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National Air Pollution Control Programme, 2019, Finland
Annex
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National Air Pollution Control Programme 2030
PUBLICATIONS OF THE MINISTRY OF ENVIRONMENT | 2019:7 ym.fi
Publications of the Ministry of Environment 2019:7
National Air Pollution Control Programme 2030
Ministry of the Environment, Helsinki 2019
Ministry of the Environment
ISBN (PDF): 978-952-361-008-8
ISBN (printed): 978-952-361-009-5
Layout: Government Administration Department, Publications
Cover photo: A winter day at Arabianranta, Pirjo Ferin/YHA Kuvapankki
Helsinki 2019
Kuvailulehti
Julkaisija Ympäristöministeriö 21.3.2019
Julkaisun nimi Kansallinen ilmansuojeluohjelma 2030
Julkaisusarjan nimi
ja numero
Ympäristöministeriön julkaisuja 2019:7
Diaari/hankenumero YM 036:00/2017 Teema Ympäristönsuojelu
ISBN painettu 978-952-361-009-5 ISSN painettu 2490-0648
ISBN PDF 978-952-361-008-8 ISSN PDF 2490-1024
URN-osoite http://urn.fi/URN:ISBN:978-952-361-008-8
Sivumäärä 91 Kieli suomi
Asiasanat ilmansuojelu, ilmanlaatu, päästöt, terveysvaikutukset, ympäristövaikutukset,
puun pienpoltto, maatalous, katupöly, pienhiukkaset
Tiivistelmä
EU:n päästökattodirektiivi (2016/2284) velvoittaa jäsenmaita laatimaan kansallisen ilmansuojeluohjelman.
Ilmansuojeluohjelma sisältää ne toimet, joilla direktiivissä asetetut rikkidioksidin, typenoksidien, haihtuvien
orgaanisten yhdisteiden, pienhiukkasten ja ammoniakin ilmapäästöjen vähentämisvelvoitteet toteutetaan.
Ilmansuojeluohjelmassa esitetään Suomen ilmansuojelun nykytila (päästöt, ilmanlaatu, vaikutukset) sekä
arvio päästöistä, vaikutuksista ja tarvittavista toimista vuoteen 2030.
Suomen ympäristökeskuksen tekemien laskelmien mukaan Suomi toteuttaa päästökattodirektiivissä
sille asetetut päästöjen vähentämisvelvoitteet jo sovituilla energia- ja ilmastostrategian ja
maatalouden ammoniakkiohjelman toimenpiteillä.
Huolimatta päästövelvoitteiden noudattamisesta ilmansaasteet aiheuttavat edelleen terveys- ja
ympäristöhaittoja. Tämän vuoksi ohjelma sisältää toimia, joilla ilmanlaatua voidaan edelleen parantaa ja
altistumista vähentää. Nämä toimet koskevat erityisesti taajamien hengityskorkeuden päästölähteitä
(puun pienpoltto ja katupöly, pakokaasut) ja toisaalta ilmanlaatuun vaikuttavia muiden sektorien toimia.
Ilmansuojeluohjelma painottaa sitä, että ilmansuojelu tulisi ottaa johdonmukaisesti huomioon kaikessa
ilmanlaatuun vaikuttavassa suunnittelussa ja päätöksenteossa kaikilla päätöksenteon tasoilla. Ilmanlaatuun
vaikutetaan erityisesti liikenne-, energia-, ilmasto-, maatalous- ja maankäytön sektoreilla ja kunnissa. Hyödyt
näkyvät hyvinvointisektorilla. Yhteistyöhankkeet, jotka edistävät mm. hiilineutraaliutta ja kansalaisten
terveyttä, parantavat yleensä myös ilmanlaatua.
Kustantaja Ympäristöministeriö
Painopaikka ja vuosi Grano Oy, 2019
Julkaisun
jakaja/myynti
Sähköinen versio: julkaisut.valtioneuvosto.fi
Julkaisumyynti: julkaisutilaukset.valtioneuvosto.fi
Presentationsblad
Utgivare Miljöministeriet 21.3.2019
Publikationens titel Nationellt luftvårdsprogram 2030
Publikationsseriens
namn och nummer
Miljöministeriets publikationer
2019:7
Diarie-/
projektnummer YM 036:00/2017 Tema Miljövård
ISBN tryckt 978-952-361-009-5 ISSN tryckt 2490-0648
ISBN PDF 978-952-361-008-8 ISSN PDF 2490-1024
URN-adress http://urn.fi/URN:ISBN:978-952-361-008-8
Sidantal 91 Språk finska
Nyckelord luftvård, luftkvalitet, utsläpp, hälsoeffekter, miljökonsekvenser, småskalig
vedeldning, jordbruk, gatudamm, fina partiklar
Referat
EU:s utsläppstakdirektiv (2016/2284) ålägger medlemsländerna att utarbeta nationella luftvårdsprogram.
Luftvårdsprogrammet innefattar de åtgärder som krävs för att de åtaganden om minskning av utsläppen av
svaveldioxid, kväveoxider, flyktiga organiska föreningar, fina partiklar och ammoniak som fastställts i
direktivet ska fullgöras. Luftvårdsprogrammet innehåller en beskrivning av det aktuella luftvårdsläget i
Finland (utsläpp, luftkvalitet, konsekvenser) och en bedömning av utsläppen, konsekvenserna och de
behövliga åtgärderna fram till 2030.
Enligt Finlands miljöcentrals kalkyler kommer Finland redan med de åtgärder som angetts i energi-
och klimatstrategin och i programmet för att minska jordbrukets ammoniakutsläpp att kunna fullgöra
de åtaganden om utsläppsminskningar som fastställs för landet i utsläppstakdirektivet.
Även om åtagandena om utsläppsminskningar fullgörs kommer luftföroreningarna fortfarande att orsaka
olägenheter för hälsan och miljön. Därför innehåller programmet åtgärder som ska bidra till bättre
luftkvalitet och lägre exponering. Åtgärderna gäller framför allt utsläppskällor i andningshöjd i tätorterna
(småskalig vedeldning och gatudamm, avgaser) men också sådana åtgärder inom andra sektorer som kan
ha inverkan på luftkvaliteten.
I luftvårdsprogrammet framhävs att luftvården konsekvent bör beaktas i all planering och allt
beslutsfattande som har inverkan på luftkvaliteten, och detta bör ske på alla beslutsnivåer. Beslut som
påverkar luftkvaliteten fattas framför allt inom transport-, energi-, klimat-, jordbruks- och
markanvändningssektorn och i kommunerna. Nyttan syns inom välfärdssektorn. Samarbetsprojekt som
bl.a. främjar koldioxidneutralitet och den allmänna hälsan förbättrar i allmänhet också luftkvaliteten.
Förläggare Miljöministeriet
Tryckort och år Grano Ab, 2019
Distribution/
beställningar
Elektronisk version: julkaisut.valtioneuvosto.fi
Beställningar: julkaisutilaukset.valtioneuvosto.fi
Description sheet
Published by Ministry of the Environment 21 March 2019
Title of publication National Air Pollution Control Programme 2030
Series and publication
number
Publications of the Ministry of
Environment 2019:7
Register number YM 036:00/2017 Subject Environmental
protection
ISBN (printed) 978-952-361-009-5 ISSN (printed) 2490-0648
ISBN PDF 978-952-361-008-8 ISSN (PDF) 2490-1024
Website address
(URN) http://urn.fi/URN:ISBN:978-952-361-008-8
Pages 91 Language Finnish
Keywords Air pollution control, air quality, emissions, health impact, environmental
impact, small-scale woodburning, agriculture, street dust, fine particulate
matter
Abstract
The European Union’s revised NEC directive (2016/2284) lays down the obligation to prepare a National Air
Pollution Control Programme (NAPCP) for member states. The NAPCP comprises the actions for realizing
the emission reduction commitments laid down in the directive for emissions of sulphur dioxide, nitrogen
oxides, volatile organic compounds, fine particulate matter and ammonia. The NAPCP includes a
description of the current state of Finland’s air pollution control (emissions, air quality, effects) and an
estimate on the amount of pollution, the effects caused by it and what measures must be implemented by
2030.
The calculations made by the Finnish Environmental Institute show that Finland already meets the
emission reduction obligations set by the directive with the previously agreed on measures set out in the
energy and climate strategy and the action plan to reduce ammonia emissions from agriculture.
