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Updated 6 October 2022
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This publication is available at https://www.gov.uk/government/publications/air-quality-clean-air-zone-framework-for-england/annex-b-general-approach-to-clean-air-zones
1) Clean air zones should be designed to deliver the cleanest possible fleet. The minimum emission standards required for entry into a charging zone without paying a charge are explained in Section 2.4 and detailed in Annex A. These minimum standards represent a good starting point but should not limit ambition. Local authorities may seek to go further where appropriate, for example in the standards used for their public procurement, in local bus partnerships, or in encouraging local business ambition.
2) The government has set a clear long term ambition for all new cars and vans to be zero emission by 2030, and for nearly every car and van to be zero emission by 2035. Local authorities and others should aim to deliver the best possible long term outcomes, which could include setting ambitions for schemes that reflect the very best environmental performance rather than just the minimum emission standards.
3) These minimum standards will be periodically updated to reflect the long term ambition in line with the process set out in Section 2.5.
4) To give certainty that a zone will deliver improvements in air quality, and maintain these, there are several minimum requirements all zones should meet. In implementing a clean air zone, local authorities will need to consider the impact on local residents, and the need for any mitigating measures. They will also need to take action as necessary to support growth and protect the economy of their local high streets and town centres, whilst ensuring that their clean air zone proposals will not result in the displacement of the most polluting vehicles away from town centres to surrounding areas.
5) As a minimum any clean air zone is expected to:
6) Clean air zones should involve engaging and informing the community to ensure they understand the importance of good air quality, the choices available to them, the impacts they make and how these contribute to a successful zone.
7) Clean air zones should be development and implemented in line with each local authorities’ duties under the Public Sector Equality Duty (PSED). Paying due regard to the need to:
8) More detailed guidance on the PSED is available from the Local Government Association and the Equality and Human Rights Commission. We would however expect local authorities to ensure they have a detailed understanding of the relevant location and its population. Clean air zones have the potential to significantly improve the life chances and quality of life of many people who share particular characteristics – for example, anyone with breathing difficulties, such as some disabled or older people, or those who may develop them, such as children.
9) We do not prescribe a particular approach, however, local authorities may consider it prudent to prepare an equalities impact assessment in line with the approach suggested in section 9 of the Equality Framework for Local Government to help inform, guide and shape the development of their clean air zone.
10) Such an assessment would include, but not be limited to
11) People are more likely to become engaged with, and supportive of initiatives, if they have first-hand experience of the problem and if action to address it is highly visible.
12) Raising awareness and understanding of air quality issues, their impact and the need for action is therefore an important part of delivering a successful clean air zone, as is visibility of both the zone itself and the solutions on offer.
13) When introducing a clean air zone, it is important to raise awareness of both the impacts of poor air quality and the action that can be taken to address them. It is important to do these two things together to ensure people feel empowered to take action. This will be an important part of publicity around a zone to enlist the support of people and communities.
14) Demonstrating progress and maintaining engagement is also important. Air pollution can be substantially improved if decisive action is taken on emission sources. If pollution sources are removed, air quality will improve and will stay that way so long as the emission sources do not return.
15) There are a range of forms that such activity might take, making use of social, local, and other media, and scope for innovative ways of engaging the public and business.
16) Campaigns should help highlight the health and environmental benefits and stimulate action by demonstrating alternatives and ways people can reduce and avoid pollution. Examples of activity might include:
17) Campaigns should also seek to offer, for example, ways to reduce pollution including information about public transport alternatives, advice about cycling and walking, and local cycling and walking maps and apps to find alternative routes. Directors of Public Health should also be engaged in the development and implementation of clean air zones by advising on health impacts and messages and encouraging local public health networks to engage in awareness raising activities.
18) One of the most powerful routes to publicise the clean air zone is to make it physically exist ‘on the ground’. As a minimum requirement there must be traffic signing strategies in place along major access routes and at entry points to clearly delineate the zone, and alternative routes for those who wish to divert around it. This will be essential for all types of zones.
