Abstract
Improving air quality by decreasing air pollutant concentration levels requires promulgating regulations that protect public health, ecosystems, the agriculture, buildings, and atmospheric visibility. Then, public policies must be implemented to design, apply, and evaluate emission control strategies to meet the regulatory standards. In this chapter, the general approach for the development of regulations to protect public health via ambient air quality standards is described first. These regulations and the implementation of the associated public policies differ among countries. Those used in the United States and in France are presented here comparatively to illustrate slightly different approaches. Finally, approaches used at the national and international levels to regulate atmospheric deposition and global atmospheric issues (i.e., destruction of the stratospheric ozone layer and climate change) are presented.
Improving air quality by decreasing air pollutant concentration levels requires promulgating regulations that protect public health, ecosystems, the agriculture, buildings, and atmospheric visibility. Then, public policies must be implemented to design, apply, and evaluate emission control strategies to meet the regulatory standards. In this chapter, the general approach for the development of regulations to protect public health via ambient air quality standards is described first. These regulations and the implementation of the associated public policies differ among countries. Those used in the United States and in France are presented here comparatively to illustrate slightly different approaches. Finally, approaches used at the national and international levels to regulate atmospheric deposition and global atmospheric issues (i.e., destruction of the stratospheric ozone layer and climate change) are presented.
15.1 Regulations for Air Pollutant Concentrations
A regulation of ambient air pollution includes six components:
The regulated air pollutant, called the indicator species
The exposure duration
The regulatory value
The statistical form of the regulation
The location of the monitoring stations
The measurement method
15.1.1 Indicator Species
Regulations are set either for a specific air pollutant (for example, lead or benzene) or for a group of air pollutants. The latter include, for example, photochemical oxidants, nitrogen oxides (NOx), sulfur oxides (SOx), and particulate matter (PM). In the case of a group of pollutants, a representative pollutant must be selected. For photochemical oxidants, ozone (O3) is used because it is the chemical species of that group that is present in the highest concentrations. For NOx, nitrogen dioxide (NO2) is used because it shows well-documented adverse effects on the human respiratory system. For SOx, sulfur dioxide (SO2) is used because it also shows well-documented adverse effects on the human respiratory system. Sulfur trioxide (SO3) has a very short atmospheric lifetime, because it is rapidly hydrolyzed to sulfuric acid (H2SO4). H2SO4 is present in the atmosphere in the particulate phase because of its very low saturation vapor pressure. Particles lead to adverse respiratory and cardio-vascular effects; therefore, particles are regulated separately. Thus, it is appropriate to select SO2 as the indicator species for SOx. In the case of particles, the regulations have targeted their size rather than their chemical composition up to now. The reason is that there is a large body of health studies that associate adverse health effects with inhalable particles (PM10) and fine particles (PM2.5), whereas there is currently insufficient epidemiological evidence to identify the adverse health effects of individual constituents of PM (one exception could be diesel particles).
15.1.2 Exposure Duration
Health effects may result from acute exposure (ranging from a few minutes to a few hours) and/or chronic exposure (ranging from a few months to a few years). Therefore, the regulation must correspond to the exposure duration that is considered representative of the health effects. For some air pollutants, regulations may be appropriate for both short (acute exposure) and long (chronic exposure) durations. Table 12.2 summarizes the exposure durations relevant to health effects due to air pollutants regulated in North America and in Europe. In some cases, a pollutant may be regulated for an exposure duration in the absence of conclusive evidence of adverse health effects (see Tables 12.2, 15.1, and 15.2). Such cases (e.g., the annual standard for NO2 in the United States and in Europe and the annual standard for PM10 in Europe) generally result from historical reasons (earlier health data led to the regulation, which is then kept by default). The regulation that corresponds to the exposure duration with the best evidence of adverse health effects is typically the most constraining. On the other hand, it may happen that a regulation is not set for both acute and chronic exposures in spite of epidemiological evidence for both. This is the case, for example, for PM2.5 in Europe, where only a long-term standard is used (see Tables 12.2 and 15.2). This choice may, however, be appropriate because the long-term exposure is considered to correspond to the most important adverse health effects. In the United States where both short- and long-term exposures to PM2.5 are regulated, the long-term regulation (annual concentration averaged over three years) is the most constraining and it is rare that a region would be in attainment of the annual standard, but would not be in attainment of the short-term (daily) standard. It is also the case for ozone (O3), which is only regulated for short-term exposure (8-hour average concentration), although there is some evidence of likely adverse health effects for chronic exposure to ozone (see Table 12.2). It is considered that an 8-hour average regulatory value also protects against chronic exposure, based on air quality data analyses relating ozone concentrations averaged over short and long periods.
Table 15.1. National ambient air quality standards (NAAQS) to protect public health in the United States (Clean Air Act and regulations of the U.S. Environmental Protection Agency).
