Background of EQS in Sweden

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1 Implementation and application of air quality standards in Sweden Stockholm Environmental Law and Policy Centre 23 nov Lena Gipperth Law Department School of Business, Economics and Law, Göteborg University Background of EQS in Sweden Recistance, hestitations and lack of knowledge Introduced in Environmental Code 1999 in order to implement EC Directives The legal frame for implementing eqs is still under construction Eqs (NOx and PM10) is today a critical issue in almost all planning activities and many permit cases in the larger Swedish cities

2 What is required? Member States shall take the necessary measures to ensure compliance with the limit values and draw up action plans with short term measures where there is a risk of the limit values and/or alert thresholds being exceeded providing measures to control and, where necessary, suspend activities, including motor-vehicle traffic, which contribute to the limit values being exceeded. Art 7 Air Quality Framework Dir (96/62) In zones where levels are higher than the limit value Member States shall take measures to ensure that a plan or programme is prepared or implemented for attaining the limit value within the specific time limit. Art 8 Air Quality Framework Dir (96/62) Where an environmental quality standard requires stricter conditions than those achievable by the use of the best available techniques, additional measures shall in particular be required in the permit, without prejudice to other measures which might be taken to comply with environmental quality standards. Art. 10 IPPC Dir. (96/61) Implementing the directives EC law require implementation both by law and in practise in order to protect human health The transposition of a directive into domestic law does not necessarily require that its provisions be incorporated formally and verbatim in express, specific legislation; a general legal context may, depending on the content of the directive, be adequate for the purpose provided that it does indeed guarantee the full application of the directive in a sufficiently clear and precise manner so that, where the directive is intended to create rights for individuals, the persons concerned can ascertain the full extent of their rights and, where appropriate rely on them before the national courts. C-361/88 whenever the exceeding of limit values could endanger human health, the persons concerned must be in a position to rely on mandatory rules in order to be able to ascertain their rights. C-361/88 och C 59/89

3 What is an EQS? Two types of standards but what is the difference in their legal effect? Earlier and more ambitious implementation than required by EC Limit values Guiding values Aim: To protect human health or the environment What is the legal reactions on the (risk for) exceedence of EQS? It is always feasible to use the best available technology But no possibility to require more (without a total ban of the activity) Stop-rules in Env. Code and Planning- and Building Act but Limited no new activites (Env. Code) few stops in practise and No real possibility to use offsets No general non-deterioration rule linked to EQS Municipalities and authorities are responsible to consider EQS in certain situations (5 kap. 3 MB) No legal operationalisation but a long row of legal instruments that can be used alhough some are easier to use than others

4 What are the functions of action programs? Action programmes coordinates measure but not sufficient as an instrument implement the standards Binding for authorities but not for indvidual actors Measures = requirements on authorities to e.g. reconcider a permit, supervision campaigns etc. No new or further instruments Examples of measures in AP Åtgärder för att informera om hälsokonsekvenserna av höga partikelhalter och de negativa effekterna av dubbdäcksanvändning Minskad användning av dubbdäck kan bidra till att sänka halten av partiklar (PM 10). Åtgärder behöver därför vidtas för att informera om hälsokonsekvenserna av höga partikelhalter och de negativa effekterna av dubbdäcksanvändning. Ansvariga för att åtgärderna vidtas är Vägverket, Naturvårdsverket, Länsstyrelsen i Stockholms län och kommunerna inom Stockholms län. Åtgärder för att öka utbudet av infartsparkeringar i Stockholms län Exempel på åtgärder är en utbyggnad av infartsparkeringarna både för bil och för cykel. Vägverket, Banverket, Stockholms läns landsting och kommunerna i Stockholms län är ansvariga för åtgärderna.

5 Is the AP an instrument to achieve the air quality standards? Vid en samlad bedömning av möjligheten att klara miljökvalitetsnormen för kvävedioxid i Stockholms län kan konstateras en risk för att åtgärderna inte i tillräcklig omfattning ger effekt på halten kvävedioxid så att normen klaras till den 31 december Regeringen uppdrar därför åt Länsstyrelsen i Stockholms län att revidera åtgärdsprogrammet och upprätta förslag till kompletterande åtgärdsprogram för att miljökvalitetsnormerna för kvävedioxid skall kunna uppfyllas. Regeringsbeslut M2003/1891/MkM2004/141/Mk Action programmes EQS Action Programme General rules of conduct and other requirements and measures Nonhuman sources Foreign sources Authorities enforce requirements and take actions Environmental quality

6 How are measures and requirements enforced? Municipalities and authorities are responsible to consider EQS in certain situations (5 kap. 3 MB) and to follow action programmes (5 kap. 8 MB) but Required measures in AP are vague and Hard to enforce no general requirement to take iniative to measures County adminstrations must examine decisions on rural plans if there is a risk of exceeding EQS. But no examination against AP. Individuals might appeal in some situations but can not rely on mandatory rules in order to be able to ascertain their rights. Summary EQS are legal limits but they are not secured by the swedish legislation Further deteriorations is not prohibited The stop-rule in Env Code is too limited The stop-rule in the Planning- and Building Act is applied differently but so far not stopping risk of further deterioriation There are many possibilities but few responsabilities to take measures to enforce the EQS. It is possible to decide on AP that are not sufficient for enforcing actions to achieve EQS does not clearly indicate what improvments are required (or even intended) by each measure and who is responsible to take actions or enforce requirements. High risk of putting burdens on some sources and not on others No instruments providing flexible solutions (e.g. offsets, fees)

7 What is needed? What is needed? A general non-deterioration ban in case of risk for exceedens of EQS Action programmes with legal power and precise requirements Enforcement mechanisms Rights for individuals to assertain their rights New flexible mechanisms