Air pollution continues to cause health hazards and environmental damage despite the fact that the emission
reduction obligations are met. Due to this, the NAPCP includes measures to further improve air quality and
reduce exposure to pollution. These measures are specifically related to emissions that are inhaled (small-
scale woodburning and street dust, exhaust fumes) and, on the other hand, to the actions of other sectors
that affect air quality.
The NACPC emphasizes the need to take air pollution control into account systematically in all planning and
decision-making activities that affect air quality at all levels of decision-making. In particular the traffic,
energy, climate, agriculture and land-use sectors, together with municipalities, can affect air quality. The
benefits can be seen throughout the welfare sector. Joint projects, aimed at promoting carbon neutrality
and public health, usually also improve air quality.
Publisher Ministry of the Environment
Printed by
(place and time) Grano Ltd, 2019
Distributed by/
publication sales
Online version: julkaisut.valtioneuvosto.fi
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Contents
Executive summary ................................................................................................................ 9
Introduction .......................................................................................................................... 16
1 Finland’s air pollution control policy and its relationship to other policies ........................ 19
1.1 Objectives and priorities....................................................................................... 19
2 Responsibilities at national, regional and local levels ....................................................... 36
3 Trends in air pollution control measures, as well as in air quality and other environmental impacts, in the period 1990–2017 .................................................................................... 38
3.1 Emission trends .................................................................................................... 38
3.2 Air quality trends and current air quality situation ................................................ 41
3.3 Adverse effects of air pollutants on human health ............................................... 46
3.4 Environmental impacts of air pollutants ............................................................... 51
4 Compliance with obligations related to emissions and air quality .................................... 55
4.1 Exceedances related to emission reduction commitments ................................... 55
4.2 Exceedances of obligations related to air quality .................................................. 56
5 Emission trends according to the baseline projection ..................................................... 60
5.1 Sulphur dioxide .................................................................................................... 63
5.2 Nitrogen oxides ................................................................................................... 64
5.3 Fine particulate matter ........................................................................................ 66
5.4 Non-methane volatile organic compounds ........................................................... 70
5.5 Ammonia ............................................................................................................. 71
5.6 Black carbon and methane ................................................................................... 72
5.7 Conclusions .......................................................................................................... 73
6 Additional measures and their impact on emissions and air pollutant concentrations ..... 74
6.1 Road transport ..................................................................................................... 75
6.2 Small-scale woodburning ..................................................................................... 77
6.3 Taking air pollution control into account in planning and decision-making activities
in other sectors .................................................................................................... 81
6.4 Other measures .................................................................................................. 86
7 Monitoring of the implementation and effects of the NAPCP ........................................ 88
7.1 Monitoring of emission trends ..............................................................................88
7.2 Monitoring of the ecological impacts of emissions .............................................. 89
7.3 Air quality monitoring ..........................................................................................92
7.4 Monitoring of the measures included in the NAPCP ............................................. 93
References ........................................................................................................................... 94
Annex 1. Reported (2005, 2010, 2015) and projected (2020, 2025, 2030) air pollutant
emissions ............................................................................................................ 96
Annex 2. Air pollution control legislation ....................................................................... 98
Annex 3. Measures included in the National Energy and Climate Strategy (NECS) for 2030
that affect air pollution control ............................................................................ 98
Annex 4. Measures included in the Medium-term Climate Change Policy Plan (KAISU) for
2030 that affect air pollution control ................................................................... 99
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NATIONAL AIR POLLUTION CONTROL PROGRAMME 2030
Executive summary
National Air Pollution Control Programme and attainment of emission reduction commitments
This National Air Pollution Control Programme (NAPCP) extends to 2030. The NAPCP
comprises the actions for implementing the emission reduction commitments laid down in the
National Emission Ceilings Directive (2016/2284, NECD) as well as other actions for improving
air quality.
Finland’s air pollution control policy aims to improve citizens’ well-being by ensuring a good
status of the environment, including air quality, to safeguard biodiversity and to prevent
acidification and eutrophication of ecosystems. This aim contributes to the fulfilment of the
obligation laid down for the public authorities in the Constitution of Finland to endeavour to
guarantee for everyone the right to a healthy environment.
The NECD requires that Member States reduce their emissions of sulphur dioxide (SO2),
nitrogen oxides (NOx), ammonia (NH3), fine particulate matter (PM2.5) and non-methane
volatile organic compounds (NMVOC). These emission reduction commitments follow on from
the commitments laid down in the first NECD. Through the emission reduction commitments,
the directive aims to reduce the number of premature deaths caused by air pollutants in Europe
by almost 50% by 2030 compared to the situation in 2005. The Directive requires that Member
States draw up national air pollution control programmes to reduce their emissions.
The emission reduction commitments laid down in the NECD for Finland are presented in
Table 1. The commitments were set as percentages compared to emissions in 2005. For
illustrative purposes, Table 1 also includes the emission reduction commitments in tonnes,
calculated on the basis of current emission inventory data.
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PUBLICATIONS OF THE MINISTRY OF ENVIRONMENT 2019:7
Table 1. Finland’s old and new emission reduction commitments as percentages
and their amounts in kilotonnes (kt) calculated on the basis of the percentages
Pollutant Old commitments 2010
Emissions in kilotonnes in 2005 used as the basis
for the new commitments
New commitments 2020–2029
New commitments from
2030
SO2 110 kt 70 kt -30% (49 kt) -34% (46.2 kt)
NOX 170 kt 205 kt -35% (133.3 kt) -47% (108.7 kt)
NMVOC 130 kt 145 kt -35% (94.3 kt) -48% (75.2 kt)
NH3 31 kt 37 kt -20% (31 kt) -20% (31 kt)
PM2.5 - 28 kt -30% (19.6 kt) -34% (18.5 kt)
The calculations made by the Finnish Environment Institute show that Finland already meets
the emission reduction obligations set by the NECD with previously agreed measures set out
for the implementation of the National Energy and Climate Strategy and the action plan to
reduce ammonia emissions from agriculture, as well as with the implementation of the existing
and previously agreed sector-specific regulation through emission limits. In addition, the
additional measures to reduce greenhouse gas emissions included in the Medium-term
Climate Change Policy Plan (KAISU) will also contribute to the reduction of air pollutant
emissions.
Effects of air pollutants In general, air quality in Finland is good. Nevertheless, air pollutants have significant adverse
effects. In Finland, they cause 1,600-2,000 premature deaths annually. Although both long-
range transboundary air pollution and emissions from domestic sources will fall significantly by
2030 thanks to the EU’s climate and air quality policy, the reduction in the number of
premature deaths will only be approximately 10% between 2015 and 2030, based on expert
opinion. The reasons for this are population growth and ageing, as well as continuing
urbanisation. While long-range transboundary air pollution will decrease, emissions from
small-scale woodburning and street dust from road transport will remain. These emissions are
generated close to inhalation height and are still partly unregulated.
The adverse effects of air pollutants on human health are mainly (64%) caused by fine
particulate matter (PM2.5), which contains carcinogenic compounds and heavy metals, for
example. These particles are carried by air into all parts of the respiratory tract and not only
cause direct allergic, immunological and toxic effects in the lungs but also partly enter the
bloodstream and are transferred further to other parts of the body, such as the myocardium
and the brain. The effects of other air pollutants are also severe, but less significant than those
of fine particulate matter.
In Finland, the estimated surface area of ecosystems at risk of acidification is less than 1% of
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the total area of ecosystems, and the estimated surface area of ecosystems at risk of
eutrophication is 3%.
Measures in the programme to improve air quality and reduce exposure
Air pollution will continue to cause adverse effects on human health and the environment in
2030 despite the fact that the emission reduction obligations set by the NECD are met. Due to
this, the NAPCP includes measures that will help to lower the levels of air pollutant emissions
and concentrations below the level set in EU legislation.
These measures are specifically related to emissions that are inhaled (small-scale woodburning
and street dust) and to linking air quality to all planning and decision-making activities and
implementation affecting air quality. In addition, several other measures to promote air
pollution control are proposed. These include the development of communication in all of its
forms, efforts to influence EU and international activities, and the dissemination of
information on the cost of health damage.