Pollutant | Concentrationa | Sampling duration | Statistical formb (number of authorized exceedances per year) |
---|---|---|---|
Pb | 0.15 μg m−3 | 3 moc | (0)d |
CO | 40 mg m−3, 35 ppm | 1 h | 99.99th percentile (1)e |
10 mg m−3, 9 ppm | 8 hc | 99.99th percentile (1)e | |
SO2 | 197 μg m−3 75 ppb | 1 h | 99th percentile (3)f |
NO2 | 189 μg m−3, 100 ppb | 1 h | 98th percentile (7)g |
100 μg m−3, 53 ppb | 1 year | (0)d | |
O3 | 137 μg m−3, 70 ppb | 8 hc | 99th percentile (3)h |
PM10 | 150 μg m−3 | 24 h | 99.7th percentile (1)i |
PM2.5 | 35 μg m−3 | 24 h | 98th percentile (7)j |
12 μg m−3 | 1 year | (0)d, k |
(a) regulatory concentrations are expressed in μg m−3 for Pb and PM and in ppb or ppm for gaseous pollutants; conversion from ppb (or ppm) to μg m−3 (or mg m−3) is at 25 °C and 1 atm. Concentrations are measured at background monitoring stations except for the concentrations of NO2 and PM2.5, which must be measured near sources (i.e., mostly near roadways), and for the concentrations of SO2, which must be both measured and modeled near sources.
(b) the statistical form is provided here both as a percentile and a number of exceedances per year; see footnotes for the exact definition.
(c) moving average.
(d) not to be exceeded.
(e) not to be exceeded more than once per year.
(f) 99th percentile of daily maximum 1-hour average concentrations averaged over 3 years; 24-hour average and annual standards were eliminated in 2010 (except for non-attainment areas).
(g) 98th percentile of daily maximum 1-hour average concentrations averaged over 3 years.
(h) annual fourth-highest daily maximum 8-hour average concentrations averaged over 3 years.
(i) not to be exceeded more than once per year averaged over 3 years.
(j) 98th percentile averaged over 3 years.
(k) annual mean averaged over 3 years not to be exceeded.
Table 15.2. Ambient air quality standards to protect public health in Europe (European Directive).
Pollutant | Concentrationa | Sampling duration | Statistical formb (number of authorized exceedances) |
---|---|---|---|
Pb | 0.5 μg m−3 | 1 year | (0)c |
CO | 10 mg m−3, 9 ppm | 8 hd | (0)c |
SO2 | 350 μg m−3, 133 ppb | 1 h | 99.7th percentile (24)e |
125 μg m−3, 47 ppb | 24 h | 99.2th percentile (3)f | |
NO2 | 200 μg m−3, 106 ppb | 1 h | 99.8th percentile (18)g |
40 μg m−3, 21 ppb | 1 year | (0)c | |
O3h | 120 μg m−3, 61 ppb | 8 hd | 93th percentile (25)i |
PM10 | 50 μg m−3 | 24 h | 90.4th percentile (35)j |
40 μg m−3 | 1 year | (0)c | |
PM2.5k | 25 μg m−3 | 1 year | (0)c |
C6H6 | 5 μg m−3, 1.5 ppb | 1 year | (0)c |
(a) all regulatory concentrations are expressed in μg m−3 (or mg m−3); conversion of gaseous pollutant concentrations from μg m−3 (or mg m−3) to ppb (or ppm) is at 25 °C and 1 atm.
(b) the statistical form is provided here both as a percentile and a number of exceedances per year; see footnotes for the exact definition.
(c) not to be exceeded.
(d) daily maximum 8-hour (moving) average concentrations.
(e) not to be exceeded more than 24 times per year.
(f) not to be exceeded more than 3 times per year.
(g) not to be exceeded more than 18 times per year.
(h) target value.
(i) not to be exceeded more than 25 days per year averaged over three years.
(j) not to be exceeded more than 35 times per year.
(k) limit value of 25 μg m−3; target value of 20 μg m−3 (three-year average at urban background monitoring stations) in 2020.
15.1.3 Regulatory Value
The regulatory value (the value of the national ambient air quality standard in the U.S., the limit or target value in Europe) is the best-known aspect of the air pollutant regulation. However, it cannot be dissociated from the exposure (or sampling) duration, the statistical form of the regulation (see Section 15.1.4), or the location of the monitoring stations (see Section 15.1.5). The regulatory value is determined from toxicological and/or epidemiological studies. For standards corresponding to durations of 24 h or more, epidemiological studies are typically used, since human toxicological studies are not conducted for exposure durations exceeding a few hours. For shorter exposure durations, toxicological studies may be favored. However, epidemiological studies add some useful information concerning sensitive populations, which may not be available from toxicological studies. In addition, experimental air quality data may be used to extrapolate ambient pollutant concentrations temporally or spatially, in order to relate results available from toxicological or epidemiological studies with some characteristics of the regulation (e.g., sampling duration or location; see examples later in this section). Studies used to set up regulatory values in the United States are summarized in Table 15.3.
