[] TL: GASPING FOR CHANGE (CAR SMOG) SO: Greenpeace UK (GP) DT: 1992 Keywords: atmosphere air smog cars transportation health risks gp / GASPING FOR CHANGE (GP) Vehicle Missions & Health Who Is At Risk Greenpeace UK C O N T E N T S GASPING FOR CHANGE A CLIMATE OF COMPLACENCY A PICTURE OF POLLUTION PEOPLE AT RISK A DETERIORATING FUTURE FRESH THINKING ON AIR MORE INFORMATION GASPING FOR CHANGE The quality of the air we breathe in the UK is deteriorating. Air pollution caused primarily by emissions from motor vehicles is on the rise. As more and more cars pour onto Britain's roads, the health of people is increasingly put at risk from poor air quality. Yet we remain complacent to the threat. Official monitoring of air quality in the UK is pitifully inadequate. So is the amount of medical research into the relationship between air pollution and the prevalence of certain diseases. No studies have attempted to quantify how many people in England are at risk from pollution pumped into the atmosphere every day. To alert policy makers and the public to the growing threat to human health caused by car emissions, Greenpeace commissioned a scientific study to estimate the number of people in England who are at risk from air pollution and where they live. The research concentrated on two dangerous pollutants - ozone and nitrogen dioxide. It used proven methodology developed by the World Health Organization and American Lung Association to identify groups at risk from air pollution. These groups include pre-school children, elderly people, individuals with asthma, pregnant women and unborn babies. Analysis of the geographical spread of different air pollutants was set against morbidity (disease) and mortality (death) data from English regional and district health authorities. Due to the lack of accessibility of data for Scotland, Wales and Northern Ireland, the report was obliged to focus on England alone. However high levels of air pollution have been recorded in all areas of the UK which indicates that cause for concern exists throughout the country. The findings present a devastating picture. More than one in three people are estimated at risk from the adverse health effects of air pollution. The significance of the results cannot be overstated. 19 million people, or 39 per cent of the population, belong to at-risk groups. 3 million are children under 5; 7.5 million are elderly people and 650,000 are unborn babies. Meanwhile, the private motorist - the principal polluter - continues to be given unchecked freedom by official transport policy. Forecasts for the build-up of both traffic and air pollution over the next decade have grim implications for the nation's health. As more is revealed about the extent of the threat to human health from air pollution, people are gasping for change. Gasping to breathe fresher, cleaner, healthier air. This can only come about through tough curbs on car use and a new, stringent approach to air quality standards and monitoring. A CLIMATE OF COMPLACENCY Policy makers and the scientific establishment have become complacent about the state of air quality in Britain today. Forty years after the infamous London smog of 1952 killed 4,000 people, they fail to comprehend and respond to growing air pollution from a new source - car emissions. Back in 1952, the big threat was emissions from stationary sources such as power stations and domestic fires - threats which were tackled with a series of legislative measures. Today the danger is different. The danger is air pollution from mobile polluters, from motor vehicles. Growing scientific evidence suggests this causes adverse health effects to exposed individuals. Car use in Britain is growing dramatically. More traffic is clocking up more mileage on our overcrowded roads. Motor cars, which pump out carbon monoxide, nitrogen oxides and volatile organic compounds, have become the largest single source of ambient air pollution in the UK. Standards for air quality set by the European Community and World Health Organization are frequently exceeded in Britain. In December 1991 the highest nitrogen dioxide levels since records began were recorded in London. Levels were more than double the World Health Organization's one hour guideline.(1) New technology is no excuse The introduction of three-way catalytic converters on all cars by the end of 1992 is often used as an excuse to remain complacent about the dangers of air pollution caused by motor vehicles. Catalysts are a first step in tackling air quality problems, but evidence from the US shows that they are not the solution. In California, where they were first introduced nearly 20 years ago, national ozone level standards are still regularly exceeded. The core problem remains that any benefits of catalytic converters are likely to be offset by the heavy increases predicted for road traffic in Britain over the next two decades.