The responsibility for the implementation of the measures will be borne by an extensive group
of national, regional and local actors. Key actors include various ministries (Ministry of the
Environment (YM), Ministry of Social Affairs and Health (MSAH), Ministry of Economic Affairs
and Employment (MEAE), Ministry of Transport and Communications (LVM), Ministry of
Finance (VM), Ministry of Agriculture and Forestry (MMM), Ministry of Education and Culture
(MoEC)), Centres for Economic Development, Transport and the Environment (ELY Centres),
Valvira (National Supervisory Authority for Welfare and Health), Traficom (Finnish Transport
and Communications Agency), municipalities, Helsinki Region Environmental Services
Authority HSY, research institutes (Finnish Environment Institute (SYKE), National Institute for
Health and Welfare (THL), Finnish Meteorological Institute (FMI)), equipment manufacturers
and various organisations (such as the Central Association of Chimney Sweeps, the
Organisation for Respiratory Health, and Tulisija- ja savupiippuyhdistys TSY ry (Association of
fireplace and chimney manufacturers)).
Small-scale woodburning
Small-scale woodburning is the most significant source of fine particulate matter emissions in
Finland, accounting for approximately 50% of all domestic fine particulate matter emissions. It
has been estimated that exposure to particles from small-scale woodburning causes some
200 premature deaths in Finland annually. In the future, emissions from other sources are
expected to fall significantly in accordance with the current legislation, while it appears that
emissions from small-scale woodburning will remain at the current level or will only decrease
slightly. The impacts of the Ecodesign Directive, which will enter into force in 2020 and 2022,
on emissions from small-scale woodburning in Finland are estimated to be relatively low by
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PUBLICATIONS OF THE MINISTRY OF ENVIRONMENT 2019:7
2030, as the stock of heat-retaining fireplaces is replaced slowly in Finland and sauna stoves
are not covered by the scope of the directive. In other words, the adverse effects of small-scale
woodburning on human health must be reduced by additional national measures. Small-scale
woodburning is also clearly the most significant source of black carbon emissions in Finland.
In order to prevent the adverse effects of small-scale woodburning, the following measures are proposed:
• Increasing guidance to citizens and other actors
• Reducing the adverse effects of polluting woodburning sauna stoves
• Increasing the efficiency of smoke nuisance prevention
Road transport
Road transport impairs air quality due to exhaust emissions and street dust. Adverse effects
can be mitigated by improving the energy efficiency of transport systems and vehicles, by
replacing fossil oil-based fuels with electricity and gas, and by influencing the regulation of
exhaust emissions. In addition to combustion-related air pollutants, street dust causes adverse
effects on human health and decreases the comfort of citizens. These effects can be reduced
by preventing street dust formation.
In order to prevent the adverse effects of road transport, the following measures are proposed:
• Implementing the recommendations of the Dusty Roads project.
• Enhancing the dissemination of best practices in street cleaning and maintenance to
municipalities and contractors.
• Incorporating best practices into the contractor selection criteria in procurement.
• Increasing guidance on the best tyre options in terms of air quality and safety to
motorists.
• Investigating the possibility to limit the use of studded tyres in certain areas.
• Supporting measures and initiatives to expedite the renewal of the vehicle stock and
the increase in the percentage of zero- and low-emission vehicles of the total vehicle
stock.
• Supporting measures that reduce the passenger car transport performance in urban
areas.
Affecting air pollution control through planning and decision-making
activities in other sectors
In addition to technical emission reduction measures, improving air quality requires that air
quality be taken into account systematically in all planning and decision-making activities that
affect air quality and when assessing the health and environmental impacts of any measures to
be taken in other sectors. Key sectors for air pollution control include the land-use and
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NATIONAL AIR POLLUTION CONTROL PROGRAMME 2030
planning, energy, climate, transport, agriculture and welfare sectors. Key strategies and
programmes that should consider air quality include:
• National Energy and Climate Strategy (2017)
• KAISU (2017) (Medium-term Climate Change Policy Plan)
• Programme for the promotion of walking and cycling (Ministry of Transport and
Communications, 2017)
• Interim report by the Transport Climate Policy working group: Carbon-free transport
by 2045 – Paths to an emission-free future (Ministry of Transport and
Communications, 2018)
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PUBLICATIONS OF THE MINISTRY OF ENVIRONMENT 2019:7
Municipalities’ leverage to promote air pollution control
Under Finnish legislation, municipalities play a key role in safeguarding good local air quality.
For instance, municipalities monitor air quality in their areas and, based on their monitoring
activities, take any measures needed to improve air quality if the limit values are exceeded or
are at risk of being exceeded. However, the most important leverage to affect air quality
relates to decision-making other than that concerning actual air quality monitoring.
Municipalities make decisions on issues such as land use, transport and energy production that
have a significant impact on emissions, air quality and exposure.
When promoting air pollution control, efforts should be made to use the existing programme
and organisation structures established for climate change mitigation, as the actors are mainly
the same in both areas. Practical measures in both air pollution control and climate change
work are often taken in municipalities. Municipalities participate in several national and
international programmes and networks that take actions to mitigate climate change and
adapt to its impacts. Municipalities are also involved in networks that aim to exchange good
practices in the promotion of well-being and health.
Key joint projects affecting air pollution control in municipalities include:
• Energy efficiency agreements
• The implementation of KAISU 2017–2025 in municipalities and regions
(”KuntaKaisu” or Municipal Kaisu)
• IlmastoKunnat (ClimateMunicipalities) activities of the Association of Finnish Local
and Regional Authorities
• HINKU Forum (a network for climate change mitigation that brings together
municipalities committed to ambitious CO2 emission reductions, as well as products
and services supporting this aim and experts in the energy and climate sectors)
• Healthy Cities – Terve Kunta network
• MAL agreements (agreements concerning land use, housing and transport that the
State concludes with the main city regions in Finland)
• Municipal strategy (for each term of the municipal council)
Other measures
In order to promote air pollution control, it is also proposed that communication in all of its
forms be developed, the knowledge base be improved, and efforts be taken to influence EU
and international activities. These measures include:
• Supporting air pollution control in municipalities
• Enhancing communication relating to air pollution control and increasing its
customer orientation in cooperation with other actors
• Developing air quality and emission websites to make them more customer-oriented
• Promoting the improvement of the knowledge base through projects focusing on
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NATIONAL AIR POLLUTION CONTROL PROGRAMME 2030
the cost of health damage, for example
• Participating in the WHO scientific evaluation to revise air quality guideline values
• Influencing the development of the EU’s air quality limit values to reduce long-range
transboundary air pollution
Monitoring of implementation and effects
The attainment of the emission reduction commitments is monitored annually through
emission inventories and projections prepared and updated by the Finnish Environment
Institute. The NAPCP must be updated if the monitoring shows that one or more emission
reduction commitments are not fulfilled or are at risk of not being fulfilled.
The monitoring of the negative impacts of atmospheric sulphur and nitrogen emissions on
ecosystems, as required by the NECD, and the monitoring of ozone air pollution loads are
carried out by the Finnish Environment Institute, ELY Centres, Natural Resources Institute
Finland (Luke), the Finnish Meteorological Institute and the Ministry of the Environment. The
Finnish Environment Institute publishes the emission and impact monitoring data in a public
information network service.
In Finland, air quality is mainly monitored by municipalities and the Finnish Meteorological Institute.
The Ministry of the Environment will establish a monitoring network to support and monitor
the implementation of the measures proposed in the NAPCP. Key actors responsible for the
implementation of the programme will be invited to join the network. In addition, the
implementation of the measures will be assessed through separate studies in 2026 and 2031.
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Introduction Good air quality is important for both human health and comfort and the well-being of the
natural environment and the preservation of the built environment. In general, air quality in
Finland is good, but air pollutant concentrations still have to be lowered, in particular in areas
with the highest exposure, that is, in agglomerations.
Air quality has improved over the past 30 years as emissions into the air have been cut, in
particular in the industry, energy and transport sectors, based on international agreements and
EU legislation and also partly through national legislation. The most important drivers have
been the United Nations (UN) Convention on Long-Range Transboundary Air Pollution1 and its
Protocols, as well as the sector-specific emission limit values and other obligations concerning
emission reduction and air quality set in EU legislation.