19) One of the key elements of the zone is giving people and businesses choices on how to act. It is important that they are given sufficient time to make these choices and put them into action. The details of a zone should be announced as far in advance as possible and publicised widely. As zones have a strong focus on transport, those living or working outside the zone will also need to be made aware.
20) An important part of developing understanding and maintaining a focus on the aim of a clean air zone will be monitoring its impacts and ensuring it is achieving its objectives for NO2 and other pollutants. Local authorities will need to undertake appropriate monitoring and assessment of air quality levels, and on changes in driver behaviour, in order to evaluate whether the measures implemented are having the anticipated impact, need adjusting, or are still needed if they have achieved their air quality improvement outcomes. Where air quality has improved to the level required and there is evidence that this improvement would be maintained, the government expects local authorities to consider whether to remove the elements of the zone that are no longer required at the earliest opportunity.
21) Local Air Quality Management Technical Guidance (TG16) provides advice on the monitoring options available, the considerations to bear in mind to obtain value for money and what the monitoring aims to achieve. London has its own technical guidance LLAQM (TG19) . For NO2, two technologies have been approved – the reference method (chemiluminescence) and diffusion tubes. Significant variation in performance quality has been found between these technologies and local authorities should use measurement techniques with sufficient accuracy and precision for the intended purpose. For example, improvements in diffusion tube performance have been achieved in the UK Urban NO2 Network using enhanced tubes deployed in triplicate. It should be noted JAQU does not currently support the use of low-cost sensors for evaluation.
22) A clean air zone supports local plans for growth. The zone will become part of, and fit with, local strategies, plans and policies and transport plans. There will be clear leadership in delivering the goals of the zone including by local authorities and other public bodies ‘leading by example’ across the different themes.
23) Appropriate approaches to traffic management in clean air zones can help reduce pollution both by helping to reduce traffic and/or smooth traffic flow, encourage more active travel and support alternative ways of travel. It can help improve the experience for those cycling and walking, improve journey times and encourage the use of public transport. Options may include:
24) Local authorities and other public bodies can demonstrate leadership both to business and their local community in the way they act and operate. This can be particularly true in the vehicles they buy, the way they operate, and the requirements placed on contractors.
25) Local authorities and other public bodies operating within a clean air zone should ensure the fleet they operate, or is operated on their behalf, in a clean air zone, and ideally in the wider authority, meets the standards for the zone. There is also an opportunity to demonstrate how new technologies and approaches can go further than the standards. The use of ULEVs, alternative fuels and approaches to ‘grey fleet’ (that is, vehicles owned by employees used for business travel) can all demonstrate a lead. This might include working with their staff on engagement and incentive schemes to reduce vehicle use, such as car clubs and car sharing schemes, cycling incentives and facilities, or flexible working practices.
26) In procuring vehicles and services operating in a clean air zone, local authorities should:
27) All central government departments and their related organisations must ensure that they meet Government Buying Standards when buying goods and services for those product groups covered. The transport standards set out minimum and best practice award and operation criteria for various vehicles. The standards are in line with clean air zone requirements.
28) Through the Local Air Quality Management system local authorities are required to assess air quality in their area. They should designate an Air Quality Management Area (AQMA) if improvements are necessary to meet national air quality objectives, and they should produce an air quality action plan describing the pollution reduction measures they will put in place to ensure national pollutant objectives are met. Declaring an AQMA is a statutory obligation under the Environment Act 1995.
29) The designation of an AQMA does not mean that a clean air zone also needs to be put in place. Local authorities will need to take into account the particular circumstances and the nature of the pollutant(s) the AQMA is seeking to address when making decisions about which measures to put in place to improve air quality. A clean air zone may be just one of the solutions. Should a a local authority want to consider implementing a clean air zone, or any other kind of access restriction, it will need to take account of any impacts on any AQMAs outside the zone as well as other areas, for example through displacement of vehicles.