(2) There is also increasing evidence that catalytic converters may not perform as well as claimed, especially in urban areas: ù The catalyst takes a few minutes to reach operational temperature, so emissions are uncontrolled on a significant proportion of cars at any one moment in time. . Urban driving is typified by short, congested journeys in stop-start conditions, when emissions are at their highest. . There is uncertainty over the effectiveness of the catalytic converter over the lifetime of a car. Better monitoring and tighter standards are needed to ensure that older cars do not emit unacceptably high levels of pollutants.(3) The introduction in November 1991 of emissions testing on the annual MOT test in the UK is unlikely to improve matters. This is because the emissions limits are not stringent, there is no testing of nitrogen oxides, and the car is idling during the test which makes it harder to identify which vehicles pump out pollutants in normal use. Greenpeace's view is that technical solutions alone, such as catalytic converters, cannot be relied upon to combat the growing threat from air pollution. To wait for the ultimate green car is a futile exercise: action must be taken now to stop the rate of increase in motor vehicle use. Lack of effective UK research Despite growing concern over the impact of air pollution on people's health, there have been no studies quantifying how many people are potentially at risk from adverse air quality in the UK - until now. Nor have there been many studies examining the relationship between the levels and mixtures of air pollution in this country and the prevalence of certain diseases, particularly those affecting the respiratory tract. Other nations have been more diligent. In the US, the Environmental Protection Agency has estimated the cancer risk of motor vehicle 'air toxics' for a number of years.(4) The Swedish Environmental Protection Agency has recently finalized a research programme to assess the health risk from air pollution.(5) The World Health Organization has also analysed the health impact of air pollution throughout Europe. Its conclusion: millions of Europeans live in areas with air pollution severe enough to cause thousands of premature deaths as well as to leave many more chronically ill and disabled.(6) In Britain, there has been almost no research into air pollution and health for the past ten years. This stems in part from the abolition of the Clean Air Council in 1979 and the Medical Research Council's Air Pollution Research Unit in 1980. A recent report by the Government's own advisers concluded "the UK has lost the lead it once had... there is currently very little research into the health effects of air pollutants in general and ozone in particular underway in the UK".(7) In this context, the launch of this Greenpeace UK report takes on a special relevance in aiming to end a climate of complacency. A PICTURE OF POLLUTION The Greenpeace UK study adopted methodology developed by the World Health Organization and American Lung Association to estimate populations at risk from air pollution. Existing research from California (8) has established that poor air quality affects human health in the following ways: . Aggravates respiratory and cardiovascular illness. . Reduces the lung's ability to exhale air. (9) (Loss of lung capacity is part of the body's natural aging process but exposure to air pollution speeds up this process). ù Damages cells of the airways of the respiratory system. ù Damages the lungs even after symptoms of minor irritation disappear. . Adds stress to the cardiovascular system, forcing the heart and lungs to work harder.(10) ù May contribute to the development of such diseases as bronchitis, emphysema and cancer. The Greenpeace UK study concentrated on two main air pollutants -nitrogen dioxide and ozone. It defined as 'at risk' people in England who are sensitive to the effects of air pollution due to their physical condition, either because of age or existing illness. The at-risk groups are as follows: ù All children up to and including age 14, with children under 5 especially at risk. ù Individuals with asthma. ù Individuals with respiratory disease other than asthma. (11) . Individuals with cardiovascular disease. . People over 65. (12) . Pregnant women and unborn babies.