air quality information to a far larger number of citizens.
2.1 Programme Objectives A key factor in development of the programme objectives was the essential question of how
can this programme bring tangible benefits to every citizen in Ireland? The objectives are:
1) Provide enhanced real-time information – This programme will upgrade the current
AQIH information and website. It will provide enhanced real-time information on
1 PM10 and PM25 refer to dust particulates of 10 and 2.5 micrometers in diameter
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current air quality to a greatly increased number of people in cities, towns and rural
locations across Ireland. This air quality data will link to health related advice
providing a far larger number of citizens with readily accessible information on air
quality in their local area.
2) Air quality forecast - This programme will give the public an ambient air quality
forecast for today, tomorrow and the day after. This could enable all citizens and
particularly those in sensitised groups to plan and make in advance, informed
decision about their activities.
3) More localised air quality data - Increased monitoring points, developed modelling
capability, local indicator monitoring and citizen science initiatives will combine to
provide more localised air quality data. This will enable local authorities, policy
makers and the EPA to more readily identify and investigate local air quality issues,
to ensure monitoring capability is appropriately located and flexible. The increased
data from the monitoring network will provide regulators and policy makers with
access to far more data, as a greatly strengthened evidence base to inform the
development of national policy and local policies towards a future of cleaner air in
our cities and towns. For example this data will allow assessment of the impact on
air quality of changes, such as traffic realignments or transport fleet composition.
This information will provide critical evidence and metrics for the implementation of
the National Clean Air Strategy.
4) Place monitoring on a statutory footing - Placing ambient air monitoring in Ireland
on a statutory footing for the first time will mobilise the commitment of resources
and provide a framework for the alignment of resources nationwide. Bringing
together national air monitoring capacity in this way will pave the way for the
strategic development of air quality programmes in Ireland to meet the needs of the
people of Ireland and move beyond that required just for compliance with EU
directives.
5) Progress Citizen engagement – The success of a national air quality programme in
terms of improved air quality and better health outcomes requires the engagement
and understanding of the public. The AAMP will develop initiatives to engage with
the public, increase awareness of air quality issues and the associated health
impacts and empower the public to influence air quality in their local areas and
engage in citizen science initiatives.
6) Increase emergency response and source apportionment resources – This
programme will provide the flexibility and the source apportionment capacity
required to enable rapid and targeted response to major national air related
emergencies and the identification and investigation of the sources of pollutant
loads.
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3. Current status of air quality monitoring in Ireland
3.1 National ambient air monitoring networks
3.1.1 CAFE Network
Ireland has established a network of air quality stations to monitor air quality, configured to
meet the requirements of the CAFE and 4th daughter directives. The network monitors only
those pollutants required under the EU directives and does not include indicator monitoring.
The EPA is the competent authority for the implementation of the CAFE Directive, including
the role of National Reference Laboratory with the following responsibilities:
assessment of ambient air quality
approval of measurement systems (methods, equipment, networks and laboratories)
ensuring the accuracy of measurements
analysis of assessment methods
coordination on their territory if Community-wide quality assurance programmes are being organised by the Commission
cooperation with the other Member States and the Commission
The CAFE Directive requires Member States to establish zones for the purpose of air quality
assessment and management. Any urban area or agglomeration with a population greater
than 250,000 must be defined as a zone. Four zones have been established in Ireland as
detailed in Table 3.1 and Figure 3.1. The majority of the monitoring stations situated in
these zones are permanent fixed stations, together with two mobile monitoring units used
to supplement the network. Typically, one of the mobile units is based in Zone C with the
other used to investigate potential hotspots in other Zones. There is also an Air Incident
Response Unit (AIRU) equipped with automatic monitoring equipment maintained in
readiness to respond to major national air related incidents, however with limited resources.
Zone Description Population (2011 Census)
A Greater Dublin Area
1,195,789
B Cork urban area 227,040
C 24 towns with a population over
15,0002
753,442
D Remainder of State
2,411,981
Table 3.1 Air quality zones in Ireland.
2 Limerick, Galway, Waterford, Drogheda, Dundalk, Bray, Navan, Ennis, Tralee, Kilkenny, Carlow, Naas, Sligo, Newbridge, Mullingar, Wexford, Letterkenny, Athlone, Celbridge, Clonmel, Balbriggan, Greystones, Leixlip and Portlaoise :2011 census data
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Figure 3.1 – Air quality zones in Ireland
The Air quality zones are assessed for specified pollutants and are classified according to the
thresholds or specified target values. Table 3.2 lists the pollutants which must be monitored
under EU and national legislation. In general, assessment is based on results over the
previous 5 years and zones must be assessed for each pollutant at least every 5 years.
