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Wigan Council’s response to a changing climate
Wigan Council Environment Directorate
1
CONTENTS
Section 1 Section 2 Section 3
Introduction Legislation and Air Quality and
Guidance Climate Change
Section 4 Section 5 Section 6
Transport and The Impact of COVID-19 Action Plan Framework
Climate Change on transportation and air and Development
quality
Section 7 Section 8 Section 9
Governance of the Layout of the Our Air Quality and
Action Plan Action Plan Transport Action Plan 2021-
2026
“PROTECTING OUR FUTURE TOGETHER”
2
FOREWORD
COUNCILLOR PAUL PRESCOTT
Portfolio Holder for Environment
“The action plan Within Wigan, we are proud of our improve air quality, reduce the impacts of
highlights existing borough, its parks, woodlands, wetlands climate change, increase the amount of
measures as well as and green spaces. This means that people using greener travel and increase
new initiatives, both two thirds of the borough is expansive connectivity across the borough. We have
which demonstrate the countryside for us all to enjoy. We are one already achieved so much, but we have
Council’s commitment of the largest boroughs within Greater a huge challenge ahead of us in order
to tackling poor air Manchester, with an increasing demand to positively impact air quality creating
quality. We will work for housing and travel infrastructure to healthier environments for the people of
with external partners support the lives of our residents and our borough.
and stakeholders communities.
The action plan highlights existing
collaboratively to reduce
The challenge we face is to meet this measures as well as new initiatives,
pollution across the
growth without increasing air pollution. both which demonstrate the Council’s
borough.”
We know that polluted air can affect our commitment to tackling poor air quality.
health, especially our children and older We will work with external partners and
or vulnerable adults, but it can also have stakeholders collaboratively to reduce
an adverse effect on our local economy. pollution across the borough. We want to
Key to addressing these impacts is make sure that public services, residents,
implementing robust actions designed to communities, businesses and schools in
prevent or reduce harmful emissions to the borough can work together to make
air, such as providing increased access to the small but significant changes needed
sustainable transport for our residents. to create a clean, green place that we all
look after and enjoy.
As part of our conversations during the
Big Listening Project we know that our I am pleased to endorse Our Air Quality
residents and communities care about and Transport Action Plan, created to
their local environment and, as part of achieve the ambitions of the Outline
The Deal 2030, we pledged to work to Climate Change Strategy.
3
FOREWORD
JULIE MIDDLEHURST
Chair of the Air Quality and Transport Working Group
“Wigan Council is Poor air quality is the largest development of our local Our Air Quality
committed to maintaining environmental risk to the public’s health, and Transport Action Plan we pledge to
good standards of and therefore, taking action to improve work with residents, communities, schools
air quality across the air quality is crucial. Whilst air quality and businesses to deliver our ambitions,
borough, but we cannot has generally been improving over time, alongside enabling and empowering them
achieve this alone, particular pollutants remain a serious to take their own actions.
everybody has a role concern.
We recognise that the COVID-19 pandemic
to play in improving air
You can’t always see it, but air pollution is has forced us to change many aspects of
quality. “
all around us. We breathe harmful gases our lives, however, we have also seen the
and tiny particles deep into our lungs, with benefits of reduced congestion and an
some of the smallest particles passing increased use of our green spaces. Whilst
into our bloodstream. Long-term exposure this has led to reduced air pollution in the
may contribute to the development of short term, it is unknown if there will be
cardiovascular or respiratory disease any long-term air quality benefits. We want
and may reduce life expectancy. The to build on the lessons we have learned
youngest, the oldest, those living in areas during the pandemic to help realise lasting
of deprivation, and those with existing gains in air quality.
respiratory or cardiovascular disease are
This action plan is an opportunity for us all
most likely to develop symptoms due to
to think about small steps that we can take
exposure to air pollution.
to have a positive impact on the quality of
In Greater Manchester, road transport is our air in our borough:
responsible for approximately 80% of NO2
• Can we change the way we travel, by
concentrations at roadside, of which diesel
walking, cycling, or taking the bus or
vehicles are the largest source. We have
train?
been working with colleagues in Greater
• Can we park away from schools and
Manchester to improve air quality at a
walk the rest of the way, or can we
regional level through the joint Clean Air
leave the car at home and walk to
Plan aimed at bringing NO2 levels on local school?
roads within legal limits and we want to
• Can we plant a tree in our garden, our
continue this good work at a local level.
school or at our workplace?
Wigan Council is committed to maintaining • Can we save energy at home by
good standards of air quality across the turning off lights and not leaving our
borough, but we cannot achieve this alone, appliances on standby?
everybody has a role to play in improving We must be ambitious in our work in this
air quality. We know that air quality and area, if we are to protect the health of
climate changes are issues that many of those who live, work and visit our borough.
us are concerned about and through the
4
ACRONYMS AND ABBREVIATIONS
AQAP............................................................Air Quality Action Plan
AQMA...........................................................Air Quality Management Area
AQ&T............................................................Air Quality and Transport
CAZ..............................................................Clean Air Zone
EV................................................................ Electric Vehicle
GM...............................................................Greater Manchester
GMLAs.........................................................Greater Manchester Local Authorities
LAQM...........................................................Local Air Quality Management
LA................................................................Local Authority
LTS...............................................................Local Transport Plan
NO2. .............................................................Nitrogen dioxide
NOx..............................................................Nitrogen oxides
PM10.............................................................Particulate matter less than 10 micron in diameter
PM2.5............................................................Particulate matter less than 2.5 micron in diameter
5
SECTION 1 : INTRODUCTION 6
1.
INTRODUCTION
Like many areas of towns within the UK, up actions, using resources effectively to
Wigan has areas of the borough that suffer generate positive outcomes. Air quality
from poor air quality. This document is benefits can be realised in the present,
‘Our Air Quality and Transport’ (OAQ&T) in the form of improved public health
Action Plan, designed to bring together and environmental improvement, whilst
a robust plan with well-developed and the benefits of reducing greenhouse gas
effective actions to reduce emissions from emissions will be felt decades into the
transport and other sources with the aim future.
of improving air quality and public health
The action plan is split into two sections.
within the borough.