(13) Populations at risk To quantify the size of population groups in England at risk from the effects of air pollution, it was necessary to find out the number of individuals who belong to at-risk groups and establish how many live in areas where they are exposed to high levels of the particular pollutants to which they are susceptible. For example, nitrogen dioxide is particularly dangerous to children and people with respiratory disease, including asthma. Ozone similarly affects those groups, as well as old people. (14) Individuals classified at risk in the study are only those who live in areas where the levels of air pollutants to which they are susceptible exceed internationally accepted guidelines or standards. The European Community air quality standard for nitrogen dioxide and the World Health Organization one-hour guideline for ozone were used for the purposes of the research.(15) To establish the number and geographical location of the individuals at risk, it was necessary to collate morbidity (disease) and mortality (death) statistics from a variety of sources. Access to this data restricted the study to England. Information on groups at risk from ozone was examined on a regional health authority level, whereas for nitrogen dioxide the data was examined by district health authority. Geographical analysis Obtaining a geographical picture of the spread of pollution to calculate how many at-risk individuals live in areas of adverse air quality was complex. There is no central register of which bodies are monitoring which air pollutants in the UK. The Department of Environment has monitoring networks and some local authorities and universities also carry out such work. Yet procedures used vary, the resulting data is not readily available and compiling a comprehensive picture of pollution levels involves piecing together a patchwork of information. The Greenpeace UK study used Department of Environment data on air quality levels in relation to ozone and nitrogen dioxide. Ozone, which is usually monitored in rural areas on a regional basis, can build to high levels during hot, sunny days.(16) Nitrogen dioxide, which is principally a local pollutant with levels increasing with urban traffic density, can build up dangerously during periods of low winds and poor dispersion in winter.(17) The record-breaking episode of nitrogen dioxide pollution in London in December 1991 was a result of such conditions. Although extreme, the incident reflects a pattern of exceedences throughout the country, which posed a health risk to large numbers of people in 1991. PEOPLE AT RISK The results of the study show that more than one in three people in England are at risk from the adverse health effects of air pollution. As motor vehicles are now the main polluters, the official forecasts for more cars and more roads suggest a grim future for the nation's health. The report estimates that: Approximately 19 million people, or 39 per cent of the population of England, are in at-risk groups. These groups include: 3 million children under 5 nearly 6 million children aged 5 to 14 7.5 million elderly people 2 million asthmatics, of whom 700,000 are aged 15 to 64 700,000 bronchitics in the 15-64 age group 650,000 unborn babies. Approximately 18 million people - 38 per cent of the English population - are being placed at risk by ozone pollution. In 1989, people living in the south of England were exposed to ozone pollution levels for twice as long as those living in the north. Nitrogen dioxide pollution increased by 35 per cent between 1986 and 1991. Where levels of pollution have broken EC guidelines for nitrogen dioxide, almost one person in four is in an at-risk group. Approximately 650,000 unborn babies are potentially at risk from carbon monoxide emissions from vehicles each year. What these figures show is that one person out of every three in England is known to be facing a health risk from air pollution. A DETERIORATING FUTURE Given that our research shows that 39 per cent of the population of England is at risk from the adverse health effects of air pollution caused primarily by car emissions, consider these scenarios for the future: Government road traffic forecasts estimate that traffic will increase by between 83 per cent and 142 per cent by 2025.(18) There are currently over 20 million cars in Britain. By 2025 this figure could rise to 35 million. No significant improvement in nitrogen dioxide emissions from heavy duty diesel engines can be expected for several years.(19) - even though 1992 will mark the peak of nitrogen dioxide emissions from cars and there should be some reduction thereafter with compulsory introduction of catalytic converters.(20) Predictions for air quality in London suggest that ground level concentrations of nitrogen dioxide in the year 2000 may only be 5 per cent lower than 1983-84 levels.