The EU’s most recent National Emission Ceilings Directive (NECD)2, which limits emissions of
specific air pollutant substances, was adopted in December 2016. The directive requires that
Member States reduce their emissions of sulphur dioxide, nitrogen oxides, ammonia, fine
particulate matter and non-methane volatile organic compounds. Thoracic particles (PM10) are
not covered by the reduction commitments laid down in the NECD, but total PM10 emissions
must also be reported to the Commission annually. The emission reduction commitments
follow on from the commitments laid down in the first NECD3. The directive requires that
Member States draw up national air pollution control programmes to reduce their emissions.
Through the emission reduction commitments, the directive aims to reduce the number of
premature deaths caused by air pollutants in Europe by almost 50% by 2030 compared to the
situation in 2005.
1 The Convention on Long-Range Transboundary Air Pollution of 1979 2 Directive (EU) 2016/2284 of the European Parliament and of the Council of 14 December 2016 on the reduction of
national emissions of certain atmospheric pollutants 3 Directive 2001/81/EC of the European Parliament and of the Council of 23 October 2001 on national emission
ceilings for certain atmospheric pollutants
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NATIONAL AIR POLLUTION CONTROL PROGRAMME 2030
This National Air Pollution Control Programme (NAPCP) extends to 2030 and comprises the
measures for implementing the emission reduction commitments laid down in the directive, as
well as the additional national measures needed to improve air quality and reduce the number
of people exposed to poor air quality.
In addition, the NAPCP discusses black carbon and methane emission trends as part of climate
change mitigation, in particular in the Arctic region. No reduction commitments are laid down
in the NECD for the emissions of these air pollutants. However, black carbon emissions must
be reported as part of the EU reporting under the directive. The Arctic Council has set emission
reduction targets and issued recommendations to limit black carbon emissions.
The preparation of the NAPCP also took account of strategies, programmes and projects
implemented and being prepared in various sectors, such as energy and climate change policy,
transport and agriculture, and actions taken under these.
The NAPCP was prepared by the Ministry of the Environment and a working group established
by the Ministry on 13 December 2017. In addition to the Ministry of the Environment, the
following participated in the work of the working group: the Ministry of Economic Affairs and
Employment, the Ministry of Transport and Communications, the Ministry of Social Affairs and
Health, the Ministry of Agriculture and Forestry, the Finnish Environment Institute, the
National Institute for Health and Welfare (THL), the Finnish Meteorological Institute, the
Uusimaa ELY Centre, the Association of Finnish Local and Regional Authorities, the Central
Union of Agricultural Producers and Forest Owners (MTK), Finnish Energy, the Finnish Forest
Industries Federation, the Chemical Industry Federation of Finland, Technology Industries of
Finland, the Finnish Petroleum and Biofuels Association and the Finnish Association for Nature
Conservation. The Finnish Environment Institute was responsible for the estimation of
emissions.
The working group met seven times. In addition, the working group organised a workshop on
small-scale woodburning on 7 June 2018 and a public consultation on its draft proposals on 19
September 2018, and consulted several experts. Stakeholders and citizens were provided with
the opportunity to present their opinions on the proposals of the working group through the
lausuntopalvelu.fi portal.
The NAPCP and its implementation are communicated widely using a variety of channels.
These include the websites of the Ministry of the Environment and its stakeholders, Twitter
and YouTube, as well as events organised by the Ministry and its stakeholders.
The Government adopted the NAPCP in its plenary session on 7 March 2019.
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Abbreviations BaP benzo[a]pyrene, a carcinogenic polycyclic aromatic hydrocarbon BC black carbon CO carbon monoxide CH4 methane CLRTAP United Nations Economic Commission for Europe (UNECE) Convention on Long-Range
Transboundary Air Pollution NECD National Emission Ceilings Directive NH3 ammonia NMVOC non-methane volatile organic compounds NO2 nitrogen dioxide NOx nitrogen oxides O3 ozone PAH polycyclic aromatic hydrocarbons PM2.5 fine particulate matter PM10 thoracic particles SO2 sulphur dioxide TRS total reduced sulphur
Sulphur dioxide (SO2)
Sulphur dioxide is a gas that irritates the respiratory tract and causes acidification in ecosystems. Most sulphur emissions originate from the combustion of sulphurous fuels in energy production. Sulphur emissions have fallen strongly since the 1980s. In the atmosphere, sulphur dioxide converts into sulphate, which forms part of the size category of fine particulate matter.
Nitrogen oxides (NOx)
Nitrogen oxides irritate the respiratory tract, cause eutrophication and acidification in ecosystems, and participate in the formation of ground-level ozone. In Finland, emissions of nitrogen oxides mainly originate in energy production and transport. In the atmosphere, nitrogen dioxide converts into nitrate, which forms part of the size category of fine particulate matter.
PM10 PM10 refers to particles with a diameter of less than 10 µm. When inhaled, they can
penetrate the lungs and have significant adverse effects on human health. PM10 consists of various substances and can contain harmful heavy metals and carcinogenic hydrocarbons, for example. Street dust is a significant domestic source of PM10 in Finland.
Fine particulate matter (PM2.5)
Fine particulate matter refers to particles with a diameter of less than 2.5 µm. These particles can penetrate deep into the respiratory ducts and are very harmful to health. PM2.5 consists of various substances and can contain harmful heavy metals and
carcinogenic hydrocarbons, for example. Fine particulate matter is generated by energy production, in particular by small-scale woodburning and peat production, and also originates from fossil fuels used in transport, road abrasion, and tyre and brake wear.
Ammonia (NH3) Ammonia causes acidification and eutrophication in ecosystems. In Finland, the most significant domestic source of emissions is agriculture, in particular bovine manure.
Ozone (O3) Ground-level ozone is harmful to vegetation and human health. The formation of ozone is affected by the quantities of nitrogen oxides and various hydrocarbons, as well as sunlight. In Finland, the highest concentrations are recorded in rural background locations.
Non-methane volatile organic compounds (NMVOC)
Non-methane volatile organic compounds affect the formation of ground-level ozone and secondary particles. Volatile organic compounds are generated in incomplete combustion (in particular in small fireplaces), transport, industrial processes, and in the use of solvents, adhesives, paints and printing inks, as well as in the distribution of petrol.
Methane (CH4) In addition to carbon dioxide, methane is one of the most significant greenhouse gases.
Methane is generated when organic matter breaks up in anaerobic conditions, such as in
the digestive system of animals, or in peatlands or landfills. In addition, methane is
released in combustion processes.
Black carbon (BC)
Atmospheric black carbon refers to particles that absorb light strongly and have a high
inorganic carbon content. Black carbon is formed through incomplete combustion.
Emission sources include diesel vehicles, woodburning, shipping and long-range
transboundary air pollution. Black carbon forms part of the size category of fine particulate
matter.
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1 Finland’s air pollution control policy and its relationship to other policies
1.1 Objectives and priorities
1.1.1 Air pollution control
In general, air quality in Finland is good. Nevertheless, air pollutants have significant adverse
effects (sections 3.3 and 3.4). The aim is to improve air quality by targeting emission reduction
and other measures in areas with the most significant adverse effects, namely in city centres
and densely built up agglomerations. When planning measures, account is taken of the
development of cities and changes in population age structure, such as an increase in the
percentage of elderly people, as well as other increases in city living and the related changes in
the living environment and behaviour.
In Finland, the air quality limit values based on EU legislation are only occasionally exceeded.
However, this does not guarantee that there are no adverse effects. Therefore, measures are
taken to improve local air quality, in particular with respect to PM10, nitrogen dioxide and
benzo[a]pyrene. In addition, efforts are made to cut fine particulate matter emissions, as their
adverse effects on human health are considerable, although the concentrations are low.
1.1.1.1 Objectives Finland’s air pollution control policy aims to improve citizens’ well-being by ensuring good
environmental quality, including air quality, to safeguard biodiversity, and to prevent
acidification and eutrophication of ecosystems. This aim contributes to the fulfilment of the
obligation laid down for the public authorities in section 20(2) of the Constitution of Finland
(731/1999) to endeavour to guarantee for everyone the right to a healthy environment. The
importance of this objective is also evident from the Environmental Protection Act (527/2014),
which specifically pays attention to securing good air quality. The aim is to make everyone
aware of the significance of good environmental quality as a factor contributing to health and
well-being and as a competitive factor, and to incorporate it into the operating culture.