Monitoring requirements are determined on the basis of pollution level category and
population. The monitoring stations in operation in Ireland in 2015 are shown in Figure 3.2.
The specific monitoring requirements for each pollutant are detailed in Table 3.2.
Classification of Pollutant
Pollutant Limit or Target Value Specified?
Inorganic Gases Nitrogen Dioxide and Oxides of Nitrogen
Yes
Sulphur Dioxide Yes Carbon Monoxide Yes
Ozone Yes Particulate Matter PM10 Yes
PM2.5 Yes Volatile Organic Benzene Yes
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Compounds Other Ozone Precursor VOCs3 No Benzo(a)pyrene Yes
Other PAH4 No Heavy Metals Lead Yes
Arsenic Yes Cadmium Yes
Nickel Yes Mercury No
PM2.5 Speciation Anions and Cations No Elemental Carbon/Organic Carbon No
Table 3.2 Pollutants requiring measurement under the CAFE Directive and 4th
Daughter Directive
Figure 3.2 Ambient air monitoring network 2015
3 Member States must measure appropriate ozone precursor VOCs. A list of 31 compounds (including benzene) recommended for measurement is given in Annex X of the CAFE Directive. 4 Member States must measure additional PAH including at a minimum the six listed in Article 4 of the 4th Daughter Directive
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3.1.2 Comparison with other networks
The Air Quality Directives lay down the basic criteria for the minimum required number of
monitoring sites per zone per pollutant, depending on pollution level and population of the
zone, and criteria for their distribution between traffic and background locations. Although
Ireland meets the minimum requirement for these pollutants on an EU wide scale, it is
insufficient to achieve comprehensive information about air quality across zones especially
those with different terrains, domestic fuel usage and types of dispersion conditions. With
the minimum number of monitors and no back up stations in many zones this means that
the network has no capacity to absorb monitoring and equipment errors or downtime. This
vulnerability to data loss affects the reporting of real time data to the public. When
compared to air quality networks in neighbouring jurisdictions, it is clear that there is a far
less dense network in Ireland with significantly fewer stations per head of population (Table
3.3).
Number of Stations Population (millions)
Stations per million of population
Scotland 91 5.3 17 per million Northern Ireland 19 1.8 11 per million Wales 41 3 14 per million London*1 113 9.8 12 per million Norway 52 5 10 per million Ireland 31 4.8 6 per million *
1 LAQN – London Air Quality Network sites. UK national monitoring network (AURN) and local authority sites
Table 3.3 - Monitoring station numbers per capita at Irish, UK and Norwegian networks
The Scottish Government monitors a wide range of air pollutants as part of a joint UK
programme. In addition a large number of local authorities in Scotland monitor air quality
within their geographical boundaries as part of the requirements of the Local Air Quality
Review and Assessment process5. The monitoring network has increased from 20 monitoring
stations in 2006 to 91 in 2013 covering a population of 5.3 million. A comparison of the Irish
and Scottish network is outlined in Table 3.4 in terms of the number of sites monitoring
specific pollutants. Again it is clear that regarding individual pollutant monitoring, Irelands
monitoring programme is significantly smaller than that in Scotland a jurisdiction with a
similar population size, terrain and climatic conditions.
Pollutant Ireland Scotland
NO2 15 80 PM10 20 78 PM2.5 7 8 CO 5 4 SO2 10 12 Ozone 11 11 PaH 5 30 Benzene 4 37
Table 3.4 – Monitoring station numbers per pollutant in Scotland (2013) and Ireland (2015)
5 Ricardo –AEA, Scottish Air Quality Database, Annual Report 2013
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Using information compiled by the European Environment Agency (EEA), the number of
monitoring stations in Ireland is compared with other EU member states with respect to
stations measuring NO2, Ozone and PM10 (Table 3.5). Based on population density, Ireland
has a significantly lower number of air quality monitoring stations for these three important
pollutants than most other Member States in the EU.
Table 3.5 - Number of CAFE Directive monitoring stations per pollutant per EU Member State
(source: EEA’s air quality database including only stations with a data capture rate of at least
75%).
3.2 Air Quality Index for Health The EPA launched the new Air Quality Index for Health (AQIH) in April 2013. This is a web-
based index, developed in conjunction with the HSE, Met Éireann and the Department of
Environment Heritage & Local Government (DECLG) and shows the current air quality across
Ireland on a colour coded map (available on www.epa.ie). The index displays as a scale from
1 – 10, divided into four bands from good (1-3) to very poor (10). The AQIH is displayed on
the EPA website and is published as a real time twitter feed.