Table 15.3. Data used to define the regulatory values of the national ambient air quality standards in the United States. Source: Clean Air Act and regulations of the U.S. Environmental Protection Agency, Federal Register.
Pollutant and sampling duration | Toxicological studies | Epidemiological studies | Ambient concentrations |
---|---|---|---|
Pb, 3 months | ✓ | ✓ | |
CO, 1 h | ✓ | ||
CO, 8 h | ✓ | ||
SO2, 1 h | ✓ | ✓ | |
NO2, 1 h | ✓ | ✓ | ✓ |
NO2, 1 year | ✓ | ||
O3, 8 h | ✓ | ✓ | |
PM10, 24 h | ✓ | ||
PM2.5, 24 h | ✓ | ||
PM2.5, 1 year | ✓ |
Toxicological studies (clinical studies conducted under controlled exposure) have been used for O3 (concentration averaged over eight hours) and CO (concentrations averaged over one and eight hours). On the other hand, epidemiological studies have been used for the NO2 and PM2.5 annual values. Epidemiological studies were used in combination with a model representing the relationships between atmospheric concentrations, exposure, blood concentrations, and adverse health effects for Pb (3-month moving-average concentration) in order to better account for various possible exposure pathways. Epidemiological studies have also been used for the 24-hour average values of PM2.5 and PM10.
In some cases, toxicological and epidemiological studies are used in combination. In the case of the hourly NO2 value, toxicological studies provided the low value of the range of concentrations corresponding to adverse health symptoms for individuals with moderate asthma. Epidemiological studies were then used to better account for more sensitive individuals (e.g., severe asthma). The regulatory value was to be set for near-source situations. Since the epidemiological studies were mostly based on existing air quality monitoring networks, which only included urban background locations, the analysis was complemented with an analysis of air quality data to extrapolate the urban background data to near-roadway locations. In the case of the hourly SO2 regulatory value, toxicological studies have also provided the low value of the range of concentrations leading to adverse health effects for individuals with moderate asthma exposed for short periods (5 to 10 minutes). Since the regulatory value was set for a one-hour average concentration to minimize temporal fluctuations in the measured concentrations, ambient concentration data were used to relate the 5-minute average toxicological data and the 1-hour ambient concentrations. In the case of O3, epidemiological studies have been used only to complement toxicological studies to confirm that significant adverse health effects do not appear below the low value of the range of concentrations proposed for the standard.
In summary, the U.S. regulations are based on epidemiological studies for concentrations averaged over periods ranging from 24 hours to one year. They are mostly based on toxicological studies for concentrations averaged over periods ranging from one to eight hours. However, those latter regulatory values are in some cases also based on epidemiological studies that provide useful information concerning sensitive individuals, who cannot participate in toxicological studies. In addition, air quality data have been used to extrapolate the results of health studies spatially (in the case of NO2) or temporally (in the case of SO2).
15.1.4 Statistical Form of the Regulation
A regulation may allow a number of exceedances of the regulatory value. This aspect may be stated either explicitly in terms of the number of allowed exceedances (for SO2, NO2, O3, and PM10 in the European regulations and for CO, O3, and PM10 in the U.S regulations) or in the form of a percentile that corresponds to the concentration not to be exceeded (for SO2, NO2, and PM2.5 in the U.S. regulations). Since a number of allowed exceedances may be converted into a percentile and vice-versa, both are provided in Tables 15.1 and 15.2 to facilitate comparisons between the U.S. and European standards. The ambient concentrations of air pollutants depend strongly on meteorological conditions. Thus, extreme meteorological events may lead to large fluctuations in the highest measured pollutant concentrations from year to year. Therefore, allowing a limited number of exceedances of a regulatory value eliminates those highest measured concentrations from consideration and leads to comparisons of the measured concentrations to the regulatory value that are statistically more robust; i.e., they do not fluctuate as much from one year to the next compared to the highest concentrations. In addition, the meteorological variability may be taken into account for long periods by averaging results over several years. For example, some U.S. regulations, such as PM2.5, apply to three-year periods. Averaging over several years may also be applied for short-term regulations. For example, the 99th percentile of the hourly SO2 concentration is averaged over a three-year period in the U.S. regulation.