The first provides the background for
There are many sources of air pollution Wigan borough’s actions on air pollution
“There are many sources within the UK, from the large-scale and sustainable transport and looks at
of air pollution within the emissions produced by power stations, the legislative and environmental drivers
UK, from the large-scale agriculture and industry to vehicle behind the actions, the current picture
emissions produced emissions and the burning of wood and in Wigan and how the action plan was
by power stations, fossil fuels in open fires and stoves in developed. The second section is a table
agriculture and industry domestic homes, many of our day-to-day of measures detailing high level actions
to vehicle emissions and activities have an impact on the quality of aimed at encouraging behaviour change,
the burning of wood and the air we breathe. improving infrastructure for sustainable
fossil fuels in open fires transport and reducing pollution at source.
Transport is a significant source of
and stoves in domestic
emissions in the UK and one of the To ensure interventions are directed
homes, many of our day-
immediate challenges is to reduce where they are most required, actions
to-day activities have an
emission of nitrogen oxides in the areas are split into four themes; communities,
impact on the quality of
where concentrations of these gases businesses, schools and council services.
the air we breathe.”
exceed legal limits. It is essential to look By being clear on our priorities, we can
at transport in parallel with air quality if focus on them and realise them more
we are to tackle the impacts of air quality effectively. Air quality is something that
on climate change and therefore, we have the Council cannot tackle alone, we need
chosen to develop an action plan which everyone’s help to ensure that the air we
considers these two areas. breathe in Wigan borough is clean, safe
and healthy.
OAQ&T is one of the six themes of Wigan’s
Outline Climate Change Strategy1 and this
action plan has been developed to achieve
the aims set out within the strategy. Air
quality and climate change are inextricably
linked and an integrated approach is key to
developing a strategic plan to address air
quality and climate change through joined
1
https://www.wigan.gov.uk/Docs/PDF/Council/Strategies-Plans-and-Policies/climatechange/Outline-Climate-
Change-Strategy.pdf
7
2. LEGISLATION AND GUIDANCE 8
2.1
AIR QUALITY LEGISLATION AND GUIDANCE
The development of air quality legislation in the 1950’s It is followed by the Environment Bill, which at the time
was largely influenced by smog experienced in cities. of writing is going through parliament. Should it become
Due to early these legislative controls the UK no longer enshrined in law, Schedule 11 of the Environment Bill
experiences high levels of smoke and Sulphur dioxide amends Part 4 of the Environment Act 1995 and sets out
and the emphasis has changed to focus on problem areas changes to the local air quality management framework.
within local authorities. Part IV of the Environment Act Relative to this body of work, it strengthens the duties
1995 requires all local authorities in the UK to review of local authorities to prepare action plans for those
and assess air quality in their area, and the Air Quality ‘designated areas’ by inserting Section 83A into the
(England) Regulations 2000 set national objectives for Environment Act 19952. It also includes powers to recall
air pollutants. If any standards are being exceeded or motor vehicles that do not meet relevant environmental
are unlikely to be met by the required date, then that standards. The introduction of this bill will have an impact
area should be designated an Air Quality Management on the action plan and it will be revised and updated
Area (AQMA) and an Action Plan developed to tackle accordingly.
exceedances.
Alongside the clean air strategy, Public Health England
The UK has several other legislative tools that can be used produced a comprehensive review of interventions to
to control specific areas of air pollution and nuisance, improve outdoor air quality and public health aimed
such as the Clean Air Act 1993, Environmental Protection at Local Authorities. The general approach to the
Act 1990, Environmental Permitting Regulations 2010 and interventions, is widely acknowledged, that it is better to
the Road Traffic (vehicle emissions) Regulations 2002. reduce air pollution at source rather than mitigating the
consequences. This hierarchy of interventions is central to
Most recently, in 2019, the UK Government published the
the approach taken to deal with air pollution within Wigan
Clean Air Strategy that outlined the ways in which it would
Council’s OAQ&T action plan.
reduce pollution and improve health.
Figure 1: Illustrated Pollution Hierarchy3
2
https://publications.parliament.uk/pa/bills/cbill/58-01/0220/200220.pdf
3
https://assets.publishing.service.gov.uk/government/uploads/system/uploads/attachment_data/file/937341/
9 Principal_interventions_for_local_authorities-air_quality_public_health.pdf
2.2
TRANSPORT LEGISLATION
Our Five-Year Transport
AND GUIDANCE
At a local level, the key drivers towards The Delivery Plan has been prepared to
Delivery Plan supports sustainable transport are the Greater respond to the transport opportunities and
the implementation of Manchester Transport Strategy 2040 and challenges facing Greater Manchester, in
Our Network, a ten- Delivery Plan, which have recently been parallel with spatial planning development.
year plan to create an refreshed and updated to support spatial
integrated, modern and Our Five-Year Transport Delivery Plan
planning development.
reliable London-style supports the implementation of Our
transport system for The Greater Manchester Transport Network, a ten-year plan to create an
Greater Manchester. It Strategy 2040 aims to establish a fully integrated, modern and reliable London-
brings together different integrated, high capacity transport system style transport system for Greater
modes of public transport for Greater Manchester, with travelling Manchester. It brings together different
- bus, tram, rail, tram- customers at its heart, taking advantage of modes of public transport - bus, tram, rail,
train and cycling and the opportunities afforded by devolution to tram-train and cycling and walking - in
walking - in an integrated, take a much bolder and longer-term view an integrated, easy-to-use system with
easy-to-use system with of our transport needs. seamless connections, and simplified
seamless connections, ticketing and fares.