Ireland is currently divided into six regions on the AQIH map (Figure 3.3). The regions are
Dublin, Cork, large towns, small towns, rural east and rural west. While the AQIH was a
major step forward in relation to the provision of near real-time information on air quality
and related health risks, the current monitoring network is not sufficiently large to provide
information about air quality at a more localised level. The result of this is that the
information presented in the AQIH can be of limited value to people with health concerns
affected by air quality.
Country Population (millions)
NO2 Ozone PM10
Ireland 4.757 14 16 12
Slovenia 2.06 12 15 15 Norway 5.084 31 32 11 Finland 5.439 34 42 20 Sweden 9.59 33 37 34 Hungary 9.897 24 24 17 Belgium 11.2 90 66 42 Netherlands 16.8 76 74 47 UK 64.1 120 65 82 Italy 59.83 564 504 331 France 66.03 462 374 405 Germany 80.62 548 416 272
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Figure 3.3 – Screenshot of current AQIH regions as displayed on www.epa.ie
3.3 Compliance with European Requirements The compliance of the current network with directive requirements, including site
classification was reviewed as part of the development of the new programme. The review
found that whilst the current network meets Directive requirements, some improvements
were recommended as outlined below. These actions are incorporated into this proposal
and are included in the resource requirements.
A review of the compliance of the current monitoring stations be should be assessed
in line with the requirement in Section D of the Commission Directive amendment to
the CAFE directive, due to be transposed into Irish law in Q4 2016.
Actions identified to enhance current compliance and ensure ongoing compliance
should be undertaken.
3.4 Current Network Partners The EPA manages and co-ordinates current ambient air monitoring activities in Ireland in co-
operation with local authorities and other state bodies. The development of the network
into its current configuration and the critical role of the network partners in supporting this
national infrastructure have evolved in the absence of an integrated strategy underpinned
by medium or long terms plans regarding funding, resources and governance arrangements.
The absence of long term planning has hampered the strategic development of air
monitoring capacity and the optimisation of available resources. As part of the development
of this proposed programme, a new governance platform including multi-annual funding
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from a national air quality budget are proposed in section 5. Current partners in the national
ambient air monitoring and EMEP6 networks are detailed in the table below.
Zone No. of Stations Geographical area Operators
A 14 Dublin EPA, Dublin City Council*2
B 3 Cork Cork City Council, Cork Institute of Technology
C 5 Large towns (population>15,000)
EPA, Public Analyst’s Laboratory Galway
D 7 Remaining area of Ireland EPA, Met Éireann, National University of Ireland Galway (NUIG)
EMEP 6*1 All four provinces Met Éireann, NUIG, Teagasc, EPA
Table 3.6 - Current partners in the national ambient air monitoring and EMEP networks
*1 Two EMEP stations also form part of the Zone D network.
*2 Dublin City Council conduct monitoring on behalf of the four Dublin local authorities
3.5 European Monitoring and Evaluation Programme (EMEP) Transboundary air pollution from Europe has significant impacts on air quality in Ireland
when such transport occurs. This is particularly evident in levels of PM and ozone and can
contribute to respiratory and other health problems. In terms of regulation transboundary
pollutants raise background levels which in combination with local emissions are likely to
increase the risks of exceeding threshold values.
Ireland is a party to the United Nations Convention on Long Range Transport of Air
Pollutants (CLRTAP) which was established to address the multiple impacts of air pollution
across Europe. Emissions analysis and policy interventions under CLRTAP and its Protocols
are shared with the EU work under CAFE e.g. under the NEC Directive. As part of this
convention, parties are asked to operate monitoring stations to comply with and contribute
to the European Monitoring and Evaluation Programme (EMEP).
EMEP monitoring objectives include both long-term monitoring of key air pollutants
including the inorganic composition of PM, pollutant gases, and other species such as POPS.
One of EMEPs objectives is to identify the effectiveness of policy interventions and the
extent of impacts of air pollutants. These are apparent in geographical distributions and
trends over time of concentrations of transboundary pollutants. There are five EMEP
monitoring locations, north, south, east, west and inland (with six stations) in Ireland as
shown in figure 3.4 below. The current sites provide good spatial coverage over the country
and it is recommended that this coverage remain as part of this programme. Mace head and
Valentia Observatory also fulfil a role as part of the current national ambient air monitoring
network.
6 The EMEP is a body under the UN Convention on Long Range Transboundary Air Pollution (CLRTAP)
under which parties are obliged to undertake background monitoring.