15.1.5 Locations of Monitoring Stations
The location of monitoring stations that measure the ambient concentrations of the regulated air pollutants is important for the definition of the air quality standard, particularly in the case of primary pollutants. Urban background stations measure concentrations of primary pollutants that are lower than those measured near the source of those pollutants. For example, an urban background station will measure lower concentrations of CO, NO2, and PM than those measured near a major roadway, with a difference of a factor of 1.5 to 2, for example, in Paris. In Europe, the air pollutant concentrations are measured at urban background stations as well as at near-source stations (mostly near-roadway stations). In the United States, air pollutant concentrations in urban areas were measured only at background stations until 2009. However, near-source monitoring stations are now required for NO2 (since 2009) and PM2.5 (since 2013). For a primary air pollutant, a given regulatory value (including averaging time and number of allowed exceedances) will correspond to a more constraining standard if a near-source monitoring location is used instead of an urban-background location.
15.1.6 Measurement Method
Some experimental uncertainty is associated with any measurement method. In some cases, there may also be a bias due to artifacts. As a result, different sampling instruments may give different values for a given concentration at a given time and location. Therefore, it is essential to specify which method and sampling instrument must be used to monitor air pollutant concentrations. This measurement method, which is specified in the regulation, is called the reference method. Other methods may be used, if they are shown to give results equivalent to the reference method. For example, the reference method in the United States for PM is a gravimetric method (a filter is weighed under controlled conditions for temperature and relative humidity before and after sampling). Continuous measurements with an instrument such as a tapered element oscillating microbalance (TEOM) are considered equivalent to the reference method. In early TEOM instruments, there were some significant artifacts due to the volatilization of semi-volatile particulate compounds such as ammonium nitrate and some organic compounds. A correction is now performed with a filter dynamics measurement system (FDMS), which minimizes the effect of those artifacts.
15.1.7 Regulations in the United States and in France
Regulations of air pollutants in use in 2018 in the United States and in France are presented in Tables 15.1 and 15.2, respectively. These regulations are based on toxicological and epidemiological studies conducted to identify and quantify the cause-effect relationships for acute and chronic exposure to those pollutants (see Table 15.3). There are several differences. First, some pollutants are regulated in both countries (NO2, SO2, O3, PM, CO, and Pb), whereas others are regulated only in one country. Benzene is regulated in France, but not in the United States and, until 2008, fine particles (PM2.5) were regulated in the United States since 1997, but not yet in Europe. Benzene is a carcinogenic pollutant (category 1 according to the IARC) and the European regulation corresponds to an excess cancer risk of about 10−5 (see Chapter 12). Benzene is not the only carcinogenic air pollutant and the U.S. Environmental Protection Agency favors treating all carcinogenic air pollutants together in terms of their excess cancer risk, rather than targeting a single pollutant. The sampling times are generally identical, although there are a few differences (one year in Europe for lead and three months in the United States). Statistical forms of the regulatory values are rarely identical and it is difficult to compare two regulations with different statistical forms and regulatory values. For example, the regulatory value for ozone is 120 μg m−3 in France (it is a target value), but this value may be exceeded 25 days per year. The regulatory value is greater in the United States since it is 137 μg m−3, however, the number of allowed exceedances is much lower (three days per year only).
15.2 Public Policies
The implementation of air quality regulations is similar overall in the United States and in France, but there are a few differences. Both approaches are summarized in Sections 15.2.1 and 15.2.2, respectively.
15.2.1 Public Policy in the United States
In the United States, the Clean Air Act (CAA) and its amendments govern the air quality regulations. In the CAA, the major air pollutants are regulated through National Ambient Air Quality Standards (NAAQS, see Table 15.1). These NAAQS are regularly updated as follows. The setup of a standard starts with a review of the scientific literature, targeting primarily the health effects of the pollutant(s) considered. There are six pollutants or pollutant categories that undergo this process of standard setting: lead, carbon monoxide, nitrogen oxides, sulfur oxides, ozone, and particulate matter (PM). These pollutants are called “criteria pollutants” because the product of the scientific literature review was originally called the “criteria document” (it is now called the integrated scientific assessment or ISA). The next step is the preparation of an evaluation of the population exposure and associated health effects. This work is presented in a report titled “Risk and exposure assessment” (REA). The REA documents quantitatively the exposure and health risks of the population for different regulatory scenarios. These two documents constitute the scientific basis for the development of the NAAQS. Both documents are reviewed by a scientific committee, called the Clean Air Scientific Advisory Committee Review Panel (CASAC Review Panel). NAAQS are then proposed by the U.S. EPA and subsequently promulgated by the federal government. Primary NAAQS concern the protection of public health. Secondary NAAQS may be added to protect the environment. At each step of this public process, the stakeholders concerned by the regulation (industry, ecologists, citizens …) may comment.