The strategy has seven core principles
and simplified ticketing
outlined to the left. One of these is to At a National level, some of the
and fares.
increase the quality of urban areas and fundamental drivers are the Governments
natural environments, with transport ambitious 2050 net zero target for carbon
emissions reduced to near zero and emissions. As part of this they are phasing
new transport schemes delivering out the sale of new petrol and diesel
Integrated
environmental enhancements whenever vehicles by 2030, with all new cars to be
Well
Maintained Inclusive possible. zero emission at tailpipe by 2035. £1.3
and resilient
Our billion has been allocated to accelerate
Customers It sets out our ambition to improve our
the roll out of charge points for electric
Residents transport system so that by 2040, 50%
Businesses vehicles in homes, streets across the UK
Safe and
Healthy of all journeys in Greater Manchester
Secure Visitors and motorways in England4.
are made by public transport or active
Environmentally
travel, supporting a reduction in car use Alongside this will be investment in
Reliable Responsible
to no more than 50% of daily trips. This innovative clean technology and grants
will mean one million more sustainable for zero or low emission vehicles. Green
journeys every day in Greater Manchester number plates were introduced in
by 2040, enabling us to deliver a healthier, December 2020, to increase awareness of
greener and more productive city-region. cleaner vehicles and help local authorities
bring in new incentives for owners. The
The Greater Manchester Five Year
Air Quality and Transport action plan
Transport Delivery Plan sits alongside the
considers the implications of these
Greater Manchester Transport Strategy
initiatives measures will support and
2040. The two documents form the
strengthen these aims.
Greater Manchester Local Transport Plan.
4
www.gov.uk/government/news/government-takes-historic-step-towards-net-zero-with-end-of-sale-of-new-petrol-
10 and-diesel-cars-by-20303. AIR QUALITY AND CLIMATE CHANGE 11
3.1
WHAT IS AIR QUALITY?
Air quality is the term we use to describe Air pollution is caused by a variety of
how polluted the air we breathe is. The gases, but there are five main pollutants
air is polluted when harmful gases are that the UK has made a commitment to
Because the pollution
introduced into the environment, causing reduce emissions of these pollutants and
exceedances identified
levels of those gases to be higher than their sources are outlined in the figure
in Wigan borough can
usual. When air quality is poor, pollutants below.
largely be attributed
in the air may be hazardous to people,
to vehicle emissions,
particularly those with lung or heart
the actions within this
conditions.
plan will directly target
Nitrogen dioxide (NO2)
and particulate matter.
However, many of the
suggested actions and
interventions will have
the beneficial effect of
indirectly lowering levels
of other pollutants.
Reproduced from the Clean Air Strategy 2019 5
Because the pollution exceedances Clean air is a basic requirement of a
identified in Wigan borough can largely be healthy environment for us all to live in,
attributed to vehicle emissions, the actions work, and bring up families. Air Quality in
within this plan will directly target NO2 Wigan borough has improved over recent
and particulate matter. However, many of years, however there are still areas that
the suggested actions and interventions require improvement to bring them within
will have the beneficial effect of indirectly acceptable limits.
lowering levels of other pollutants.
5
https://assets.publishing.service.gov.uk/government/uploads/system/
uploads/attachment_data/file/770715/clean-air-strategy-2019.pdf
123.2
IMPACTS OF POOR AIR QUALITY
Climate change
Often the greatest The Earth’s long-term global temperature the Intergovernmental Panel on Climate
burden of air quality equilibrium is dependent upon the balance Change (IPCC) predicts that by 2100
can fall on the most between the incoming solar energy and average global temperatures will increase
deprived communities the outgoing radiation, reflected or emitted by between 1.4 and 5.8°C above 1990
and individuals. Of the from the atmosphere or the surface of the temperatures6.
200 smaller geographical earth. Gases that absorb radiation and
The changing climate conversely impacts
areas, known as Lower therefore prevent it from being emitted
air quality. Warmer climates can lead to
Super Output Areas from the atmosphere, result in warming of
increased water vapour in the atmosphere
(LSOAs) in the borough, the Earth’s atmosphere. These are known
which, in turn, can lead to increases in the
57 are in the 20% most collectively as ‘greenhouse gases’. The
formation of ozone in areas with existing
deprived LSOAs in increased incidence of these gases in
high nitrogen oxide concentrations. In
England. 28.6% (91,773) of the atmosphere due to human activity is
addition, hot summers could lead to a
the borough’s population causing the global climate to change.
higher frequency of summer pollution
live in these areas .
The average global temperature has episodes such as the photochemical smog
risen by 0.7°C over the last 100 years and seen in 2013.
Health
Air quality and climate change are of 5.1%. The UK Air Quality Strategy
fundamentally inter-related. Many common estimates that air pollution reduces the
air pollutants are greenhouse gases and average life expectancy across the UK
therefore reducing air pollution will lessen by 7-8 months9. These impacts also have
the warming effect on our climate. Poor air an economic cost to society. The UK Air
6
https://uk-air.defra.gov.uk/ quality and climate change have a direct Quality Strategy estimates that PM2.5
assets/documents/ozone-uv/ impact on the health and well-being of pollution alone imposes an annual cost to
Tackling_Climate_Change_ both humans and the natural environment. the UK economy of between £9 and £20
defra.pdf billion.
7
Review of interventions to Air pollution is the biggest environmental
improve outdoor air quality threat to health in the UK, with between Often the greatest burden of air quality
and Public Health, Public 28,000 and 36,000 deaths a year can fall on the most deprived communities
Health England, 2019 attributed to long-term exposure 7. and individuals. Of the 200 smaller
8
Public Health Outcomes There is strong evidence that human geographical areas, known as Lower Super
framework https://fingertips. exposure to air pollution is associated Output Areas (LSOAs) in the borough, 57
phe.org.uk/profile/public- with premature death and serious are in the 20% most deprived LSOAs in
health-outcomes-framework illness from cardiovascular (heart) and England. 28.6% (91,773) of the borough’s
9
www.defra.gov.uk/ cardiopulmonary (lung) disease. In population live in these areas10. In many
environment/quaity/air/ addition, existing health conditions such as cases the most deprived communities
airquaity/strategy asthma and other respiratory illnesses, can live closest to the busiest roads, thereby
10
Wigan Borough Public be exacerbated by air pollution. increasing their exposure to pollution.