30) Local Air Quality Management Policy Guidance (PG16) sets out more details of these requirements, and actions that authorities may consider. The guidance has been designed to maximise the public health benefits of local authority action, in particular on priority pollutants such as NO2 and particulate matter (PM10/PM2.5). Local authorities should consider the advice in this guidance alongside this framework.
31) It is important for local authorities to work closely with others with an interest in the area concerned to ensure a joined-up approach, and to coordinate their approaches internally, utilising their environment, health and transport expertise. For example: carbon reduction and climate change mitigation; supporting active travel and other approaches to health improvements; reducing traffic congestion; noise abatement; and improvements to the natural environment all contribute towards cleaner air.
32) Local authorities should therefore consider the range of stakeholders they may need to engage with both in and beyond their immediate locality:
33) Where the most practical boundary for a clean air zone crosses local authority boundaries or responsibilities, authorities should work together from the earliest opportunity on the development and implementation of the zone. Administrative boundaries should not become an artificial constraint on the area of a zone where this would deliver a poorer outcome or risk negative impacts that could otherwise be mitigated.
34) Where a clean air zone may involve the need to consider and/or address the impact of traffic from the Strategic Road Network, discussion with Highways England should be commenced at the earliest opportunity. Highways England has committed to support and work in partnership with local authorities exploring how to deliver zones.
35) Clean air zones help businesses to grow sustainably through making cities attractive and healthy places for their employees and customers, and so can contribute to improved profitability.
36) Businesses can play an important role in improving air quality through both how they operate and through influencing their employees’ behaviour. Improving air quality should be considered an important part of corporate responsibility and sustainability. Businesses which make improvements should be supported and rewarded for their action creating a virtuous circle where the city becomes an attractive place for businesses and their customers.
37) Local authorities should work with local businesses to explain the aims of a zone and encourage the uptake of programmes to address air quality. Authorities should encourage businesses to take a lead and work with their local communities. This may include:
38) There may be opportunities to develop focused local business initiatives. For example, working with local fora such as Chambers of Commerce. Clean air neighbourhood schemes can bring large companies, SMEs and local communities together to undertake measures to support the aims of the clean air zone. Developing fora for local business sectors such as freight companies can allow the sharing of best practice and develop action.
39) Local authorities should also consider the role of incentive schemes to provide an opportunity to reward business. These may range from ‘High Street’ or local award schemes to recognise clean air zone friendly businesses, through to preferential business rates if they can demonstrate strong commitment and action in support of the ambitions of a clean air zone.
40) Eliminating unnecessary journeys will improve air quality but can also improve the efficiency of business operations and reduce costs. There are a range of actions which could be taken. Examples might include:
41) A clean air zone provides sustainable long-term improvements in air quality that can be maintained as cities grow and develop. Increasing use of ULEVs or, where these are not yet appropriate, alternative low emission fuels, will ensure that improvements in air quality are sustained. They support innovation and facilitate the wider use of successful solutions.
42) Clean air zones make it easier and more worthwhile for individuals and businesses to switch to ULEVs.
43) Clear policies to facilitate use of ULEVs in clean air zones together with active support and incentives can help more people to move to these types of vehicles.
44) Local authorities should ensure their relevant strategies and policies are consistent with, and support the use of, ULEVs in clean air zones. For example, transport plans; in preparing local plans and policies, local planning authorities should take into account the National Planning Policy Framework (NPPF). They should ensure plans and policies are consistent with the principles and policies set out in the NPPF, including those for greenhouse gas emissions and sustainable transport. For example, through facilitating planning developments to incorporate facilities for charging plug-in and other ultra low emission vehicles where practical.
45) Promotion and demonstration schemes both to the public and to particular sectors or business groups likely to be affected by clean air zones, such as taxi drivers, can showcase technologies and allow people to become more familiar with ULEVs. This might include demonstration and test drives, together with advice on use, the business case, and the financial incentives available.