Monitoring air quality is essential to ensure that an area of the United States is in attainment or not of the NAAQS. The U.S. EPA sets up a protocol for the air quality monitoring networks, including monitoring sites, measurement instruments, sampling chain procedure (quality assurance/quality control), etc. The air quality monitoring networks are typically operated by the states and measured concentrations are transferred by the state agencies to EPA and incorporated into a database. Based on these air quality data, EPA determines which areas are in attainment of the NAAQS and which ones are not (i.e., non-attainment). In case of non-attainment in a state, the state agency must develop an action plan, called a State Implementation Plan (SIP). A SIP lists all the emission control measures that will be implemented by the state agency to attain the NAAQS within the period allowed by EPA (the length of the period depends on how severe the non-attainment conditions are). The efficiency of these measures is typically evaluated quantitatively with an air quality numerical model (also called chemical-transport model, see Chapter 6). The models that are the most widely used in the United States for this task are CMAQ (Appel et al., 2017) and CAMx (Vijayaraghavan et al., 2012). EPA may ask for revisions if a SIP seems inappropriate (for example, poor performance of the air quality model against available data).
In most states, the state agency is responsible for stationary sources, whereas mobile sources are under the federal government authority. California is an exception because it regulates its own mobile source emissions. Then, the regulation of stationary sources in California may be delegated to districts. If a state does not attain the objectives listed in its SIP, EPA may implement some sanctions, such as the cancellation of funding for road networks, and/or take control of the SIP management by temporarily cancelling the delegation of the process to that state.
In some cases, it is not possible for a state to attain the NAAQS because long-range air pollution imported from other regions may be a major cause for the exceedance of some NAAQS. This has been the case, for example, in some small states of the northeastern U.S., which are downwind of states that are large emitters of primary air pollutants (in particular NOx), and, therefore, could not meet the ozone NAAQS. The states with large NOx emissions experienced little ozone formation, because this secondary pollutant was being formed farther downwind. EPA decided to set up a multi-state approach over the northeastern U.S. to tackle this issue on a regional basis and control NOx emissions in the states that were the large emitters (Godowitch et al., 2008). This process was called the “SIP Call.” This example illustrates the fact that the existing law (here the SIP, which is limited to a state) was not sufficient to attain the regulatory objectives (the NAAQS), but that the federal agency, EPA, did not hesitate to modify the regulatory process to attain the desired objectives. In other words, reaching the objective prevailed over the simple application of the regulatory process, once the latter was shown to be inadequate.
Benzene, which is carcinogenic, is not regulated in the United States, because all carcinogenic pollutants are regulated as a whole as “air toxics.” They are subject to a regulatory process that differs from the NAAQS. Initially, their emissions were regulated via National Emission Standards for Hazardous Air Pollutants (NESHAP). This approach implied the concept of zero risk, which in theory could be attained if the emissions complied with the NESHAP values. Although this approach is feasible for non-carcinogenic risks (which involve a health threshold), it is inappropriate for carcinogenic pollutants, which typically do not have such a threshold (see Chapter 12). In the 1990s, a different approach was introduced that is based on the calculation of health risks to evaluate the carcinogenic risks due to air pollutants. If, after implementation of emission control technology required by the regulations (which are defined by source categories), individual excess cancer risks exceed a value in the range of 10−6 to 10−5, additional emission controls may be required for specific sources to decrease the risk (Ohshita and Seigneur, 1993).
The temporal trends of the maximum concentrations of three pollutants regulated in the U.S. are shown in Figure 15.1 for the Los Angeles Basin in California. These three pollutants, O3, NO2, and PM2.5, exceed the NAAQS. The inter-annual variability is mainly due to the meteorological variability. In addition, the NO2 monitoring network was modified starting in 2014 in response to a revision of the NO2 NAAQS to include near-roadway locations in addition to the urban background stations (see Section 15.1.5). This change led to an increase in the maximum NO2 concentration. There are significant decreases of the concentrations of these three air pollutants over the long term. On average, the decrease is 4 to 5 ppb per year for O3 over the past 40 years, 9 to 10 ppb per year for NO2, and about 1 μg m−3 per year for PM2.5 over the past 15 years. However, these annual decreases may become less important with time, because the sources that are the easiest to control or to eliminate have typically been addressed upfront and, consequently, it becomes harder to control the emissions of primary pollutants and those of precursors of secondary pollutants. In addition, the relative contribution of the long-range transport of air pollution increases when the local emission contribution decreases. In the Los Angeles Basin, this imported pollution originates mostly from Asia. In summary, these figures illustrate the efficiency of regulatory measures that have been implemented to improve air quality in the Los Angeles Basin, while highlighting the efforts that are still pending to attain the NAAQS.
Figure 15.1. Timelines of the concentrations of ozone (O3), nitrogen dioxide (NO2), and fine particles (PM2.5) in the Los Angeles basin, California. Top figure: maximum 8-hour averaged O3 concentration from 1976 to 2015; middle figure: maximum hourly NO2 concentration from 2000 to 2015; bottom figure: maximum PM2.5 annual concentration from 2000 to 2015. Source: SCAQMD (2017).