Health Training Prospectus The Marmot Review11 highlighted the
The fraction of mortality attributable to
2019 role that action to tackle air pollution can
anthropogenic (human-made) particulate
11
www.local.gov.uk/ play in addressing health inequalities. It
air pollution in Wigan is 4.5% 8 which is the
health/-/journal_ is important that we act to improve air
same as the average across the Northwest
content/56/10180/3510094/ quality to protect the most vulnerable in
region but below the England average
ARTICLE our communities.
13Economy and Environment
There are strong economic drivers for Air pollution is not an issue that occurs
improving air quality, it affects people in isolation. Measures that improve air
of working age, for instance if they take quality also offer wider public health
days off work through ill health. A recent and wellbeing co-benefits, including
report by CBI Economics, commissioned overall improvement in environmental
by the Clean Air Fund, estimated that quality, increased physical activity, noise
“Air pollution is not by achieving the WHO guidelines for air reduction, greater road safety and climate
an issue that occurs quality the UK could gain 3 million working change mitigation. Multiple interventions,
in isolation. Measures days per year lost through ill health, each producing a small benefit, can act to
that improve air quality prevent 17,000 deaths and boost the UK produce significant overall benefits13.
also offer wider public economy by £1.6 billion per year12.
health and wellbeing
As well as affecting human health, the
co-benefits, including
quality of our air also impacts on the
overall improvement in
environment we live in. Low level ozone
environmental quality,
affects the growth of plants and can
increased physical
reduce crop yields in species such as
activity, noise reduction,
wheat. Nitrogen deposition can adversely
greater road safety
affect the biodiversity of sensitive
and climate change
ecosystems.
mitigation. Multiple
interventions, each
producing a small benefit,
can act to produce
significant overall
benefits.”
12
www.cleanairfund.org/wp-content/uploads/2020/09/Breathing_life_into_the_UK_economy-Report-Final.pdf
13
www.gov.uk/government/publications/health-matters-air-pollution/health-matters-air-pollution
143.3
AIR QUALITY IN WIGAN
Over the last two decades, air quality in Air Quality Action Plan (2016-2021) 14.
Wigan has been monitored by the council, In 2017, local authorities within Greater
In 2018, Wigan developed via a network of continuous analysers Manchester were identified in the UK
an internal Air Quality and passive diffusion tubes, to identify plan for tackling NO2 concentrations, as
Action Plan to target areas within the borough with potentially having exceedances of the EU limit value
actions at a local level high levels of pollutants. Each year, in of 40 µg/m3 beyond 2020. The UK plan
aimed at encouraging conjunction with the nine other Greater compelled local authorities to develop
behaviour change across Manchester local authorities, an Annual plans to deliver compliance in the shortest
the borough. Actions have Status Report is produced to determine time possible.
been ongoing and will be if the health-based objectives are being
In March 2020, a further ministerial
refreshed and updated achieved.
direction was received from central
in the OAQ&T Action
Under the Environmental Permitting government setting out the expectation
Plan to include additional
Regulations, the council issue permits to implement a Class C charging Clean
actions in line with new
to businesses that emit pollutants into Air Zone (CAZ). Wigan, as part of Greater
legislation and guidance
the air and regularly inspect them to Manchester have developed the Great
and the key outcomes for
ensure that the emissions are within legal Manchester Clean Air Plan (GMCAP)
air quality and transport
limits. We also have a duty to investigate which includes the introduction of a Class
within Wigan’s Outline
complaints about smoke from domestic C CAZ for Greater Manchester. Introduced
Climate Change Strategy.
and commercial burning. from Spring 2022, it will impose a charge
on the most polluting vehicles and is
In May 2016, in response to exceedances of
anticipated to accelerate the transition to
NO2, Wigan Council with the other Greater
Low Emission Vehicles (LEVs) or Ultra Low
Manchester local authorities declared an
Emission Vehicles (ULEVs) and allow us
Air Quality Management Area (AQMA),
to meet legal limits for NO2 in the shortest
covering the 10 districts. Long term trends
time possible.
show that there have been improvements
in air quality, however a small number of In 2018, Wigan developed an internal Air
areas within Wigan borough remain above Quality Action Plan to target actions at a
the annual mean air quality objective for local level aimed at encouraging behaviour
NO2. change across the borough. Actions have
been ongoing and will be refreshed and
Air pollution does not respect geographic
updated in the OAQ&T Action Plan, to
boundaries, and for this reason Wigan
include additional actions in line with
Council committed to working with the
new legislation and guidance and the key
Greater Manchester local authorities
outcomes for air quality and transport
and Transport for Greater Manchester
within Wigan’s Outline Climate Change
(TfGM), to secure improvements in air
Strategy.
quality through the Greater Manchester
14
Greater Manchester Air Quality Action Plan (2016), TfGM & GMCA.
154. TRANSPORT AND CLIMATE CHANGE 16
4.1
WHAT IS SUSTAINABLE
TRANSPORT?
Sustainable transport allows the basic transport includes walking, cycling, using
access and development needs of society public transport, and to a lesser extent car
to be met, operates fairly and efficiently, sharing and using vehicles that minimise
offers a choice of transport mode and greenhouse gas emissions, such as
importantly, limits the use of natural electric cars.
resources and emissions. Sustainable
4.2
IMPACTS OF VEHICLE
By providing people
with options to choose
EMISSIONS
During the 20th century our culture has efficiently and be well maintained.
sustainable modes for
become increasingly reliant on their cars.
everyday local transport Around two out of every three trips we
Transport is now the largest greenhouse
choices we can help make are less than 5 miles in length,
gas‑emitting sector in the UK, accounting
boost economic growth many of which could easily be cycled,
for 28% of emissions, and road transport
by facilitating access to walked or undertaken by public transport.