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Figure 3.4 –EMEP monitoring network
Long-term monitoring requires commitment of resources and the current funding methods
are unsuitable. Adequate annual service contracts for equipment are also essential to secure
continuity of monitoring. The EPA and Met Éireann share a Memorandum of Understanding
under which it is agreed that they will continue to collaborate in the operation of the
specified EMEP sites. While this is very positive, currently there is no designated co-
ordinating organisation for EMEP in Ireland. This can lead to inefficiencies and
communication gaps despite the excellent co-operation between the stakeholders.
Responsibility for various EMEP activities which are carried out by a number of bodies
including the EPA, Met Éireann and NUIG needs to be clarified with an appropriate
management and analysis structure that will address EMEP and wider CLRTAP issues e.g. on
effects and policy responses. The most appropriate organisations for key roles are the EPA
and Met Éireann who should have joint ownership of key areas of EMEP activities.
3.6 National radiological monitoring network The national radiological monitoring network (NRMN) is managed and operated by the EPA’s
Office of Radiological Protection. The network continuously assesses ambient radioactivity
and radioactivity in air through both online and offline detectors and aerosol samplers at
selected permanent monitoring stations around Ireland. The data collected at the 16
automatic ambient radioactivity stations is published live on the EPA website
http://www.epa.ie/radiation/monassess/mapmon/. The monitoring stations are
geographically distributed to ensure that airborne radioactivity affecting Ireland from an
incident abroad can be detected when it arrives. Airborne distribution models using the
October 2016
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data from these sites and weather data from Met Éireann, provide information on
radioactive contamination across the whole country based on geographically dispersed
monitoring points. Together they are key inputs to Irelands National Emergency Plan for
Nuclear Accidents There are many parallels between the EPA’s environmental radioactivity
monitoring programme and the air quality programme. Potential synergies include the co-
location of monitoring sites for maintenance purposes, collaboration on airborne modelling
and on approaches to public information and citizen engagement including citizen science.
Under this current proposal opportunities to streamline these resources will be utilised
where appropriate.
Figure 3.5 – National Radiation Monitoring Network
3.7 Modelling To date, modelling of ambient air quality has not been a requirement under EU legislation.
However, many Member States have developed modelling and forecasting to support their
monitoring network and to meet the needs of stakeholders. As indicated above regarding
the national radiation monitoring network, modelling is an essential partner to monitoring in
order to provide spatially relevant information and advice on the basis of dispersed
monitoring stations.
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The EPA collaborates with modelling specialists in Met Éireann and other state bodies
through the Hysplit modelling working group. This group provides a forum for discussion on
the Hysplit model and other related topics of common interest. The ambient air modelling
capacity within the EPA is currently very limited and heavily resource constrained, with no
forecast operationally available.
Current EPA ambient air modelling activities include:
Actions to place the EPA Research funded forecast model for Ireland on an
operational footing
Initial utilisation of urban ADMS for Irish scenarios
A capability for line source modelling utilising breeze roads
3.8 Citizen engagement Citizen engagement and citizen science (CE&CS) encompasses the many different ways in
which citizens are involved in science. This may include mass participation schemes in which
citizens use smartphone apps to submit wildlife monitoring data, as well as smaller-scale
activities, for example, grassroots groups taking part in local policy debates about
environmental issues. Citizens are not only recipients of information but also important
providers. The public are often well-placed to monitor the state of the environment on the
ground at any one time. The EPA believes that CE&CS provides exciting opportunities for
State organisations, scientific groups, institutions and industry to work with citizens to
address challenges in environmental protection, policy development and society in general.
Since 2015 the EPA has been actively growing its activities in relation to CE&CS. In early
2015 the EPA commenced a collaboration with the School of Physics in National University of
Ireland Galway (NUIG) on a feasibility study for a CE&CS project involving secondary schools
and using open source air monitoring sensors. The EPA has participated in the EU citizen
Science (iSPEX) project in 2015 in conjunction with NUIG and a small group of selected
secondary schools. In partnership with Intel the EPA has funded projects as part of the MA in
Interaction Design from the National College of Art and Design (NCAD) with a focus on
citizen engagement with air quality issues.
The role of academic institutions in progressing nationally and internationally important
research programmes, raising awareness of air quality issues and interacting with partners
including the EPA in CE&CS initiatives is of particular note.
The EPA strategy 2016-2020 firmly commits to citizen engagement and citizen science as a
means of increasing awareness of environmental issues and in particular on the impact of
environmental quality on human health. This proposed air quality programme strives to
incorporate CE&CS in all appropriate aspects of its work.