15.2.2 Public Policy in France
In France, an air pollution regulation is based on directives issued by the European Union. The European directive is then converted into French law. A European directive for a given air pollutant takes into account the health effects of that air pollutant. However, there is a major difference between the U.S. approach and the European one in the fact that the European directive also takes into account the time needed to bring the air quality toward the health-based objective. As a result, the limit values (equivalent to the regulatory value of the U.S. NAAQS) may vary over time, starting with a high value for the first few years and decreasing to lower values as time goes on, tending toward a value corresponding to public health protection. It is currently the case for fine particles, PM2.5, with an annual limit value of 25 μg m−3 in 2015 and a target value of 20 μg m−3 for 2020 (for comparison, the U.S. NAAQS annual value for PM2.5 is 12 μg m−3).
The European approach uses an ensemble of values that present various levels of constraints:
Air quality objective: A concentration level of air pollutants to be attained over the long term in order to achieve an efficient protection of human health and the environment, except when it is unachievable through reasonable measures.
Target value: A concentration level of air pollutants defined in order to prevent, warn or reduce adverse effects on human health and the environment, to be attained to the extent possible by a given deadline.
Limit value: A concentration level of air pollutants based on scientific knowledge, not to be exceeded, in order to prevent, warn or reduce adverse effects on human health and the environment. (Note, however, that the regulation may allow a limited number of exceedances.)
Information and recommendation threshold: A concentration level of air pollutants above which a short-term exposure presents a health risk for sensitive individuals, requiring timely and relevant communication to the public.
Alert threshold: A concentration level of air pollutants above which short-term exposure presents a health risk for the whole population or environmental degradation and justifies emergency measures.
In France, air quality monitoring is conducted by non-governmental organizations (Associations agréées de surveillance de la qualité de l’air, i.e., AASQA), which transfer the air quality monitoring data into a national air quality database (Base de données sur la qualité de l’air, BDQA). Air quality monitoring must follow standard procedures defined at the European level.
In the U.S., the same entity (the state or, in California, the district) monitors air quality and is responsible for taking actions to meet the NAAQS. In France, the AASQA have no authority on air pollutant emission control. Instead, French government agencies are responsible for regulating stationary sources. Those are the Regional agencies for environment, planning, and housing (Directions régionales de l’environnement, de l’aménagement et du logement, DREAL), except in Paris, where it is the Regional agency for environment and energy (Direction régionale et interdépartementale de l’environnement et de l’énergie, DRIEE). Each country belonging to the European Union must then demonstrate that it is in attainment of the limit values of the European regulations. If not, an action plan must be developed to reach attainment within a reasonable time. In addition, exceedances of the alert and information thresholds must be communicated to the public and reported to the European Agency. An exceedance of limit values may lead to important fines by the European Union Court of Law (several tens of million euros per year). For example, as of May 2018, six European countries have been referred to the Court of Justice of the European Union because of exceedances of air pollutant limit values: France, Germany, and the United Kingdom for non-attainment of NO2 limit values and Hungary, Italy, and Romania for non-attainment of PM10 limit values.
There are three main programs in France that pertain to air quality protection. They are part of the 1996 Air Law (Loi sur l’air et l’utilisation rationnelle de l’énergie, LAURE).
– Urban transportation planning (Plans de déplacements urbains, PDU), which are developed by 59 urbanized areas with more than 100,000 inhabitants. They have actually limited effect on air quality, because they mostly impact the spatio-temporal distribution of on-road traffic emissions, without significant impact on the area-wide total mobile source emissions.
– Regional planning for climate, air, and energy (Schémas régionaux climat air énergie, SRCAE), which have replaced the earlier regional air quality plans (Plans régionaux de la qualité de l’air, PRQA). SRCAE were put into place following the so-called Grenelle de l’Environnement meeting in 2007 and were implemented through the Grenelle I (2009) and Grenelle II (2010) laws. They are developed by the administrative regions. They are open for public consultation and are revised every five years. They present recommendations to reduce emissions in order to reach objectives for air quality, while minimizing greenhouse gas emissions and energy consumption. However, they do not lead to specific regulations to reduce air pollutant emissions. Therefore, they are tools for providing recommendations in terms of public policy, rather than decision tools for emission controls.