accounts for 87% of this figure. If we are to
local jobs. Increasing the use of sustainable transport
meet our commitments to reduce carbon
will reduce the negative impacts of car
emissions from transport, there will have
use. Many people do not currently see
to be a switch to much greater use of
sustainable transport modes as realistic
active travel for short journeys and more
alternatives, so we must continue to work
sustainable travel modes such as public
hard to improve the quality of our walking,
transport.
cycling and public transport infrastructure
Reducing transport emissions is a to provide people with the facilities and
particular challenge, given that economic training to make them natural, easy
and population growth will increase the choices.
demand for travel, hence more radical
By providing people with options to
measures will be needed to enable us to
choose sustainable modes for everyday
meet challenging standards and targets, in
local transport choices we can help boost
terms of air quality and in response to the
economic growth by facilitating access
challenge of climate change.
to local jobs. Sustainable transport can
Making the best use of existing also influence the quality of our lives, the
infrastructure will help to reduce air we breathe, how healthy and fit we
environmental impacts. Locating new are, the money in our pockets and how
developments where there is good access long we spend in traffic queues, as well as
to public transport and services will the pleasantness of our environment and
reduce car travel and therefore emissions. public spaces.
Road and rail networks must also be used
174.3
SUSTAINABLE TRANSPORT IN
WIGAN
Wigan borough is growing both in transport connections such as walking
terms of population and economy and and cycling routes along canal towpaths
this growth needs to be supported by and disused railway lines, which can
increased connectivity. Good transport increase connectivity. The Leigh-Salford-
is a vital factor in building sustainable Manchester guided busway and the
local communities. It contributes to Standish Mineral Line are excellent
the achievement of stronger and safer examples of how investment can
communities, healthier children and young unlock the historic past to provide new
people, equality and social inclusion, connections for today.
environmental objectives and better local
Wigan Council is embarking on a refresh of
economies. Where transport fails, these
the local transport strategy as the existing
aspirations are put at risk.
Transport Strategy “Wigan Borough on the
Many of the transport challenges Move”, launched in 2011, is out of date and
facing Wigan borough are historical in does not reflect the most recent changes
nature. One example is the location of to national transport policy and priorities.
The Council’s Transport the borough on the western boundary For example, Greater Manchester has
Strategy is a vital tool of Greater Manchester, with borders recently been directed by Government to
that will help us work to West Lancashire, Lancashire and introduce a Clean Air Zone and accelerate
with stakeholders to Cheshire, alongside the constrained the installation of electric vehicle charging
strengthen our place- road infrastructure that stems from the infrastructure.
shaping role and borough’s mining and industrial past.
delivery of services to The updated Local Transport Strategy
Although the borough is well served by an
the community. It will be (LTS) will include Wigan Council’s policies
axis of strategic road and rail connections,
guided by the Council’s and delivery plans relating to transport,
travel from east to west through the heart
Corporate Plan, The explaining how these contribute to the
of borough is heavily constrained, and the
Deal 2030, which sets wider local agenda. It is imperative
borough has some of the most congested
out how the council, that the transport strategy interfaces
roads in Greater Manchester.
in conjunction with with the most recent local, regional and
residents, community It is imperative to review the borough’s national documents such as the Greater
organisations, businesses transport infrastructure, in line with the Manchester (GM) 2040 Transport Strategy
and public bodies, will Greater Manchester Congestion and and the Transport for North (TfN) Strategic
work together to create a Clean Air Plans. By improving the quality, Transport Plan.
truly world class place to reliability and affordability of our public
The Council’s Transport Strategy is a
live in the decade ahead. transport services and providing new
vital tool that will help us work with
sustainable connections between people
stakeholders to strengthen our place-
and places, we can empower people to
shaping role and delivery of services
make informed travel choices to suit their
to the community. It will be guided by
needs.
the Council’s Corporate Plan, The Deal
Looking from this new perspective, 2030, which sets out how the council, in
Wigan borough’s historical infrastructure conjunction with residents, community
becomes a key asset which offers organisations, businesses and public
opportunities to support sustainable bodies, will work together to create a truly
economic development such as rail world class place to live in the decade
and water freight, and for creating new ahead.
185. THE IMPACT OF COVID-19 ON TRANSPORTATION AND AIR QUALITY 19
5.1
THE IMPACT OF COVID-19
The most pronounced The emergence of Coronavirus (COVID-19) oxides (NOx). During the weeks preceding
changes in UK air quality at the start of 2020 has caused marked and following the first lockdown the UK
during lockdown, were in changes in the ways we live our lives in the air quality was negatively influenced by
the urban environment, UK. Transitional shifts include a significant a change in meteorological conditions.
notably for nitrogen increase in the amount of people working However, once weather effects are
oxides (NOx). During from home, a large reduction in usage of accounted for, mean reductions in urban
the weeks preceding public transport due to fears of further NOx averaged over the lockdown period
and following the first spread of the virus, combined with considered were typically 30-40%, with
lockdown the UK air notable reductions in vehicular usage mean NO2 reductions of 20-30%. In
quality was negatively and increases in active travel, particularly general, NOx and NO2 reductions have
influenced by a change during the first lockdown in Spring 2020. At been greater at roadside than at urban
in meteorological the time of writing, the full impact of traffic background sites. These reductions would
conditions. and vehicle usage reductions on local air typically correspond to decreases in
quality is not yet known. At a national level, concentrations of 10-20 µg m3 if expressed
in June 2020, the Air Quality Expert group relative to annual averages15. However,
published a rapid review of the air quality other evidence shows that weather
impacts of COVID-19 in the UK from the conditions have led to increased PM2.5
first lockdown. This was based on limited levels during lockdown in some areas.
data but showed a marked decrease in
There have been some beneficial changes
emissions from the transport sector.
to people’s mode of transport during the
The most pronounced changes in UK pandemic, the decrease in vehicle traffic
air quality during lockdown, were in the led to an upsurge in walking and cycling,
urban environment, notably for nitrogen as streets felt safer and less polluted.