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Environmental quality is improved by reducing the adverse effects of air pollutants on human
health and the environment. This is achieved by preventing the generation of emissions,
limiting emissions with the help of the best available techniques, such as emission limit value
regulation, and by planning and constructing a living environment in which human exposure to
air pollutants is as low as possible. The prevention of adverse effects pays particular attention
to the reduction of those emissions that cause the most significant adverse effects on human
health. These mainly comprise emissions from transport and small-scale woodburning. In
order to achieve good air quality, this aim is integrated in all planning and other decision-
making activities (living environment planning, urban planning, community planning,
residential area planning, traffic planning, energy planning).
According to the strategy of the Ministry of the Environment4, the quality of the living
environment will be monitored and assessed using various indicators. These include fine
particulate matter and black carbon emissions, nitrogen dioxide emissions, and the
satisfaction of the residents with the general amenity of their residential area.
Finland’s air pollution control policy also aims to promote international actions to reduce air
pollutant emissions. It is important for Finland that other countries also cut their emissions, as
long-range transboundary air pollution accounts for a significant share of air pollutants in
Finland.
1.1.1.2 Emission reduction commitments and targets
Emission reduction commitments
The emission reduction commitments laid down in the NECD for Finland are presented in
Table 1. The commitments were set as percentages compared to emissions in 2005. For
illustrative purposes, Table 1 also includes the emission reduction commitments in tonnes,
calculated on the basis of current emission inventory data. The emission reduction
commitments have been set for each Member State in such a manner that cost efficiency at
EU level can be maximised.
Table 1. Finland’s old and new emission reduction commitments as percentages
and in kilotonnes (kt). The emission reduction commitment for ammonia is 20%,
which means maximum emissions of 31 kt.
Pollutant Old commitments 2010
Emissions in kilotonnes in 2005 used as the basis for the new commitments
New commitments 2020–2029
New commitments from 2030
SO2 110 kt 70 kt -30% (49 kt) -34% (46.2 kt)
NOX 170 kt 205 kt -35% (133.3 kt) -47% (108.7 kt)
NMVOC 130 kt 145 kt -35% (94.3 kt) -48% (75.2 kt)
NH3 31 kt 37 kt -20% (31 kt) -20% (31 kt)
PM2.5 - 28 kt -30% (19.6 kt) -34% (18.5 kt)
4 Strategy 2030, Ministry of the Environment
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Emission reduction targets
Methane and black carbon emissions will be cut in accordance with the recommendations
issued by the Arctic Council. In 2017, the Arctic Council5 recommended that black carbon
emissions be jointly limited voluntarily between 25% and 33% below the 2013 levels by 2025.
The Arctic Council set no emission reduction target for methane, but the members of the Arctic
Council are encouraged to limit their methane emissions significantly, both jointly and
individually.
In addition, this NAPCP sets national targets to reduce the adverse effects caused by small-
scale woodburning and street dust. The potential to reduce emissions from small-scale
woodburning and street dust and their effects are assessed in Chapter 6.
1.1.1.3 Air quality requirements and objectives
According to the Environmental Protection Act, the aim for all activities shall be to achieve a
level of air quality in which the quantity of hazardous or harmful substances or compounds in
ambient air, or in the deposition of these, is not present at a level that would cause harm to
health, be detrimental to nature and how it functions, or cause a loss of general amenity of the
environment. In order to achieve this aim, air quality limit values and target values are laid
down in government decrees. Most of these are based on EU legislation. The content of these
government decrees is discussed in more detail under section 1.1.1.4.
According to the General Union Environment Action Programme to 20206, the aim is to
safeguard the Union’s citizens from environment-related pressures and risks to health and
well-being, and to ensure that by 2020 outdoor air quality in the Union has significantly
improved, moving closer to the levels recommended by the World Health Organization (WHO).
This means that the long-term objective of Finland and all other EU Member States must be
the achievement of the recommended air quality objectives issued by the WHO.
1.1.1.4 Air quality regulation in the EU and Finland
EU legislation establishes standards for air quality. These have been implemented nationally
with the Environmental Protection Act and the decrees issued under it. The aim is that air
quality requirements and objectives are taken into account when planning activities,
monitoring the state of the environment and supervising the implementation. In addition,
environmental quality requirements and targets must be taken into account in permit
consideration as a basis for dimensioning permissible emissions caused by the activity.
5 Members of the Arctic Council: Canada, Denmark, Finland, Iceland, Norway, Russia, Sweden and the United States. 6 Decision No 1386/2013/EU of the European Parliament and of the Council on a General Union Environment Action Programme to 2020 ‘Living well, within the limits of our planet’.
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Air quality legislation
In the EU, the Ambient Air Quality Directive7 lays down limit values for sulphur dioxide,
nitrogen oxides, PM10, fine particulate matter (PM2.5), lead, carbon monoxide and benzene in
ambient air, target values and long-term objectives for ozone, and critical levels applicable to
sulphur dioxide and nitrogen oxides. In addition, the directive lays down provisions on air
quality monitoring methods and their data quality objectives, the selection, location and
number of sampling points, public information, the preparation and implementation of air
quality plans and short-term action plans, and the transmission of information to the European
Commission. In addition, the EU’s air quality legislation includes the Heave Metals Directive8
relating to the concentrations of arsenic, cadmium, mercury, nickel and polycyclic aromatic
hydrocarbons (PAH) in ambient air.
The Ambient Air Quality Directive and the Heavy Metals Directive have been implemented
nationally with the Environmental Protection Act9 and the Government Decree on air quality10
(Valtioneuvoston asetus ilmanlaadusta 79/2017, hereinafter the Air Quality Decree) and the
Government Decree on arsenic, cadmium, mercury, nickel and polycyclic aromatic
hydrocarbons in ambient air11 (Valtioneuvoston asetus ilmassa olevasta arseenista, kadmiumista,
elohopeasta, nikkelistä ja polysyklisistä aromaattisista hiilivedyistä 113/2017, hereinafter the
Heavy Metals Decree).
The Air Quality Decree and the Heavy Metals Decree lay down provisions on air quality limit
values and target values, the organisation of air quality monitoring, reference measurement
methods for air quality measurements, data quality objectives set for monitoring, air quality
reporting, and informing and alerting the public.
The Air Quality Decree lays down the limit values for the protection of human health, as
presented in Table 2; the target values and long-term objectives for the protection of human
health and vegetation, as presented in Table 3; and the critical levels of sulphur dioxide and
nitrogen oxides for the protection of ecosystems and vegetation, as presented in Table 4. The
target values for heavy metals and benzo[a]pyrene laid down in the Heavy Metals Decree are
presented in Table 5. The 24-hour and one-hour limit values have been determined statistically
in such a manner that the numerical value of the limit value may be exceeded a certain number
of times in any calendar year. For the sake of comparison, the guideline values set by the WHO
for the protection of human health are also presented in Table 2.
7 Directive 2008/50/EC of the European Parliament and of the Council of 21 May 2008 in ambient air quality and cleaner air for Europe 8 Directive 2004/107/EC of the European Parliament and of the Council of 15 December 2004 relating to arsenic, cadmium, mercury, nickel and polycyclic aromatic hydrocarbons in ambient air 9 Environmental Protection Act 527/2014 10 Government Decree on air quality (Valtioneuvoston asetus ilmanlaadusta 79/2017) 11 Government Decree on arsenic, cadmium, mercury, nickel and polycyclic aromatic hydrocarbons in ambient air (Valtioneuvoston asetus ilmassa olevasta arseenista, kadmiumista, elohopeasta, nikkelistä ja polysyklisistä aromaattisista hiilivedyistä 113/2017)
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The EU’s air quality limit values for PM2.5 (annual average), sulphur dioxide (24-hour average)
and PM10 (annual average) are clearly higher than the WHO guideline values, while the EU
standards for PM10 (24-hour average) and nitrogen dioxide (annual average) are consistent with
the WHO guideline values. The WHO air quality guideline values are based on scientific
evidence of the effects of air pollution on human health. When setting legally binding limit
values, account must be taken of technical feasibility, as well as the cost of compliance and the
benefits provided. According to the WHO guidelines12, the cost of compliance with the limit
values can be reduced by allowing a certain number of occasions on which the values can be
exceeded.