3.9 Quality Control/ Quality Assurance (QA/QC) The EPA is the designated national reference laboratory for air quality monitoring in Ireland.
National reference laboratories are required to be accredited to EN/ISO 17025 for the
reference methods (CAFE Annex I C). The EPA Air Quality (National Reference) Laboratory is
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formally accredited as a calibration laboratory, as required under the CAFE Directive. The Air
Team has extended its scope of accreditation to include both PM10/PM2.5 and Benzene.
The air laboratory is currently accredited for both calibration and testing. Quality assurance
work towards further method validation and accreditation continues to progress. As part of
the development of the new programme the EPA will continue to ensure appropriate
standards of QA/QC are maintained.
3.10 Data handling and Reporting The CAFE and 4th Daughter Directives require the submission of air quality data to the
European Environment Agency (EEA) and to the general public. Submission of data to the
EEA is to prove compliance with EU Air Quality Limit values and data is submitted in three
main categories as follows:
Submission in December each year of metadata which enables the submission of
hourly real-time data for the following year
An annual report of air quality data, metadata, exceedances and air quality plans &
programmes every September – this is Ireland’s formal submission of the previous
year’s air quality data
Real-time submission of up to date hourly data
3.10.1 Public Engagement
The CAFE Directive requires the provision of information to the public and it also states that
‘Up to date information on concentrations of all regulated pollutants in ambient air should
also be readily available to the public’. To meet this requirement requires an Air Quality
Information Technology system capable of transmitting and compiling near real time data
from the monitoring stations and presenting it in an accessible format to ensure:
The output of routine air quality data to the public at least once daily
Processes are in place that allow the public to be informed in a timely manner If
information thresholds and alert threshold values are exceeded
The EPA currently provides near real-time or ‘up to date’, data via the website in graphical
format for the majority of its stations www.epa.ie/air/quality/data. The EPA also provides an
Air Quality Index for Health (AQIH) www.airquality.epa.ie as discussed in section 3.2.
However there is a growing demand from the public, academics and non-governmental
organisations to provide increased levels of real-time data particularly for particulate matter
(both PM10 and PM2.5), with an even greater emphasis on near real-time or hourly reporting.
To date the emphasis of particulate matter monitoring in Ireland has been for the purposes
of fulfilment of the legislative requirements (compliance with limit values etc.) and the
equipment used is set up to meet this need. This monitoring has inherent time delays and
does not lend itself to real-time or hourly reporting. To address the demand for more up to
date data the EPA has implemented some ‘reference equivalent’ instrumentation that
provides data in 24-hr averages, but it is acknowledged that this is not sufficient to meet the
needs of stakeholders. The current proposal will comprehensively address this gap.
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4. Proposal for a National Ambient Air Quality Monitoring
Programme The EPA is proposing the establishment of a new national ambient air quality monitoring
programme (AAMP) under section 65 of the EPA Act. This section provides that the Agency
shall, after consultation with such persons or bodies as may be prescribed, prepare and
implement programmes for monitoring the quality of the environment. Such a programme
must specify
a) the nature, extent and purpose of the monitoring,
b) the persons or bodies which will carry out the monitoring,
c) the resources required, and
d) the arrangements for the dissemination and publication of results.
The primary aim of the AAMP is to provide more localised, accessible real-time information
on air quality to the public. In addition it will provide an evidence base to underpin the
development and implementation of a national Clean Air strategy, which is to be progressed
by DCCAE in 2016. The programme will be built on three key pillars which are described in
detail in the following sections.
The three pillars of the National Ambient Monitoring Programme:
4.1 National Monitoring Network The provision of improved, accessible information to the public on their local air quality
requires an expansion of the current air quality network. It is envisaged that the expansion
will involve provision of air quality information to the public from a network configured to
provide three tiers of data as follows:
Tier 1
The CAFE directive network monitoring stations
The existing CAFE directive network monitoring stations will be enhanced and automated to
provide additional real time Air Quality Index for Health (AQIH) data, and will incorporate
the stations that are established under the European Monitoring and Evaluation Programme
(EMEP)
Data from Tier 1 will continue to meet Ireland’s air monitoring requirements under the CAFE
and 4th Daughter directives.
National monitoring
network
Modelling and forecasting Citizen engagement
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Tier 2
An expanded Air Quality Index for Health (AQIH) network
This network will consist of the existing CAFE directive network and EMEP stations as outlined
in Tier 1, augmented with the addition of a further 35 new air monitoring stations.