46) Ensuring that clean air zones provide ‘in use’ incentives for ULEVs should also help incentivise drivers affected by clean air zones to choose ULEVs in any decisions about buying a new vehicle. This may take the form of priority access or benefits for ULEV use, including:
47) As the use of ULEVs rises over the longer term, local authorities will need to review these types of priority access measures regularly. It will be important to ensure that, as the use of ULEVs increases, these type of measures continue to be appropriate and do not have congestion impacts and take account of the differing needs of all road users.
48) Where compatible with other requirements such as noise and safety, local authorities could consider giving other exemptions to vehicles operating with zero tailpipe emissions within the zone, such as allowing night-time delivery or delivery access to pedestrian areas.
49) Clean air zones provide opportunities to use a transition to ULEVs as a driver for improving or introducing new services and to focus the provision of supporting infrastructure. Together with engagement and raising awareness in local communities and businesses about the aims and ambitions of the zone, and the alternative public transport options, it will help further reduce emissions.
50) Consistent with setting a lead in procurement of vehicles and operations, local authorities should ensure that the local services they provide that operate in a clean air zone are consistent with and, where possible, go beyond the standards for a zone. This may include:
51) Local authorities should also work in their local communities to encourage innovative approaches to reducing vehicle use in clean air zones and increase cooperation between local businesses. This may include:
52) Local authorities in clean air zones should also ensure the provision of suitable infrastructure in support of ULEV use within clean air zones, either directly through policy approaches, consideration in their investment/low emissions development strategies or engaging with local businesses. At the same time, they should highlight this provision to users. This may include ensuring provision of:
53) Local authorities could also consider the provision of suitable infrastructure as part of evaluating alternative fuels (for example Liquefied Petroleum Gas or Liquefied and Compressed Natural Gas) and if proven to deliver air quality benefits to support their wider use.
54) A clean air zone is at the forefront of innovation providing an opportunity to help business and academia to evaluate new technologies and, once proven, support their wider use.
55) Local authorities can use the provision of clean air zones to support academia and business in trialling innovative approaches to improving air quality. New technologies and innovation can provide growth opportunities for the UK and for local businesses. It is important that such approaches are evidence based, focused on evaluating the impacts (costs and benefits) of the innovation and support the aims of the clean air zone.
56) Local authorities can facilitate the exploring of new air quality solutions and help in the evaluation of their potential future benefits once further development work has been undertaken. This may include working with business and academia to:
57) Where local authorities are uncertain of the potential applicability of new technologies or approaches to delivering clean air zone aims, the Joint Air Quality Unit can assist them in assessing suitability. Queries should be addressed to JAQUCommunications@defra.gov.uk.
58) There is a broadening spectrum of UK transport energy sources, and innovations are likely to continue in coming years. Although the government is clear that the goal is for zero tailpipe emissions through the use of electric of motors, several alternative energy sources (such as Compressed Natural Gas/Liquefied Natural Gas/Liquefied Petroleum Gas) have also been identified as having the potential to reduce pollutant emissions and as such could be considered for evaluation by local authorities as part of their clean air zone planning.
59) Local authorities considering evaluation and use of alternative energy sources should look for evidence of significant air quality improvements whilst ensuring that other negative environmental impacts (such as increases in greenhouse gas emissions) are minimised or reduced. As emission benefits from alternative energy sources can vary depending on the type of vehicle, the nature of their use and their operating conditions, local authorities should look for evidence of air quality improvements from comparable situations. Depending on the nature of solution being proposed some of this evaluation may be readily available or local authorities could partner with business and academia to help evaluate the technology.
60) The level of support for alternative fuels will depend on the individual business case and might take into account elements such as: opportunities for alternative emission reduction mechanisms; current fleet and how it is used; existing infrastructure; etc. Some alternative energy sources are likely to have the greatest benefit in adapting older, more polluting vehicles.