Table 2. EU and WHO limit values for air pollutants
Substance Averaging period
Limit value µg/m3
Number of exceedances allowed per
calendar year
Date since which the limit value has been
in force
WHO guideline value µg/m3
Sulphur dioxide (SO2)
One hour 350 24 01/01/2005
24 hours 125 3 01/01/2005 20
Nitrogen dioxide (NO2)
One hour 200 18 01/01/2010 200
Calendar year
40 - 01/01/2010 40
Carbon monoxide (CO)
8 hours 10,000 - 01/01/2005
Benzene (C6H6) Calendar year
5 - 01/01/2010
Lead (Pb) Calendar year
0.5 - 15/08/2001
PM10 24 hours 50 35 01/01/2005 501)
Calendar year
40 - 01/01/2005 20
Fine particulate
matter (PM2.5)
Calendar year
25 - 01/01/2010 10
24 hours 25
The national exposure concentration ceiling has been 20 µg/m3 since 31 December 2015.
1)99% compliance; not to be exceeded more than 3 times.
Table 3. Ozone target values and long-term objectives
Objective Averaging period or statistical parameter
Target value for 2010 Long-term objective
Prevention and reduction of adverse effects on human health
8 hours 120 µg/m3 not to be exceeded on more than 25 days per calendar year averaged over three years
120 µg/m3 during a
calendar year
Protection of vegetation
AOT401) 18,000 µg/m3 ∙ h averaged over five years
6,000 µg/m3 ∙ h
1)AOT40 (µg/m3 ∙ h) means an ozone load expressed as the sum of the difference between hourly concentrations greater
than 80 μg/m3 and 80 μg/m3 over a given period using only the one-hour values measured each day.
12 Air quality guidelines – Global update 2005 (p. 7) and “Guidance for setting air quality standards”.
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Table 4. Critical levels for the protection of ecosystems and vegetation
Substance Averaging period Critical level µg/m3 Date since which the critical level has been in force
Sulphur dioxide (SO2) Calendar year and winter (1 October–31 March)
20 15/08/2001
Nitrogen oxides (NOx) Calendar year 30 15/08/2001
Table 5. Target values for heavy metals and benzo[a]pyrene
Substance Target value 1 January 2013
Arsenic (As) 6 ng/m3
Cadmium (Cd) 5 ng/m3
Nickel (Ni) 20 ng/m3
Benzo[a]pyrene (C12H20) 1 ng/m3
Provisions on air quality are also laid down in the national Government Decision on the air
quality guideline values and sulphur deposition target value (Valtioneuvoston päätös
ilmanlaadun ohjearvoista ja rikkilaskeuman tavoitearvosta 480/1996)13. No deadline has been
set for the guideline values, and they are mainly suitable for guiding land-use, transport and
construction planning. These guideline values are not discussed further in this NAPCP.
Operator obligations
The Environmental Protection Act requires that operators have knowledge of the
environmental impacts and risks of their operations, and of the management of these impacts
and risks, and of ways to reduce adverse impacts. This knowledge requirement applies to a
wide range of environmental impacts of the operations, such as those caused by emissions into
the air. Knowledge of the environmental impacts of operations is a condition for granting an
environmental permit. In practice, the knowledge requirement also means that operators have
an obligation to monitor the impacts of emissions on the state of the environment, in addition
to other monitoring, control and measurement obligations. In addition, operators must
organise their operations in such a way that environmental pollution can be prevented in
advance, and where pollution cannot be fully prevented, it must be limited to the lowest level
possible.
Obligations of municipalities
The Environmental Protection Act also contains provisions on the obligations of municipalities.
The act requires that within their territories, municipalities see to the necessary monitoring of
the state of the environment according to local conditions, and ensure good air quality in their
territories. If a limit value is exceeded, or if there is a risk of such, municipalities must prepare
air quality protection plans aimed at keeping pollution below the limit value.
13 Government Decision on the air quality guideline values and sulphur deposition target value (Valtioneuvoston päätös ilmanlaadun ohjearvoista ja rikkilaskeuman tavoitearvosta 480/1996)
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The air quality protection plan must contain information on the following, for example:
concentrations detected, the extent of the area where limit values are exceeded and the size of
the population exposed, the amount of emissions, the emission sources and the reasons for the
exceedance, including any load originating from outside the area in question, as well as
information on the responsible authorities and on any measures targeted at transport and
other activities causing emissions.
No air quality protection plan needs to be drawn up in cases concerning the exceedance of limit
values specified for PM10 that is caused by sanding or salting for the winter maintenance of
roads and streets. In such cases, the municipality may prepare, instead of an air quality
protection plan, a report on the exceedance of the limit values, the reasons for the exceedance,
and the measures required to lower concentrations. The requirements set for the content of
such “sanding reports” are lower than those set for air quality protection plans. However, the
report must contain information on the concentrations, the extent of the area where limit
values are exceeded, the impacts of sanding and salting on the concentrations, and the
measures to lower concentrations.
According to the Environmental Protection Act, in the implementation of plans drawn up to
secure air quality, municipalities may issue regulations on restricting and suspending activities
other than those subject to a permit and registration. A municipality can change traffic
arrangements or even prohibit traffic in a certain area, for example. In addition, to enforce the
act, municipalities may issue necessary general regulations based on local circumstances,
pertaining to the entire municipality or a part of it (municipal environmental protection
regulations). The regulations may apply to activities, limitations and structures that prevent
emissions, or their harmful impacts. For instance, the regulations may relate to the use of solid
fuels, such as wood, in certain areas.
1.1.2 Climate change policy and its impact on air pollution control
Air pollution control and climate change policy have several links, as their policy measures
target the same emissions sources. Such measures include increasing the share of renewable
and low-carbon energy sources, promoting cleantech solutions and improving energy
efficiency. However, certain objectives, such as increasing the use of bioenergy, if this means
an increase in small-scale woodburning, and reducing air pollutants, may be in conflict with
each other, and their reconciliation requires further measures. Air pollutant emissions, and
black carbon in particular, also have significant impacts on the climate. More attention should
be paid to these impacts in climate change policy assessments.
In addition to national energy and climate change policy objectives, the content of Finland’s
climate change policy is affected by the obligations to reduce greenhouse gas emissions
established in EU legislation (Table 6). These are split between the EU Emissions Trading
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System (EU ETS) sector (energy production and energy), which has an EU-wide obligation, and
the sectors not covered by the EU ETS (e.g. transport, buildings, agriculture and waste), in
which a national emission reduction target has been set for each Member State.
Table 6. Obligations to reduce greenhouse gas emissions in relation to the 2005 levels
By 2020 By 2030
EU-wide obligation (EU ETS sector) -21% -43%
Finland’s national target (non-EU ETS sector) -16% -39%
The Climate Change Act14 establishes a framework for the planning of climate change policy in
Finland and the monitoring of its implementation, while concrete policy measures are defined
in the National Energy and Climate Strategy for 203015 and the Medium-term Climate Change
Policy Plan for 2030 (KAISU)16 adopted by the Government. Their key measures affecting air
pollution control are listed in Annexes 3 and 4.
Climate Change Act
The Climate Change Act lays down provisions on the planning system for climate change policy
and on the monitoring of the implementation of the climate change policy objectives. The goal
of the planning system is to contribute towards meeting the binding obligations set for Finland
relating to greenhouse gas emission reduction and monitoring, and towards mitigating climate
change and adapting to it through national measures. The Act sets a long-term target to
reduce greenhouse gas emissions by at least 80% by 2050 compared to the 1990 levels. Based
on the planning system, a medium-term climate change policy plan for 2030 has been drawn
up.
National Energy and Climate Strategy for 2030
Finland’s National Energy and Climate Strategy outlines the actions that will enable Finland to
attain the greenhouse gas emission reduction targets specified in the 2015 Programme of
Prime Minister Juha Sipilä’s Government and adopted in the EU for 2030, and to make
systematic progress towards achieving an 80−95 per cent reduction in greenhouse gas
emissions by 2050. According to the strategy, Finland will phase out the use of coal for energy,
with minor exceptions; the use of biofuels will be increased in the transport sector; and the
share of electricity, gas and renewable energy in the total energy consumption will be
increased, for example.
14 Climate Change Act (609/2015)
15 Huttunen R. (Ed.) 2017 Government report on the National Energy and Climate Strategy for 2030. Publications of the Ministry of Economic Affairs and Employment 12/2017.