– The Atmosphere protection plans (Plans de protection de l’atmosphère, PPA), which are developed by 24 urbanized areas with more than 250,000 inhabitants. They are developed under the authority of the government representative for the region (“préfet”). The Paris PPA is developed by the DRIEE. PPA are developed with the objective of reaching attainment of the European limit values. Therefore, they may include regulations to reduce stationary source emissions. Thus, a PPA is a regulatory tool (actually, it is the only regulatory tool at the regional level). Its development typically involves the government agency (DRIEE or DREAL), technical support from the regional air quality organization (AASQA, e.g., Airparif in the Paris region), as well as stakeholders and experts. In the case of the Paris PPA, the emission control measures have been selected according to a process where all stakeholders participated in the PPA development. A PPA does not always demonstrate conclusively that the measures listed will lead to attainment of the limit values. Nevertheless, a PPA documents, at least partially, which impacts those measures will have on air quality improvement. The list of long-term measures identified to control air pollutant emissions may be complemented with emergency measures in the event of exceedance of alert thresholds.
It is important that these three plans (PDU, SRCAE, and PPA) be consistent among each other. Note that the French PPA have the same limitation as the U.S. SIP, i.e., they are limited to a geographical region and, therefore, may not be sufficient in the case of imported long-range air pollution. A national or European approach may be needed to treat not only regulated air pollutants with long atmospheric lifetimes (O3 and PM2.5), but also their precursors (VOC, NOx, SO2, and NH3). Emission control scenario simulations are conducted to evaluate the impact of emission control measures on future air quality. Numerical air quality models used to that end include, for example, Chimere (Menut et al., 2014) and Polyphemus/Polair3D (Sartelet et al., 2012).
The reduction of stationary source emissions and the regulation of fuels are under the authority of the government. Emission standards for on-road vehicles are set at the European level (see Chapter 2).
Temporal trends of maximum concentrations at urban background stations for three regulated air pollutants are presented in Figure 15.2 for the Paris region. The maximum 8-hour average O3 concentrations and the maximum annual NO2 concentrations are shown for the 1994–2015 period. The maximum annual PM2.5 concentrations are shown only for the 2007–2015 period, because of a change in monitoring technique in 2007. The inter-annual variability is mostly due to meteorological variability. For example, there is an increase in the maximum O3 concentration in 2003 due to a heat wave in August 2003. Nevertheless, there are overall decreasing trends over the long term. O3 concentrations, despite large year-to-year fluctuations, decreased by 23 μg m−3 (11.5 ppb), if one compares the averages of the maximum concentrations over the last two decades, i.e., 1996–2005 and 2006–2015). The number of exceedances of the target value remains within the authorized amount (<25 per year); however, the air quality objective is exceeded (8-hour average concentration of 120 μg m−3; Airparif, 2016). The maximum urban background NO2 concentration decreases annually by about 1.4 μg m−3 on average over the period analyzed. The NO2 concentrations are currently below the annual limit value at urban background stations. However, they exceed this limit value at stations located near roadways (Airparif, 2016). The maximum annual PM2.5 concentration has decreased by about 1 μg m−3 per year on average over the past eight years. It is likely that the use of diesel particle filters has contributed to the decrease of fine particle concentrations in Paris. The annual PM2.5 concentration is below the target value of 20 μg m−3 at urban background stations. At near-roadway stations, the limit value of 25 μg m−3 was attained in 2015 (Airparif, 2016). In the case of O3 and the secondary fraction of PM2.5, the contribution of long-range atmospheric transport is important and, therefore, limits the impact of local emission control strategies on the concentration levels of these secondary pollutants in the Paris region.
Figure 15.2. Timelines of concentrations of ozone (O3), nitrogen dioxide (NO2), and fine particles (PM2.5) in the Paris region. Top figure: maximum 8-hour averaged O3 concentration from 1994 to 2015; middle figure: maximum annual NO2 concentration at urban background stations from 1994 to 2015; bottom figure: maximum annual PM2.5 concentration at urban background stations from 2007 to 2015.
15.3 Regulations for Atmospheric Deposition and Global Pollution
Regulations for atmospheric deposition of air pollutants concern primarily the protection of ecosystems, agriculture (crops), and buildings, as well as the protection of public health, which can be affected via the contaminated food chain. Similarly to public health protection in terms of inhalation of air pollutants, one may consider establishing concentration levels in ecosystems that are not to be exceeded. This is the case, for example, for mercury concentrations in fish: concentrations less than 0.3 ppm are considered safe for fish consumption. One may also consider establishing atmospheric deposition fluxes to ecosystems that are not to be exceeded. This is the case, for example, with the definition of critical loads, which correspond to levels below which the atmospheric inputs should not have adverse effects on the ecosystem. However, these critical loads may vary significantly among ecosystems because some may be more sensitive to atmospheric inputs than others.
These objectives (pollutant concentrations or deposition fluxes not to be exceeded) must be translated into air pollutant emission limits. In that sense, three main categories of regulations for air pollution emission controls may be identified:
– Total ban of the emissions of a pollutant. This is the case, for example, for some pesticides, which are now banned in terms of manufacturing and use in some countries (e.g., DDT in North America and Europe).