An expanded AQIH network would represent a doubling of Ireland’s current air monitoring
capacity and a truly significant improvement in the provision of accessible real-time air quality
data to the public.
Data from Tier 2 will be communicated to the public via an upgraded AQIH system as outlined
in Section 4.1.1.The criteria for the selection of Tier 2 AQIH monitoring stations, detailed in
Figure 4.1 below, is as follows:
a) Inclusion of all urban areas with populations greater than 15,000. The rationale for
inclusion of these areas is to provide information to the public on air quality in those
areas of highest population density.
b) A representative number of Zone D towns, chosen from urban areas highlighted in the
North South Ministerial Council Residential Solid Fuel Study as having the highest
estimated PM10 emission density. Those areas with an emission density greater than
800 µg/ha were given specific priority.
c) Further selected air monitoring locations chosen to provide geographical
representativeness.
d) Provision of further information on air quality in Dublin and Cork our largest urban
centres of population.
Tier 3
Indicator air quality monitoring data at a local level.
It is proposed that PM (airborne particulate matter) monitoring at local level is increased to an
initial 14 sites. These local “indicator” sites will provide monitoring that is appropriate to local
requirements, and will be operated and maintained by local authorities and other public bodies
with the support of EPA. The data generated will supplement the Tier 2 network by providing
local air quality data for local communities.
All data from the Indicator network will be collated and analysed by the EPA and will inform
decisions on the placement of monitoring stations and the requirement to carry out
investigative work. These 14 indicator stations may be supplemented in due course to meet
particular local air quality information requirements.
The recommended locations for indicator monitoring are selected on the basis of Tier 2 criteria
b and c. Tier 3 locations are detailed in yellow on figure 4.2. These stations can provide real-
time PM data to the public on the air quality in their locality. This data can display as a real-time
graph of PM concentrations, with accompanying guidance on the interpretation of this data on
both EPA and LA websites. Data from the indicator network will help to identify issues at local
levels that may require further investigative work and/or positioning of mobile or fixed stations.
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4.1.1 Air Quality Index for Health (AQIH)
As outlined above it is recommended that the Tier 1 and Tier 2 automatic stations will all
feed data into an upgraded AQIH. The AQIH rating will be displayed in map format for each
of the monitoring stations as a station based index using the existing current 10 point index
colour codes.
This is a very significant enhancement from the current display in that
it will be based on 64 stations compared to the current 6 broad regions,
it will present the actual status for the monitoring location rather than extrapolated
data,
4.1.2 Public Engagement
The enhanced AQIH will be initially communicated to the public via the EPA website, air-
pages optimised for mobile devices and twitter. Local Authorities will be able to link to this
information to provide locally relevant information, supplemented by their indicator
monitoring data (Tier 3). Further options for increased public awareness of the index and
improved communication include a dedicated air quality website to gather all air quality
information under one recognisable portal, public information campaigns, school citizen
engagement initiatives and linkages with other public bodies’ media bulletins.
4.1.3 European Monitoring and Evaluation Programme (EMEP)
The data provided by the EMEP stations will be increasing important for Ireland if it is to
achieve WHO guidelines on air quality. Analysis of the composition of PM will also be
essential for this. These stations should continue to evolve in line with requirements that
arise from the ongoing development of the EMEP monitoring strategy, requirements that
may arise from the National Clean Air Strategy and the programme should also engage as
appropriate with the research communities and with developments such as under the
European research infrastructure for the observation of aerosols, clouds and trace gases
(ACTRIS).
With regard to the current EMEP monitoring stations, this programme recommends the
following:
That all six stations be retained and incorporated into the national ambient air
quality monitoring programme.
Responsibilities for the maintenance of the stations and the collection, review and
dissemination of the data remain with the EPA and co-operating bodies including
Met Éireann and Teagasc.
Ownership of other linked EMEP activities should continue in line with the
partnership with Met Éireann as detailed in the organisations joint memorandum of
understanding.
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Figure 4.1 - Tier 2 monitoring network, incorporating all Tier 1 CAFE network and EMEP sites
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Figure 4.2 – Proposed national ambient air monitoring network incorporating indicator monitoring locations
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4.2 Modelling and forecasting Modelling and forecasting capacity is an essential compliment to the monitoring network as
it maximises the value of the data collected. In line with many countries in Europe there is a
growing awareness of the need for Ireland to develop its ambient air quality modelling
capacity and capability. The development of further modelling capability and capacity in
Ireland can enable the EPA to provide an ambient air quality forecast to inform the public in
advance, of the predicted air quality and enable choices to be made regarding work and
leisure activities. Distribution models based on air quality monitoring data and
meteorological data will enable the provision of air quality information for the local regions
between the monitoring sites. No network can monitor every area of the country but with
modelling, reliable predictions can be made. Such modelling capacity is particularly valuable
in the event of an emergency release of airborne pollutants such as a fire at a chemical
plant. Models will predict the direction of the pollutant plume and enable authorities to
respond appropriately and efficiently. Should a monitoring site reveal air quality that
exceeds permitted values, the CAFE directive requires that an air quality management plan is
developed. Model data is essential for the development of air quality management plans as
it permits the testing of different scenarios to optimise the management solution.