61) Many of these alternative energy sources will have benefits beyond air quality. If a local authority chooses to support alternative energy sources as part of its clean air zone, it would be beneficial to gather evidence on the wider environmental impact, including both air quality and greenhouse gas emissions. Other benefits such as changes to noise or the driver/passenger experience could also be recorded. This can then be used to aid future decision making both locally and more widely.
62) The action local authorities could consider if wishing to support alternative energy sources could include (but is not limited to) consideration of fuels used in local authority fleets, facilitating refuelling infrastructure through the planning process and gathering evidence of environmental benefits.
63) Where local authorities have conducted evaluation of alternative fuels, they should aim to disseminate their findings to other authorities. The Joint Air Quality Unit can assist in this. In 2018 the Department for Transport published the outputs of the Transport Energy Model. The model provides a clear assessment of the relative environmental impacts, including on greenhouse gas emissions and air quality, of a range of alternative fuel and powertrain options for cars, vans and heavy goods vehicles.
64) A clean air zone has immediate impacts on levels of pollutants such as nitrogen dioxide and particulate matter. A zone can bring health benefits from the outset, which increase over time.
65) There should be a clear link between the objectives of a clean air zone and local health objectives, and local authorities should consider reflecting those links within local public health and partnership statements (such as Joint Strategic Needs Assessments and Health and Wellbeing strategies).
66) A clean air zone results in direct actions to reduce emissions within the zone. These can be focussed on particular locations such as bus depots, behaviours such as idling, sites with particular emission problems and through working with specific local businesses.
67) Unnecessary engine idling can contribute to emissions. Local authorities may consider action on idling as part of communications activity and/or using their existing powers to tackle issues of engine idling on public roads. Local authorities are able to issue Fixed Penalty Notices of £20 to drivers idling unnecessarily, with no designation from DfT necessary. These powers apply equally to buses, taxis, commercial vehicles and private cars. Some local authorities have taken an exclusively educational approach, by warning drivers about the air quality impact of idling. Enforcement of education efforts can be focussed on areas where idling is known to be an issue, for example outside schools or at taxi ranks.
68) The Traffic Commissioner has powers to issue Traffic Regulation Conditions at the request of local authorities. Local authorities may consider requesting the use of these powers to restrict idling at specific locations for buses. The Traffic Commissioner can also place anti-idling conditions on operating centres for freight vehicles in certain circumstances.
69) Non-road mobile machinery (NRMM) comprises mobile equipment not directly related to the transportation of passengers or goods, such as excavators, bulldozers and cranes used in construction. The engines in this type of machinery can emit significant pollutants, depending on their age and the emission standard. This may be particularly relevant to machinery being used on construction sites.
70) Local authorities may wish to seek agreements with business on minimum emissions standards for NRMM to be used within their clean air zone. As a minimum, agreements might aim to use engines at stage IIIB or agree higher standards or to use electrically powered equipment where practical.
The dates by which engines need to comply with certain stages vary depending on engine size and category. The dates for stage IIIB are as follows: for engines 130kW ≤ P < 560 kW, Jan 2011; for engines 56kW ≤ P < 130 kW, Jan 2012 and for engines 37kW ≤ P < 56 kW, Jan 2013.
Full details of the various emission stages and limit values applicable to NRMM can be found in the NRMM Directive (97/68/EC). On the 1st January 2017 the NRMM Directive was replaced by a new EU Regulation (2016/1628/EC). It has introduced a new emissions stage (Stage V) which has set more stringent limits but does not begin to affect the placing on the market until 2019. Although the Regulation repealed the Directive elements of it still remain valid until all aspects of Regulation take effect which will not be until end of 2021.
However, some NRMM is likely to be specialist and not always at an appropriate standard therefore local authorities will need to take these types of issues into account in working with businesses to agree an approach.
71) A local authority may further consider using the land use planning system to address emissions in clean air zones from such machinery via the development of Supplementary Planning Guidance and planning conditions relating to the construction phase of the development.