(21) As 70 per cent of the predicted increase in traffic is forecast to happen after the year 2000,(22) it is likely that thereafter the UK will continue to experience rising air pollution levels - with consequent adverse health effects for people in at-risk groups. Numbers could be greater Disturbing though it is, the estimate of one person in three facing a risk from air pollution is likely to be on the conservative side. This is because of factors which could not be incorporated into this study, but which are worth consideration: There is growing scientific evidence that exposure to combinations of pollutants may increase adverse health effects over and above exposure to a single pollutant.(23) The study assumes that there are no adverse health effects below the air quality standard or guideline used to define polluted areas. Although unavoidable in this kind of exercise, this is an oversimplification: even low levels of air pollution can contribute to poor health.(24) Air pollutants may cause disease as well as exacerbate medical conditions which already exist. The study only considers certain pollutants, which underestimates the total health risks from air pollution caused by cars. Pollutants from motor vehicles such as formaldehyde and benzene have been classified internationally as causing cancer.(25) Certain individuals may be more sensitive to a given dose of a pollutant, even though they are not identified in an at-risk group. They include people taking vigorous physical activity, such as sportsmen and women, people suffering from AIDs and other diseases which damage the immune system, also current and ex-smokers.(26) The study only considers exposure to outdoor pollution. People will still be exposed to high pollution levels indoors, especially from tobacco smoke (carbon monoxide and nitrogen dioxide) and gas cookers (nitrogen dioxide).(27) It should be recognised, however, that not every single person living in polluted areas (as defined by the study) will necessarily be exposed when pollution levels are high. This too is a factor which could affect the calculation of numbers at risk. Problems remain in analysing air monitoring data which is patently inadequate. Not only is air pollution monitored continuously in only a few English towns and cities, but methods used do not provide a realistic indication of how much individuals are exposed while going about their daily lives.(28) SHEFFIELD 'AIR ALERT' Up to the minute air pollution information is a reality at Sheffield, where the City Council established Britain's first early warning scheme. Radio broadcasts inform the public of levels of ozone, nitrogen dioxide and sulphur dioxide in their city, every day at 10.30 am and again at lunchtime. This information also goes out in the local press and is posted up at the Central Library and the Town Hall. Monitoring takes place at two major city centre roads and at a shopping centre. The World Health Organization's guidelines provide the basis for Sheffield's assessment of good, fair, poor, or very poor air quality. Whereas ozone levels rise to 100 ppb (parts per billion) before the DOE describes air quality as 'poor', in Sheffield public health warnings are broadcast for ozone levels over 60 ppb. As well as advising susceptible populations of health risks, 'Air Alert ' discourages car use when pollution levels are high. In a sense, the two problems are intertwined: there continues to be a slack official attitude to monitoring air quality while pollutants from car emissions are on the rise and putting more people at risk. Both problems need to be tackled now. FRESH THINKING ON AIR Air pollution caused by road transport requires fresh thinking and immediate action in two areas: first, initiatives to curb the damaging rise in the volume of traffic and second, steps to improve air quality in the UK. Pulling off the road No single policy will reduce the number of cars on the road and the distance they travel. But a combination of different policies will contribute to a better, cleaner and healthier environment. Greenpeace demands: . More investment in a clean, safe and efficient public transport system. . A city centre ban on cars. . An end to the road-building programme in the UK. . Elimination of subsidies for motorists, and for company cars. . Priority given to cyclists and pedestrians. . A reappraisal of town planning to allow access without dependence on the car. Breathing more easily Improving the quality of air that we are obliged to breathe should be tackled on three main fronts: Air quality standards: ù A standard for all controlled pollutants needs to be set to protect human health. . The World Health Organization guideline on ozone should be adopted in the UK as an initial minimum mandatory standard. Given the international nature of ozone, the UK Government should press for immediate adoption of this standard throughout the European Community. . Similarly stringent standards should be set for carbon monoxide. . Each air quality standard should be legally binding, with real penalties if it is exceeded. Each standard should have a clearly defined timetable for meeting