https://uk-air.defra.gov.uk/ass15%20ets/documents/reports/cat09/2007010844_Estimation_of_Changes_in Air_
15
20 Pollution_During_COVID-19_outbreak_in_the_UK.pdfHowever, with social distancing measures to the pandemic, the public have had to
in place there is decreased capacity on make lifestyle changes and many of these
public transport and as we move towards positive lessons learned will help us to
recovery this disparity in capacity is make a transition to more sustainable
likely to be taken up by private cars. We modes of living and working in a post-
need to ensure that sustainable transport COVID society. Actions within this plan
options and space for walking and cycling aim to build on positive gains to secure
are sufficient to ensure we do not have improvements in air quality and in turn,
a ‘car led recovery’, which could lead to improve public health and the resilience
Actions within this pollution levels above those seen before of communities to manage public health
plan aim to build on the pandemic. threats in the future.
positive gains to secure
It is widely acknowledged that long-term
improvements in air
exposure to air pollution is associated with
quality and in turn,
increased morbidity and mortality from
improve public health
chronic diseases, some of which have also
and the resilience of
been identified as increasing the risk of
communities to manage
severe COVID-19 symptoms, therefore any
public health threats in
reduction in pollution levels will have a
the future.
positive impact on population health.
In summary, whilst the pandemic has
changed transport patterns and behaviour,
the short-term influence of COVID-19 is
not expected to lead to sufficiently long-
term reductions in pollution. In response
216. ACTION PLAN FRAMEWORK AND DEVELOPMENT 22
6.1
ACTION PLAN FRAMEWORK
Our Air Quality and
AND DEVELOPMENT
The environment and climate change are Key outcomes of the theme for OAQ&T
Transport Working Group
key themes within our corporate strategy, as set out by the outline climate change
consists of officers
The Deal 2030, with the vision ‘to create a strategy are:
representing the council’s
clean, green place for us all to enjoy’. The
internal service providers • We will be air quality compliant by
Deal 2030 was created in response to the
and is supported through 2025 or sooner
ideas brought forward by our residents and
consultation with external • We will promote transport modal shift
communities who highlighted concerns
stakeholders. This action by developing walking and cycling
over the state of the environment, including
plan is underpinned by infrastructure
the impacts of climate change, air quality,
standards set out within • We will significantly increase the
pollution and single use plastics.
the Local Air Quality number of electric vehicle charging
Management Framework. Wigan Council declared a climate points
emergency on the 17th July 2019 and the • We will significantly reduce the
Outline Climate Change Strategy was Council’s business mileage
adopted in October 2020. ‘Our Air Quality • We will improve the air quality
and Transport’ is one of the six climate and health for residents, providing
change action themes defined within the alternative green travel and reducing
Outline Climate Change Strategy. Each congestion
of the action themes have an operational Our Air Quality and Transport Working
working group. Group consists of officers representing
the council’s internal service providers
and is supported through consultation
with external stakeholders. This action
Our plan is underpinned by standards set out
Our Natural
Resilience & within the Local Air Quality Management
Environment
Adaptation Framework.
Work on air quality is well established
within Wigan Borough, both locally and
regionally. This action plan builds upon
Our
Our Built current understanding of air quality issues,
Communities
Environment as well as legislative, environmental, and
& Wellbeing
economic drivers to frame delivery of
improvements between 2021 and 2026. A
workshop comprising internal stakeholders
from various sectors throughout the
Our Air Our
Council was held in Autumn 2020 to share
Quality & Sustainability
knowledge and gather opinion.
Transport & Consumption
23The OAQ&T workshop focussed on the Responses were collated and utilised to
themes of improving local air quality and create a first draft of the action plan and
transitioning towards sustainable, green, which was subsequently circulated to the
and active local travel. The principle working group. The action plan was refined
aim of the work was to understand the in response to the comments received and
fundamental basics behind the perception developed into a comprehensive action
of local air quality and sustainable travel, plan that will provide the framework for
within the Council’s daily operations and delivery of this climate change action
strategic planning for the Borough. theme.
The four areas considered were: This action plan outlines how Wigan
Council can improve sustainable transport
Communities – Working with residents
infrastructure and the quality of our air
and community groups to improve
now and in over the next five years by
knowledge and awareness of air quality.
initiating, developing and delivering
Improving the immediate and future health
measures to prevent and reduce air
of the people in our communities, through
pollution. In turn, we will realise the
preventing and reducing air pollution.
benefits of these measures through
Businesses – Embedding air quality into
increased awareness, improved health
business culture, whilst ensuring economic
and well-being and enhanced economic
prosperity and the health and wellbeing of
prosperity within the Borough.
the workforce
Schools – Protecting and educating our
children at school. Empowering them to
be part of the solution and give them the
knowledge to make the best decisions
growing up.
Staff - Embedding air quality into our
culture and ensuring we lead by example.
247. GOVERNANCE OF THE ACTION PLAN 25
7. 1
GOVERNANCE OF THE
Overall governance of the
ACTION PLAN
This OAQ&T Action Plan will be monitored These progress reports will be submitted
and implemented by the OAQ&T Working to the Climate Action Group on a quarterly
action plan lies with the Group, which will be chaired by the basis so that progress can be tracked
Council’s Cabinet. Service Manager for Regulatory Services alongside the five other developing climate
and will consist of representatives from change action themes.
Environmental Health, Public Health,
The Cabinet On an annual basis, the working group will
Planning Policy, Transport Planning,
be required to create an annual progress
Human Resources, Major Projects and
Oversight Boards report on air quality improvements for the
other relevant teams. Representatives from
Council and the borough. The progress
TfGM, the GMCA and other interested
• Housing Advisory Panel report will be submitted to the Climate
organisations will also be asked to join.
• Corporate Property Action Group for approval and will then
Management Board The action plan is a live document, and the go on to the relevant oversight boards for
• Health & Wellbeing working group will continue to assess: additional review and comments.
