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National Ambient Air Quality

Monitoring Programme 2017-2022

Consultation Paper

October 2016

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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.

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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 1.1 National Ambient Air Monitoring Network 2015

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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 airqualityprogramme@epa.ie 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

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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.