it. Air quality monitoring The Government's current proposals to expand its pollution monitoring network do not adequately address the scale and urgency of the problem: . A nationally co-ordinated system needs to be established with continuing monitoring stations in every city. A bare minimum of one monitoring station for each urban area with a populace of 250,000 is recommended. . Monitoring stations must increase in number in proportion with local population growth. Pollution alerts: . When air quality standards are breached, local authorities should have the legal right to ban cars immediately from affected areas in order to reduce emissions. . There should be more effective dissemination of information about air quality to the general public, with advance warnings when air quality is predicted to be poor. The above recommendations should be put into practice now. Further research should not be used as an excuse to delay action. However, in tandem with action, the following research and public education programmes would be useful to assist in giving us all a better environment in which to breathe: . An investigation by the Medical Research Council into the effects of air pollution on health in relation to different patterns of living and working in different geographical areas. . Detailed studies of the effects of carbon monoxide exposure from air pollution on the unborn child. . An extensive nationwide public information campaign by the Department of the Environment to explain air quality issues. . A public information campaign to enable people to identify whether they belong to at-risk groups and to give advice to those susceptible to particular pollutants on what action they should take during air pollution episodes. References (1) Warren Spring Laboratory, 1992a, Initial Analysis of NO2 Pollution Episode, December 1991, Warren Spring Laboratory, Stevenage. (2) Munday P K, RJ Timmis, C A Walker, 1990, A Dispersion Modelling Study of Present Air Quality and Future NO2 Concentration in Greater London, Report LR 731 (AP)M, Warren Spring Laboratory, Stevenage. (3) Fergusson M, Holman C, Barrett M, 1984, Atmospheric Emissions from the Use of Transport in the UK, Volume One: The Estimation of Current and Future Emissions, Worldwide Fund for Nature, Godalming, Surrey. (4) Carey P M, 1987, The Health Costs of Air Pollution, Technical Report, US Environmental Protection Agency, Ann Arbor, Michigan. Carey P M, J H Somers, 1988, Air Toxics Emissions from Motor Vehicles, US Environmental Protection Agency, Ann Arbor, Michigan. Clement International Corporation, 1991, Motor Vehicles Air Toxics Health Information, Prepared for Penny Carey, Environmental Protection Agency, Ann Arbor, Michigan. (S) Nilsson R, 1990, Assessment of Health Risks Caused By Air Pollutants, Research Programme Support Document by the National Swedish Environmental Protection Board, Report 3891, Swedish Environmental Protection Agency, Stockholm. (6) World Health Organization Regional Office For Europe, 1990, Impact on Human Health of Air Pollution in Europe, Submitted to the Executive Body for the Convention on Long-Range Transboundary Air Pollution, Economic and Social Council, 2729 August, United Nations Economic Commission For Europe, Working Group on Effects, Geneva. (7) Advisory Group Oil the Medical Aspects of Air Pollution Episodes, 1991, Ozone - First Report, Chairman Professor Stephen Holgate, Department of Health, Her Majesty's Stationery Office. (8) State of California Air Resources Board, 1489a, The Air Pollution - Transportation Linkage, How Vehicle Travel on Our Roads and Highways Affects the Air We Breathe, Sacramento. (9) World Health Organization, 1987, Air Quality Guidelines for Europe, Regional Office for Europe, Copenhagen (10) American Lung Association, 1989a, "Breath in Danger" Estimation of Populations At Risk Of Adverse Health Consequences In Areas Not in Attainment with National Ambient Air Quality Standards (NAAQS) of the Clean Air Act, American Lung Association, New York. State of California Air Resources Board, 1989b, Adequacy of State Wide Ambient Air Quality Standards - The Impact of Recent Health Effects Studies, Staff Report, Sacramento. Hoppenbrouwers T, 1990, Air ways and Air Pollution in Childhood: State of the Art, Lung, 168 (suppl): 335-346 (11) American Lung Association, 1989a (see reference 10). (12) American Lung Association, 1989b, Health Effects of Ambient Air Pollution, American Lung Association, New York. (13) Hoppenbrouwen T, 1990 and State of California Air Resources Board, 1989b (see reference 10). (14) American Lung Association, 1989a (see reference 10). (15) European Community, 1985, Council Directive of Air Quality Center for NO2, Official Journal of European Community, L 87, pp 1-7. World Health Organization, 1987 (see reference 