Modelled air quality information can be a valuable tool to inform general air quality policy
development. Modelling at urban and regional scale will provide an insight into the impact
on air quality of for example, changes to the national road network, speed limits and fuel
types. Questions such as “what are the air quality benefits of removing diesel cars from a
town centre?” can be answered through modelling. Model data can also be used for formal
reporting, it can also be used to replace monitoring stations, particularly if pollutant
concentrations are below the lower assessment threshold.
The modelling activities where Ireland needs to develop further national capacity and
capability are:
1. General ambient air quality modelling at urban and regional scales
2. Ambient air quality forecast modelling
3. Incident response/ point source modelling in relation to ambient air quality incidents
The proposed AAMP incorporates a phased development of ambient air quality modelling
and ambient air quality forecasting in Ireland over the five year period of the programme.
Further development of modelling in response to Incidents and emission sources can be best
addressed by the existing expert stakeholder group.
4.3 Citizen engagement Citizens are not only recipients of information but also important partners in the improvement of air quality. The EPA intends to continue and grow its current citizen engagement and citizen science programme (CE&CS) under the proposed AAMP. EPA will develop and support air quality CE&CS initiatives as a means to engage the public, increase awareness of air quality issues and provide input to the national monitoring programme. Central to this ambition will be the active engagement and involvement of key stakeholders in academia, advocacy groups, local authorities, other public sector bodies and industry in
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designing and supporting the implementation of CE&CS programmes. A particular emphasis will be placed initially on educational interactions with schools. In addition, consideration can be given to further CE&CS activities through a suitable European funding vehicle, such as LIFE, INTERREG or Horizon2020. A strategic plan to progress air quality CE&CS initiatives over the next five years will be developed.
4.4 Under-pinning supporting actions
4.4.1 Actions to maintain/ enhance compliance with CAFE and 4th Daughter
directive requirements
Ireland’s compliance with the Air Quality Directives has been reviewed and areas for improvement highlighted. The recommended actions are incorporated into this proposed programme.
In relation to site classification, the Commission Directive amendment to the CAFE Directive
details that assessment strategies should be updated as necessary and reviewed at least
every 5 years with repeated documentation, to ensure that selection criteria, network
design and monitoring site locations remain valid and optimal over time. As indicated in
Section 3.3 this should be progressed and actions towards this are currently underway.
4.4.2 Quality Control/ Quality Assurance (QA/ QC)
Under the proposed AAMP the scope of accreditation of the National Reference laboratory
will be expanded to include metals and Polycyclic aromatic hydrocarbons (PAH). This would
ensure full compliance with CAFE while improving accuracy and integrity of all monitored
parameters
Demonstration of equivalence with reference methods at automated PM monitors provides
confidence in non-reference type instrumentation. The EPA in its role as the National
Reference Laboratory is obliged to ensure all instrumentation is complaint with the
directives and that any third party operators are also in compliance. More intensive inter-
comparison between the public bodies operating in the network and the EPA will improve
the overall quality of the network. If the network is to expand increased equivalence
monitoring will be required, as well as accreditation in the field for each pollutant and
assessments of the QA/QC systems of the operators.
4.4.3 Emerging Pollutants:
The current monitoring network monitors only those pollutants required under the EU
directives. Currently there are no plans at EU level to revise the Air Quality Directives,
however the monitoring requirements can evolve over time. There is concern at a European
level regarding ammonia and PM1. The extended and enhanced monitoring network
proposed here will ensure that the network will be sufficiently flexible and adaptable to
meet the challenge of new and emerging pollutants. This capacity to respond will also
ensure that the network can respond appropriately to local requirements for additional
monitoring sites or pollutants.
4.4.4 Data Handling and Reporting
The current data handling and reporting activities will be extended to include the proposed
expanded network. The increased automation of the network will provide more data, in a
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more timely, readily available manner but will increase reliance on specialist IT systems for
data transmission and processing. Furthermore, the ambitions regarding the upgraded AQIH
and public engagement on air quality information will require additional IT technical support
which has been factored into the programme.