16 Ministry of the Environment 2017. Government Report on Medium-term Climate Change Policy Plan for 2030 – Towards Climate-Smart Day-to-Day Living. Reports of the Ministry of the Environment 21en/2017.
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According to the impact assessment of the strategy, it is estimated that while the quantity of
air pollutants will decrease as a consequence of the policies proposed in the strategy, health
risks associated with them will continue to be significant. Policies seeking to reduce transport
performance or increase the number of electric and gas-powered vehicles play the most
significant role in reducing air pollutants, as they cut the emissions of nitrogen oxides and fine
particulate matter directly. However, the impact on air quality in cities will ultimately also
depend on trends in vehicle performance and their geographical distribution. For instance, a
decrease in vehicle performance resulting from a switch to walking, cycling and public
transport plays a significant role in improving air quality in cities, in particular.
The strategy’s policies will not significantly change the current status of small-scale
woodburning, meaning that no national measures are proposed relating to small-scale
woodburning. The strategy states, however, that emissions can be influenced by means of
technical standards, innovations, education and instructions issued by municipalities, among
other things, yet no measures relating to these are proposed.
Medium-term Climate Change Policy Plan for 2030
The Medium-term Climate Change Policy Plan for 2030 – Towards Climate-Smart Day-to-Day
Living (KAISU) outlines the means to reduce greenhouse gas emissions in the non-emission
trading sectors, namely in transport, agriculture, building-specific heating and waste
management. The plan further specifies and supplements the emission reduction actions set
out in the National Energy and Climate Strategy. Linkages and cross-cutting themes between
the sectors are also examined, such as air pollution control, the role of consumption, and work
on climate change issues done locally and efforts to improve energy efficiency. The
implementation of the actions included in the plan has been started.
According to the plan, the greatest potential for reducing carbon dioxide emissions is in the
area of transport, especially in road transport. In this area, fossil fuels will be replaced with
renewable and low-emission fuels and power sources. With respect to air quality, switching to
electric vehicles is particularly important. In addition, the plan aims to improve the energy
efficiency of means of transport and the transport system. Combining various modes of
transport and reducing the transport performance of cars are of particular importance in
achieving the goal.
In the area of building-specific heating, phasing out oil heating will be encouraged, energy
efficiency will be improved, and the use of renewable energy as well as the clean combustion of
pellets and firewood will be promoted.
Most of these measures will also help to improve air quality. The plan does not include any
measures that would result in increased small-scale woodburning. If small-scale woodburning
increases for some other reason, adverse effects on air quality may also increase, unless
combustion technology and equipment, fuel quality, and awareness among equipment users
are improved simultaneously. Using the current stock of equipment, small-scale woodburning
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also produces a significant quantity of black carbon emissions, which have a significant
warming effect in the Arctic region. At the moment, there are no binding emission reduction
targets for black carbon emissions. However, it would be important to consider the impacts of
black carbon and other air pollutants on the climate, as part of national climate change policy
plans.
The Medium-term Climate Change Policy Plan for 2030 proposes measures that will create
better preconditions for developing public transport, cycling and walking, reducing the
transport performances of private cars in particular, and improving the energy performance of
buildings. Electric vehicles will reduce local emissions from combustion, thereby improving air
quality, promoting health and increasing comfort. In addition, reduced transport performances
will cut street dust emissions. Measures to reduce transport emissions include various
subsidies, as well as voluntary, informative and normative steering instruments.
1.1.3 The role and objectives of municipalities in air pollution control
According to Finnish legislation, municipalities play a key role in safeguarding good local air
quality (see section 4.2 for more detailed information with respect to the Environmental
Protection Act). For instance, municipalities monitor air quality in their territories and, based
on their monitoring activities, take any measures needed to improve air quality if the limit
values are exceeded or are at risk of being exceeded. However, the most important leverage to
affect air quality relates to decision-making other than that concerning actual air quality
monitoring. Municipalities make decisions on issues such as land use, transport and energy
production that have a significant impact on emissions, air quality and exposure.
One of the key areas of decision-making affecting emissions is the competence of
municipalities to grant environmental permits to other than large industrial installations.
Emissions are also affected through the supervision of these permits and of activities subject to
registration. In certain circumstances, municipalities can also affect emissions by issuing
environmental protection regulations applicable to activities other than those subject to a
permit or registration, to prevent environmental pollution.
Any of the decisions referred to above must be supported by a comprehensive impact
assessment carried out in advance in collaboration between various sectors so as to ensure that
impacts on air quality and human health are also considered.
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MAL agreements17 support cooperation in urban municipalities, and between municipalities
and the State, in community structure guidance and the coordination of land use, living and
transport. In terms of energy-efficiency and local air quality, district heating, combined heat
and power generation and district cooling are good ways of producing and distributing energy
in densely populated agglomerations. Land use and urban planning and decisions relating to
the siting of buildings also affect local people’s exposure. In addition, local air pollution control
includes measures to reduce street dust and emissions from small-scale woodburning.
Municipalities draw up a strategy for each term of the municipal council, specifying the
objectives and priorities of the coming years. The need to ensure a healthy living environment
that promotes well-being and to mitigate climate change is already reflected in municipal
strategies. Many municipalities have joined voluntary agreements (such as energy efficiency
agreements and Society’s Commitments to Sustainable Development) and networks that take
climate action, such as the HINKU Forum18 and the FISU network19. The work carried out for
the climate by many projects and networks also contributes to air pollution control. The
achievement of the objectives set in the municipal strategy is monitored by issuing an
extensive report on well-being for each term of the municipal council, for example. The report
can also incorporate indicators relating to the living environment and air quality.
17 Agreements concerning land use, housing and transport (MAL) are agreements that the State concludes with the main city regions in Finland.
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1.1.4 The role and objectives of key sectors in air pollution control
In Finland, emissions of air pollutants are generated by industry and energy production,
transport and agriculture, in particular. Finland reduces emissions mainly by implementing the
EU’s sector-specific emission regulations, and no sector-specific targets have been set. A
specific action plan has only been prepared for agriculture.20
1.1.4.1 Industry and energy production
Industry and energy production are still significant emission sources of sulphur dioxide,
nitrogen oxides, fine particulate matter and volatile organic compounds. However, all
emissions have fallen significantly and will continue to fall thanks to emission reduction
obligations set directly for the activities and indirectly due to increased use of low-emission and
emission-free energy sources and improved energy efficiency in production and consumption.
Key EU legislation concerning industry and energy production includes the Industrial Emissions
Directive21 and the Medium Combustion Plant Directive22. These have been implemented in
Finland with provisions on environmental permit and registration procedures, in accordance
with the Environmental Protection Act and with Government decrees23 that include emission
limit values and other detailed requirements.
18 HINKU Forum 19 FISU network 20 Action plan to reduce ammonia emissions from agriculture in Finland 21 Directive 2010/75/EU of the European Parliament and of the Council of 24 November 2010 on industrial emissions (integrated pollution prevention and control). 22 Directive (EU) 2015/2193 of the European Parliament and of the Council of 25 November 2015 on the limitation of emissions of certain pollutants into the air from medium combustion plants 23 Government Decree on Limiting Emissions from Large Combustion Plants (936/2014), Government Decree on Environmental Protection Requirements for Medium-sized Energy Production Units (1065/2017) and Government Decree on Waste Incineration (151/2013)
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Emissions into the air from industrial installations that are significant in terms of the
environment (installations covered by the directive) are limited by requiring, in the
environmental permit procedure, that the best available techniques (BAT) be introduced. In
implementing the requirement for the best available techniques, the emission limit values,
monitoring and other permit regulations of an installation covered by the directive must be
based on the BAT conclusions. The Environmental Protection Act also requires that
installations subject to an environmental permit that are smaller than installations covered by
the directive utilise the best available techniques.
Emissions into the air from industry and energy production can also be cut by increasing the
share of low-emission or emission-free forms of energy production. Measures to promote this
end are included in both the National Energy and Climate Strategy and the Medium-term
Climate Change Policy Plan for 2030 (for further details, see section 1.1.2).
Emissions from energy production can also be lowered by taking energy-efficiency measures.