9). (16) Department of the Environment, 1991, Digest of Environmental Protection and Water Statistics, No 13 1990, Her Majesty's Stationery Office, London. Broughton G F J, P C Willis, J S Bower, S E Laight, G S Denver, J E Stevenson, J E Lampen, B P Sweeney, J Wilken, A G Clark, P C Willis, B R W Stacey, G S Denver, S E Laight, CJ Wadden, 1492, Air Quality in the UK: A Summary of Results From Instrumented Air Monitoring Networks in 1990/1991, Warren Spring Laboratory, Report No LR 883 (AP), Stevenage. (17) Bower J S, J E Lampen, K J Stevenson, D H F Atkins, D V Law, 1989, Results of a National Survey of Ambient Nitrogen Dioxide levels in Urban Areas of the United Kingdom, Warren Spring Laboratory, Report No LR 726 (AP) M., Stevenage. Campbell G W., Cox J., Downing C E H., Stedman J R. and Stevenson K., 1992, A Study of Nitrogen Dioxide Concentrations in the United Kingdom Using Diffusion Tubes: July to December 1991, Warren Spring Laboratory, Report No LR 893 (AP), Stevenage. (18) Department of Transport, 1989, National Road Traffic Forecasts (Great Britain) 1989, Her Majesty's Stationery Office, London. (19) Royal Commission on Environmental Pollution, 1991, Emissions from Heavy Duty Diesel Vehicles, Fifteenth Report, Her Majesty's Stationery Office, London. (20) Campbell G.W et al, 1992 (see reference 17). (21) Munday P K et al, 1990 (see reference 2). (22) Department of Transport, 1989 (see reference 18). (23) Dockery D W, M Lippmann, J L Mauderly, D Pengelly, M Raizenne, J Samet, R Schlesinger, J D Spengler, Sverre Vedal, 1990, Workshop Oil Health Effects of Atmospheric Acids and their Precursors, Chaired by D Bates and M Utell, sponsored by the American Lung Association, American Thoracic Society, Canadian Lung Association and Canadian Thoracic Society, Santa Fe, March 22-24. National Society For Clean Air, 1992, 1992 Pollution Handbook, National Society For Clean Air, Brighton. Read R, C Read, 1991, Breathing Can be Hazardous to Your Health, New Scientist, 23 February, pp 34-37 (24) Lippmann M., 1989, Health Effects of Ozone: A Critical Review, Journal of the Air Pollution Control Association. (25) International Agency for Research on Cancer, 1989, IARC Monographs on the Evaluation of Carcinogenic Risks to Humans - Diesel and Gasoline Engine Exhausts and Some Nitroarenes, Vol 48, International Agency for Research on Cancer, Lyon, France. Clement International Corporation, 1991 (see reference 4). (26) Health Education Authority, 1991, The Smoking Epidemic, Counting the Cost in England, Volumes 1-14, Health Education Authority, London. Health Education Authority, 1992, personal communication. (27) Hickman AJ, 1989, Personal Exposures to Carbon Monoxide and Oxides of Nitrogen, Research Report 206, Transport and Road Research Laboratory, Crowthorne. World Health Organization, 1987 (see reference 9). (28) Campbell et al, 1992 (see reference 17). Weisel C P, N J Lawryk and PJ Lioy, 1991, 'Exposure to Emissions from Gasoline Within Automobile Cabins', Journal of Exposure Analyses, 1991. State of California Air Resources Board, 1989c, South Coast Air Quality Management District, in Vehicle Characterization Study in the South Coast Air Basin, Final Report, California Air Resources Board, Sacramento. Chan C C, H Ozkaynak, J D Spengler, L Sheldon, W Nelson and L Wallace, 1984, Commuters' Exposure to Volatile Organic Compounds, Ozone, Carbon Monoxide and Nitrogen Dioxide, Air and Waste Management Association. MORE INFORMATION This 'Gasping For Change' report has been prepared by Greenpeace UK as part of its campaign to alert the public to the environmental dangers and threats to human health caused by unchecked car use. An official transport policy slanted towards the private car and a cultural addiction to giving the motorist unlimited freedom at the expense of other members of the community - cyclists, pedestrians, pensioners and children - has resulted in a grim decline in environmental standards and the quality of life. The adverse health effects of poor air quality caused by motor vehicle emissions forms part of this steady deterioration. As this report outlines, one in three people in England are at risk now and predictions for the future are pessimistic. Full scientific report The full scientific report giving the background, methodology, findings and recommendations of the 'Gasping For Change' booklet is available from Greenpeace UK for the price of œ5. If you would like to find out more about Greenpeace UK's work in the area of car use, air pollution and health, or any of its other campaigns, please contact: Public Information, Greenpeace UK, Canonbury Villas, London N1 2PN. Adapted by Jeremy Myerson, from 'Populations At Risk', a report by Andy Rowell, Claire Holman and Saran Sohi, Earth Resources Research. July 1992 ISBNI 871532 56 6 œ2.50