4.4.5 Emergency Response and Source Apportionment
The proposed design of the new monitoring network will provide a national full field capacity
to respond to emergency situations. This will enable:
Capacity to respond to emergency air pollution events anywhere in Ireland within 24hrs.
Active participation in the national Emergency Response Framework. Intensive monitoring capability will be available supported by modelling resources.
Emergency exercises and simulations will be made possible to maintain readiness.
Source apportionment capability will provide information on the sources of pollutants, assisting national and local plans and programmes, model development and national policy development.
Development of an investigation unit in co-operation with personnel from the EPA Office of Environmental Enforcement (OEE).
5. Resources and governance
5.1.1 National Ambient Air Monitoring Framework
This proposal for the AAMP is based on a partnership approach. The implementation and
delivery of the AAMP proposal relies on the contribution and participation of a variety of
players, principally EPA and Local Authorities with funding and strategic input from central
government.
A framework structure is proposed to oversee the implementation and management of the
AAMP and address the overall governance of the programme. Under this framework
structure the responsibilities for the management and co-ordination of the monitoring,
collection, communication, reporting of data and the quality and technical functions will be
agreed and clearly outlined.
It is proposed that the EPA as National Competent Authority and the Department of
Communications, Climate Action and Environment (DCCAE) as the relevant government
department, will develop this framework in consultation with the County and City Managers
Association (CCMA).
5.1.2 EPA roles
Within this framework it is envisaged that the EPA as the national competent authority and
the specified monitoring and reporting body under legislation will continue in the lead role
of co-ordinating and managing all air quality monitoring activities in Ireland. As well as being
available for local dissemination by Local Authorities, the data gathered from across the
system will be centrally collated and analysed by EPA for the purposes of reporting to EU,
UN, modelling and forecasting as well as dissemination to the public and other stakeholders.
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5.1.3 Local authority/ third party roles
The participation and contribution of Local Authorities is critical to the success of the AAMP.
The continuation of the valuable role currently played by some local authorities in the
support of local monitoring stations will be essential to the AAMP, and it is an ambition that
this will be extended to include the expanded network where appropriate. It is envisaged
that the additional monitoring sites will be established during the first 3 years of the
programme and in this the support from Local Authority personnel will be vital. It is
proposed that all Local Authorities will be supported to engage and contribute to providing
air quality monitoring data for their local authority area to the national network either as
Tier 1, 2 or 3 data. The provision of increased local air quality data to the public by their local
authority can meet increasing public interest in air quality.
The division of roles between the Local Authorities and the EPA in relation to these sites will
be flexible and determined by resource availability from location to location, and substantial
technical support will be provided to Local Authorities under the AAMP through the EPA. It
is envisaged that between Local Authorities, sharing of roles will be an efficient and viable
option.
These arrangements will be agreed between the partners through the AAMP framework and
it is proposed that a programme of engagement with Local Authorities through the CCMA
will be undertaken, to encourage involvement in the network, and highlighting the
opportunities to address local concerns by the provision of air quality information for their
local authority area.
To enable the participation of all local authorities and other third parties in the network it is
proposed that:
A structure of regional lead local authorities be developed ensuring availability of
sufficiently resourced and trained personnel to contribute to the network, such as
along the lines of the putting people first regions.
The EPA will develop guidance, technical procedures and QA/QC protocols for all
bodies involved, host workshops and an annual conference as well as providing
ongoing support and general guidance.
All data gathered by the national tiered monitoring network will be transferred to
the EPA together with localised communication of near real-time data.
Local Authority needs will be considered and catered for in the development of EPA
web-based maps and information so that local data can be displayed on local
websites in a format consistent with the national picture.
The proposed national ambient air monitoring framework can provide a forum to
develop a consistent approach to local air quality planning.
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6. Dissemination and publication of information on air quality An improved air quality index for health will be the primary route for dissemination of
information on air quality to members of the public. The interpretation of data from an
expanded national network into a readily understandable form, linked to health specific
advice will be one of the key elements of the proposed new national ambient air monitoring
programme, as outlined in Section 4.1.1.
Other routes for communication and publication include:
EPA air web-pages and mobile web pages
Annual air quality report
Monthly air bulletins
Via other public bodies such as Met Éireann
Via other key stakeholders such as The Asthma Society of Ireland
Development of a dedicated air quality website for Ireland
An expansion of the network and increased reliance on IT/communications to make the
increased data available to the public will require a great increase in IT technical support to
the Air Quality team. A sufficiently robust IT system, capable of dealing with increased data
flow must be put in place.