– Emission limits of some pollutants defined by source categories and to be met by each individual source of a given category. This is the case, for example, for emissions of dioxins and furans from incinerators in France and in the U.S., as well as for the recent regulation on mercury emissions from power plants in the U.S. (Mercury and Air Toxics Standards).
– Overall emission limits of some pollutants for a source category, to be met by the sources of that category as a whole. This system is called “cap and trade” in the U.S. and emission trading in Europe. This is the case, for example, for SO2 and NOx emissions from coal-fired power plants in the U.S., where caps on the emissions of those pollutants were set that are not to be exceeded by the ensemble of coal-fired power plants in the northeastern U.S. This approach has been shown to work well to reduce acid deposition in North America. Figure 15.3 shows the change in the pH of precipitation and the atmospheric wet deposition fluxes of sulfate and nitrate at White Face Mountain in the northern part of New York State. The pH was about 4.4 in 1985 and, 30 years later, it is greater than 5. This significant decrease in the acidity of precipitation results from decreases of about 50 and 75 % in the wet deposition fluxes of nitrate and sulfate, respectively. A regulatory approach based on a cap-and-trade system is best suited for pollutants that have long-range impacts and have negligible local contributions.
In many cases, these regulations are developed at the national or multi-national (e.g., European) level. Nevertheless, there exist some cases of international agreements that are set up to manage air pollution control at the international level. This is the case of course for global environmental problems such as the depletion of the stratospheric ozone layer (see Chapter 7) and climate change (see Chapter 14). In such cases, it is essential that a large majority of countries sign the agreement and meet their commitments. Among the main international agreements pertaining to air pollution, one may mention the following:
– Montreal Protocol of 1987 for the elimination of chlorofluorocarbons and other substances depleting the stratospheric ozone layer (see Chapter 7). This protocol was complemented by the amendments of London (1990), Copenhagen (1992), Vienna (1995), Montreal (1997), Beijing (1999), and Kigali (2016). The last amendment concerns the effect of hydrofluorocarbons on climate.
– Stockholm Convention of 2001, which was elaborated by the United Nations Environmental Program (UNEP) for the reduction of the emissions of persistent organic pollutants (POP) (see Chapter 13).
– Minamata Convention of 2013, which was elaborated by the UNEP for the reduction of mercury emissions (see Chapter 13).
– Göteborg Protocol of 1999, which was elaborated by the Economic Commission for Europe of the United Nations (ECE-UN) for the reduction of the emissions of nitrogen oxides, sulfur oxides, ammonia, and volatile organic compounds to reduce acid deposition, eutrophication, and ozone formation (see Chapter 13).
– Paris Agreement of 2015, which was elaborated during the Conference of the Parties (COP 21) for the reduction of the greenhouse gas emissions (see Chapter 14).
Most international agreements target air pollutants with long atmospheric lifetimes, which, therefore, have health and environmental impacts at a global scale. However, the Göteborg Protocol addresses air pollutants with impacts at regional scales (acid deposition, eutrophication, and tropospheric ozone). This example highlights the fact that an international approach is desirable in terms of harmonization of the regulations, development of common public policies, and monitoring of the impacts of the emission controls on air quality and its environmental impacts. As the previous chapters have shown, air pollution is a complex system to understand and manage in an optimal manner, because it involves complex interactions among a large number of pollutants and across the large spatio-temporal spectrum of atmospheric scales. Therefore, the development of efficient emission control strategies must take into account the complexity of the various multi-pollutant emission/concentration relationships.
Figure 15.3. Evolution of atmospheric acid deposition from 1985 to 2015 at White Face Mountain, New York State. Top figure: pH of precipitation; middle figure: annual atmospheric wet deposition flux of nitrate; bottom figure: annual atmospheric wet deposition flux of sulfate. Regression lines are shown as dotted lines to illustrate long-term trends.
Problems
Problem 15.1 Development of a regulation
A regulatory agency is considering setting some air quality standards for an air pollutant emitted from on-road traffic. The agency hesitates between setting up a standard for near-roadway concentrations and urban background concentrations. Give at least one reason for (1) setting a near-roadway standard and (2) setting an urban background standard.
Problem 15.2 Public policy
Alternate driving was introduced in Paris for one day during an air pollution episode in March 2014 (see Chapters 3 and 9). On that day (March 17), only vehicles with an odd license plate number were allowed to drive (except for some categories of vehicles such as taxicabs and emergency vehicles). The effects of this alternate driving measure were estimated by the local air quality organization, Airparif, as follows:
– Decrease of traffic-related PM10 emissions by 15 %
– Decrease of PM10 ambient concentrations at urban background monitoring stations by 2 %
– Decrease of PM10 ambient concentrations at near-roadway monitoring stations by 6 %
Give an argument for and an argument against the use of alternate driving during air pollution episodes in Paris.