72) Where a clean air zone is close to a port, there may be emissions associated with its direct operation and the traffic to and from the location. How to address these types of emissions will depend on the particular circumstances. Many of the approaches outlined elsewhere in this framework, such as on improving the business environment, will support raising awareness and reducing vehicle mileage of businesses and others using ports and their facilities. Local authorities should look to work closely with port operators, as well as continuing to tackle other significant sources of emissions in the development of a zone. This may include:
73) Some generators have very high NOx emission rates (particularly diesel generators, but also some gas generators) and their use is increasing in response to energy market incentives. Emissions can be sufficiently high that they lead to breaches of legal limits for NO2. Within clean air zones, local authorities should consider the air quality impact of plants of this nature that are subject to planning permission and set conditions that safeguard local air quality; businesses requiring back-up power supplies should be encouraged to source plant with low emissions or no emission alternatives whenever possible, and testing hours should be restricted to the minimum required to ensure the safe running of the back-up generator. Businesses and air quality officers in local authorities should work together to identify appropriate times to test generators to reduce the risk of high local NO2 concentrations.
74) Smoke from wood and coal burning appliances contributes to particulate matter emissions. Evidence suggests that emissions of PM10 and smaller can have detrimental effects on health. Small particles from smoke, soot and dust can get into the lungs and blood and be transported around the body. clean air zones can provide the opportunity for local authorities to encourage the use of cleaner, more modern technology and quality fuels in order to minimise emissions. This can include:
75) Clean air zones can also provide the opportunity to encourage the use of low NOx boilers in domestic and business premises within the area. Through engagement with local communities, local authorities can seek to raise awareness of the energy efficiency and air quality benefits of newer equipment. Local authorities can encourage business and others, when considering upgrading or replacing such equipment, to explore newer or alternative technologies, and to encourage their efficient use.
76) A clean air zone encourages the voluntary use of more sustainable and active travel that, in turn, can improve people’s health while cutting air pollution.
77) This theme also strongly links to awareness raising and gaining acceptance of the zone. There are a range of opportunities that will also provide a link across a number of the themes in this framework. This may include:
78) On 28 July 2020 the Prime Minister launched ambitious plans to boost cycling and walking, with a vision that half of all journeys in towns and cities are cycled or walked by 2030. This includes a £2 billion package of funding for active travel over the next five years, which is the largest amount of funding ever committed to [increasing cycling and walking in this country.
79) Barriers to greater active travel, including concerns regarding safety, need to be addressed to enable increased uptake. The government published updated cycle infrastructure design guidance in July 2020 (Local Transport Note 1/20) for local authorities, with the aim of improving quality, accessibility and safety of local cycle infrastructure schemes.
80) Potential action includes:
81) E-cycles can also provide an easy zero emission alternative for some journeys. Local authorities should also seek to support an increase in the relative share of e-cycles.
82) Clean air zones encourage the cleanest vehicles to operate within the zone, changing the overall fleet mix to be less polluting with knock on benefits outside the zone.
83) As well as encouraging uptake of new cleaner vehicles, local authorities can also consider incentives to support improvements in existing vehicles. This can particularly be targeted towards those vehicles that it might otherwise be costly to upgrade such as specialist vehicles. Examples include:
84) As part of the introduction of a zone, local authorities should consider using existing powers to raise the standard of buses, taxis and private hire vehicles within their area. In particular, local authorities, together with relevant transport and licensing authorities, should consider:
85) Cities such as Oxford, Norwich and Brighton have introduced the equivalent of a non-charging zone for buses. Several licensing authorities have set emissions limits for taxis and private hire vehicles.
86) Operating a clean air zone in this way would provide a route for local authorities to deliver benefits by supporting behaviour change without imposing direct financial burdens. As such it could also be linked to a range of actions, such as those set out in Section 2, and encourage individuals and businesses across all vehicle types to think about the modes of transport they use and what type of vehicles they purchase.
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