Board
• If there are additional or existing At this stage, progress reports will also
• Places Scrutiny programmes in other Council be provided to external stakeholders
Committee services that could contribute to to ensure continuous engagement of
• External Boards & emissions reductions private sector, education and voluntary
Stakeholders • What factors may influence local organisations with regards to overall
pollution in the future progress on work related to climate
• Likely future trends change.
Climate Emergency Board • What additional technical
assessments may be needed
The OAQ&T Working Group will meet on a
quarterly basis, to track progress on short,
Climate Action Group medium and long-term actions as defined
by the action plan.
Our Air Quality and
Transport Working Group
Our Air Quality and
Transport
Action Plan
Figure 2: Governance of the
Our Air Quality and Transport
Action Plan
268. LAYOUT OF THE ACTION PLAN 27
8.1
LAYOUT OF THE ACTION PLAN
The interventions outlined in the action Progress of actions will be evaluated on
plan have been categorised into four main a quarterly basis at the working group
“Progress of actions themes according to the groups within meetings. All actions will be reviewed on
will be evaluated on a the borough that they target and impact. an annual basis, and the Working Group
quarterly basis at the These are: will generate an annual progress briefing.
working group meetings. The action plan will undergo a holistic
• Communities
All actions will be review and refocus targets by 2026,
• Schools whereby a new updated action plan will be
reviewed on an annual
basis, and the Working • Businesses created to outline delivery between 2026
Group will generate an • The Council and 2031.
annual progress briefing. Each of the actions states a responsible
The action plan will service area within the Council, a
undergo a holistic review timescale for review and / or completion,
and refocus targets by objectives and partner organisations and
2026, whereby a new service teams that can provide additional
updated action plan will support.
be created to outline
delivery between 2026 For future reporting purposes each action
and 2031.“ will be ‘RAG’ rated through a system of
red, amber and green which infers:
• Green actions are where the project
is on track to meet scheduled dates.
• Amber actions are projects which
are in danger of over running project
deadlines or budget if risks are not
addressed.
• Red actions are those projects which
are likely to miss scheduled dates or
are over budget or out of scope.
288.2
ACTION PLAN AIMS
The purpose of this action plan is to • Ensure that air quality and
provide robust and deliverable measures sustainable transport is embedded in
The development of to ensure air quality and sustainable decision-making activities throughout
this Action Plan, will transport are considered throughout the all departments within the Council.
support wider work decision-making procedure in all areas of • Engage with local businesses and
taking place within the council. It will also provide a strategic organisations to promote more
Greater Manchester overview, guidance and planning to sustainable ways of working.
and has identified local ensure both Wigan Council and Wigan • Work towards providing a sustainable
interventions that are borough are progressing towards a transport network within Wigan and
required to provide a future where they not only comply with Greater Manchester with the goal of
holistic approach to achieving the ‘Right Mix’ of 50% of
air quality objective set out in legislation
tackle air quality issues journeys made by public transport or
but go beyond these to create a healthy
within our borough. It active travel by 2040.
and sustainable borough for residents.
ensures we have the tools • Identify areas that require further
Key outcomes from the action plan and
required, so the council, interventions to improve air quality or
associated working group include:
communities, businesses sustainable transport.
and schools can all play • Raise awareness and understanding The development of this Action Plan, will
their part in improving the of air quality issues with residents support wider work taking place within
and communities. Greater Manchester and has identified
quality of our air.
• Work with schools to improve local interventions that are required to
environmental education and provide provide a holistic approach to tackle
schools with the tools to encourage air quality issues within our borough. It
walking and cycling for the school ensures we have the tools required, so
journey.
the council, communities, businesses and
• Provide local-based solutions to schools can all play their part in improving
enable everyone to make small
the quality of our air.
beneficial behaviour changes and
work towards the larger goal of
reducing pollution in Wigan.
298.3
CONTINUING OUR JOURNEY
TOWARDS CLEAN AIR AND
SUSTAINABLE TRANSPORT
As an authority we also
have a valuable role to
play in encouraging and
influencing behaviours,
The QAQ&T action plan builds upon the As an authority we also have a valuable
in providing the tools
work undertaken by the council over role to play in encouraging and influencing
to make that change
the past decades and is the vital next behaviours, in providing the tools to
through education and
step to improving the quality of our air make that change through education
infrastructure, and by
and sustainable transport systems over and infrastructure, and by providing
providing support and
the next five years. Most air pollution is support and assistance in all areas of our
assistance in all areas of
caused by human activities and the health communities. At the heart of the actions
our communities. At the
impacts of poor air quality can affect us all. is the importance of engaging residents,
heart of the actions is the
Wigan Council recognise that we need a communities, schools and businesses,
importance of engaging
collective effort to achieve the ambitions as only through working together can we
residents, communities,
set out in this plan and we want to lead achieve the level of reduction in emissions
schools and businesses,
the change, by transforming the way in to improve our air and reduce climate
as only through working
which we think about and deliver our change. The QAQ&T action plan is our
together can we achieve
services. We will work alongside key local commitment to improving air quality within
the level of reduction in
and national stakeholders and partner our borough now and over the next five
emissions to improve our
organisations, to successfully deliver years and it is the hope that this document
air and reduce climate
measures and drive change. can start us on our shared journey to a
change.
cleaner, greener future for the borough.
309. OUR AIR QUALITY AND TRANSPORT ACTION PLAN 2020-2026
SECTION 9
319.1
OUR AIR QUALITY AND TRANSPORT ACTION PLAN 2021-2026
Our
Our Natural Resilience &
Environment Adaptation
Our
Our Built Communities
Environment & Wellbeing
Our
Our Air Quality Sustainability
& Transport & Consumption
32Theme 1. Communities
The Deal Lead Key
Action Partner Organisations /
2030 Service Action Timescales Performance
Number departments
Priorities Areas Indicators
Internal:
Public Health, Regulatory Services,
Establish a well-connected communication Civil Contingencies, Climate Change
Number or people Manager
strategy for air quality and sustainable
1.1 Our People PR/Media Ongoing reached with
transport, to focus on engagement and External:
messaging
education. Clinical
Commissioning Group, NHS, private
healthcare
Internal:
Build on and establish new relationships Communities and SDF teams,
Regulatory Number of
1.2 Our Place with community groups to highlight air Ongoing
Services sessions attended Climate Change Manager
quality issues.
Number of
hotspots
Continue the development of an Anti-idling targeted. Internal:
Regulatory
1.3 Our Future campaign targeted at particular hotspots 1-2 years Regulatory Services, PR and Media,
Services Number of
throughout the borough. Network Management
residents
engaged
Further develop feasibility and Internal:
Number of EV Major Projects, Regulatory Services
funding opportunities surrounding the
1.4 Our Future Major projects 3 years charge points
implementation of electric vehicle charging External:
installed
points across the Borough. TfGM, OLEV, Energy Saving Trust
33The Deal Lead Key
Action Partner Organisations /
2030 Service Action Timescales Performance
Number departments
Priorities Areas Indicators
Internal:
% increase in
Improve local cycling and walking Network Management, Transport
1.5 Our Place Major projects 3-5 years walking/cycling
infrastructure for Wigan Borough Planning, Planning Policy, Regulatory
journeys
Service
Theme 2. Businesses
The Deal Lead Key
Action Partner Organisations /
2030 Service Action Timescales Performance
Number departments
Priorities Areas Indicators
Internal:
Number of taxi Network Management
Regulatory Continue the development of installation
2.1 Our Place 1 year EV charge points
Services points for electric taxis. External:
installed
Transport for Greater Manchester
Number of
Internal:
Establish a communications plan for businesses
Regulatory Services, Business
2.2 Our Future PR/Media air quality and sustainable transport 1-2 years reached/ Number
engagement, Climate Change
information directed at businesses. taking up
Manager
incentives
Number of
Deliver the Air Quality Supplementary Internal:
Regulatory consultees/
2.3 Our Future Planning Document to be utilised in all new 6 months Planning Policy, Development
Services Publication of
developments across the borough. Management
report
Internal: Business engagement
Work with businesses to establish Number of
Business External: GM Business Growth Hub,
2.4 Our People alternative ways of working to reduce 12-18 months businesses
engagement Chamber of Commerce, Sustainable
pollution. engaged
Transport TfGM
34The Deal Lead Key
Action Partner Organisations /
2030 Service Action Timescales Performance
Number departments
Priorities Areas Indicators
Number of
permitted
Regulatory Deliver improvements in the Environmental
2.5 Our Future 2 years activities/ Internal: Business Engagement
Services Permitting Regime.
changes in
emissions
Implement recommendations from the Number of Internal: Licensing
2.6 Our Future Licensing Greater Manchester minimum licensing 2 years electric taxis/
standards. PHVs External: TfGM
Number of Internal: Regulatory Services
Trading Regulate the sale of coal and wet wood for
2.7 Our Future 2 years businesses External: TfGM, GM AQ working
Standards domestic use.
advised group
35Theme 3. Schools
The Deal Key
Action Lead Service Partner Organisations /
2030 Action Timescales Performance
Number Areas departments
Priorities Indicators
Number of
Internal: Environmental education
Regulatory Use internal and external funding to deliver pupils engaged.
3.1 Our Future 2 years Planning Policy, Network
Services modal shift around schools. Increase in school
Management, Major Projects
active travel
Collaborate with schools to adopt Air Number of Internal: Climate Change Manager,
Environmental
3.2 Our Future Quality Awareness policies through 2 years schools/ pupils Regulatory services, Road safety,
Education
education and engagement. engaged. Traffic Management
Work with schools to identify potential
% change in Internal: Planning Policy, Regulatory
Network candidates for school street schemes
3.3 Our People 2 years modal shift for Services, Road Safety Team, Parking
Management during peak hour, or where unfeasible,
school journeys Services.
implement walking bubbles.
Internal: Regulatory Services,
Road safety/ Increase the number of schools achieving Number of Communities teams
3.4 Our People Environmental school travel plan accreditation through 3 years schools achieving
Education Teams the ‘Modeshift Stars’ scheme. accreditation External: TfGM Sustainable Journeys
Team, Living Streets
Collaborate with the Youth Cabinet to Internal: Regulatory Services.
Environmental Number of young
3.5 Our People share ideas on sustainable transport and 2 years External Manchester Environmental
Education people reached
air quality issues. Education network
36Theme 4. Council
The Deal Key
Action Lead Service Partner Organisations /
2030 Action Timescales Performance
Number Areas departments
Priorities Indicators
Human Resources Develop a Council travel plan and internal Number of staff
Internal: PR and Media, Planning and
4.1 Our People & Organisational communications strategy to promote 2 years using sustainable
transport policy
Development sustainable travel. transport
Number of total
annual business Internal: Human resources, Finance,
Regulatory miles. Waste and Fleet.
4.2 Our Future Complete a review of the grey fleet. 3-4 years
Services Reduce the
number of staff External: Energy Saving Trust
business miles
Continue our working differently journey,
Human Resources Number of
based on a digital first methodology and Internal: Regulatory Services,
4.3 Our People & Organisational 18 -24 months employees in the
taking a blended approach to home, office Major Projects
Development office.
and community working within the Council.
Upgrade the council fleet to low emission Number of low Internal: Regulatory Services,
4.4 Our Future Waste and Fleet 5 years
vehicles. emission miles Major Projects
Internal: Network Management,
Develop and implement an electric vehicle Increase in Regulatory Services
4.5 Our Future Major projects charging infrastructure strategy within 2 years number of EV
Wigan Council and Greater Manchester. charge points. External: Transport for Great
Manchester.
Number of ULEVs
Regulatory Deliver the Greater Manchester Clean Air
4.6 Our Future 2 years registered in Internal: Regulatory Services
Services Plan and associated Clean Air Zone.
Wigan
Internal: Climate Change Manager,
Network Management, Major
Planning and Publication of projects.
4.7 Our Place Update the Wigan Transport Strategy. 12-18 months
transport policy report
External: Transport for Greater
Manchester.
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