As energy efficiency improves, the need to produce energy reduces. The Environmental
Protection Act provides for the possibility that the environmental permit gives regulations on
the energy efficiency of installations covered by the directive. According to the act, the
issuance of such regulations is not, however, required if the operator has joined an energy-
efficiency agreement or other similar voluntary arrangement. These voluntary energy-
efficiency agreements play a significant role in Finland, and they have become the primary
means of promoting energy efficiency. The energy-efficiency agreement for businesses
concluded for 2017–2025 covers industry, the energy sector and the private service sector.
1.1.4.2 Transport
Transport is a significant emission source of nitrogen oxides, volatile organic compounds,
particulate matter and carbon dioxide. Road transport no longer causes sulphur dioxide
emissions. Exhaust emissions from vehicles have been cut and will continue to be cut
effectively through EU legislation on different types of vehicles. However, the increase in traffic
volumes will slow down the reduction in total emissions, although unit emissions will decrease.
Finland has not been as successful in reducing street dust as in lowering direct exhaust
emissions from transport. Street dust manifests itself in elevated PM10 concentrations in spring,
in particular. Municipalities control street dust by enhanced street and road cleaning and dust
binding. It has been possible to lower the concentrations slightly from the top levels recorded
in the 1990s.
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At the moment, the key reason for developing transport systems and the stock of vehicles is
climate change mitigation. In addition to climate change policy objectives, the environmental
strategy of the Ministry of Transport and Communications24 sets out goals to cut nitrogen
oxide and particulate emissions. Nitrogen oxide emissions from road transport should be
reduced by 25% and particulate emissions by 20% by 2020 in comparison with 2011. The goal is
to achieve a significant improvement in air quality in urban areas as a result of decreased
emissions, and a reduction in cases of premature death and illness arising from poor air quality.
Most measures relating to the reduction of carbon dioxide emissions, such as the decrease in
transport performance, developments relating to the means of travel and the urban structure,
and switching to electric and gas-powered vehicles, will also lower the emissions of air
pollutants – above all the emissions of nitrogen oxides and particulate matter – and thus
measures primarily taken for climate change policy reasons will also support the reduction of
adverse effects on human health caused by poor air quality. By 2030, the goal is to have, in
total, a minimum of 250,000 electric vehicles (fully electric vehicles, hydrogen-powered
vehicles and rechargeable hybrids) and at least 50,000 gas-powered vehicles on the roads.25 All
these measures will be implemented in the next few years as part of the implementation of the
strategies.
The National Energy and Climate Strategy and the Medium-term Climate Change Policy Plan
for 2030 (KAISU) outline actions to achieve Finland’s national climate change policy objectives
(see section 1.1.2). According to the strategy, the use of biofuels will be increased in the
transport sector and the share of electricity, gas and renewable energy in the total energy
consumption will be increased.
The Medium-term Climate Change Policy Plan for 2030 proposes measures that will create
better preconditions for developing public transport, cycling and walking, and for reducing the
transport performances of private cars in particular. In addition to exhaust emissions, reduced
transport performances will cut street dust emissions. Measures to reduce transport emissions
include various subsidies, as well as voluntary, informative and normative steering instruments.
The implementation of the measures has been started by reserving an appropriation in the
central government budget for the construction of infrastructure for charging electric vehicles,
for supporting the acquisition of electric cars, and for promoting walking and cycling.
Alternative solutions to develop transport are also discussed in the report on carbon-free
transport by the Transport Climate Policy working group26. The report describes three
alternative scenarios for eliminating transport-caused emissions: the development of services,
the use of biofuels and the utilisation of technological solutions27. 24 Environmental Strategy for Transport 2013-2020
25 Government Report on Medium-term Climate Change Policy Plan for 2030. Reports of the Ministry of the Environment 21en/2017. 26 Hiiletön liikenne 2045 27 Hiiletön liikenne 2045 – polkuja päästöttömään tulevaisuuteen (Carbon-free transport by 2045 – Paths to an emission-free future – Interim report by the Transport Climate Policy working group). Liikenne- ja viestintäministeriön julkaisuja 9/2018.
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The impacts of the alternatives on air quality have not been assessed, but air quality would
probably improve regardless of the scenario selected.
One of the most important ways to improve air quality is the objective to switch from private
motoring to walking, cycling and the use of public transport services. This aim is supported by
several measures, including the programme for the promotion of walking and cycling28 and the
development of Mobility as a Service (MaaS) solutions. With regard to the means of travel, the
target set in the promotion programme is a share of 35–38% for walking and cycling in 2030
instead of the current 30%. In the more extensive MaaS model, service users in urban areas are
provided with market-based mobility and transport services to meet their needs, and thus they
do not have to use or own a private car of their own.29
Emissions from transport are reduced indirectly by the limit values set in the EU for passenger
cars, vans and heavy-duty vehicles30. At the moment, the limit values set for passenger cars
and vans are being tightened to at least a 15% reduction from 2025 and at least a 35%
reduction from 2030 onwards. The corresponding limits for heavy-duty vehicles are 15% from
2025 and at least 30% from 2030 onwards. The limit values are manufacturer-specific, and they
are calculated on the basis of the vehicles sold by the manufacturer. Therefore, the tighter the
limit values achieved, the higher the probability that the manufacturer benefits from focusing
on the development of zero- or low-emission vehicles, in particular.
1.1.4.3 Agriculture
The obligations to reduce air pollutant emissions from agriculture are based on the
requirements set in the Convention on Long-Range Transboundary Air Pollution and the
NECD. These obligations concern ammonia emissions, in particular. As much as 90% of total
ammonia emissions originate from agriculture. Finland has had difficulties in taking sufficient
measures to limit ammonia emissions since 2010. In order to meet the obligations, the Ministry
of Agriculture and Forestry and the Ministry of the Environment adopted an action plan to
reduce ammonia emissions from agriculture in Finland31 in 2017. The action plan defines the
measures that need to be taken to achieve the level of ammonia emissions required to meet
the commitment set for 2020 in the NECD. The action plan will be updated for the period 2021–
2030 in 2019.
In Finland, agriculture is the most significant (more than 90%) source of ammonia (NH3)
emissions. Therefore, the commitment set in the NECD to reduce emissions by 20% from 2020
onwards compared with 2005 mainly concerns agriculture.
28 Kävelyn ja pyöräilyn edistämisohjelma (Programme for the promotion of walking and cycling) 29 See Göran Smith, Jana Sochor, Steven Sarasini: Mobility as a service: Comparing developments in Sweden and Finland. Research in Transportation Business & Management 2018. In press.
30 COM(2018) 284 and COM(2017) 676. 31 Action plan to reduce ammonia emissions from agriculture in Finland (2018). Publications of the Ministry of Agriculture and Forestry 1b/2018.
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According to the Environmental Protection Act (527/2014), a permit is required for activities
that pose a risk of environmental pollution. This permit requirement is partly based on the
Industrial Emissions Directive (installations covered by the directive) and partly purely on
national regulations (national list of installations). The permit requirements for farm animal
facilities are based on the keeping of livestock in the facilities. The facilities also comprise the
exercise and grazing areas and the storage, handling and utilisation of the manure, urine and
wastewater produced in them. The environmental permit may include regulations on the
limitation of ammonia emissions.
Pig and poultry production units that fall within the scope of the Industrial Emissions Directive
apply the BAT conclusions established for the intensive rearing of poultry and pigs
(Commission Implementing Decision (EU) 2017/302). The Environmental Protection Act also
requires that farm animal facilities subject to an environmental permit that are smaller than
installations covered by the directive utilise the best available techniques.
In addition, the Nitrates Decree32 regulates ammonia emissions (requirements relating to
manure storage and application and the maximum amounts of nitrogen fertilisers).
The regulations in the environmental permit may also be stricter than those in the Nitrates
Decree concerning, for example, more rapid incorporation of manure (within 4 hours, for
example) and fixed covers on manure stores (including the existing ones). The permit may also
require that slurry may only be spread by injection or that spreading in windy conditions should
be avoided. As presented above, the permit regulations must be based on the best available
techniques, but the use of a specific technique cannot be required.
The various forms of aid under the EU’s common agricultural policy and the related conditions
(the Rural Development Programme for Mainland Finland 2014–2020) affect the application
rates and handling of manure and fertilisers and the related investments, for example.
Negotiations concerning aid for the post-2020 period (2021–2027) were started in summer
2018.
1.1.4.4 Small-scale woodburning
Small-scale woodburning is the most significant source of fine particulate matter emissions in
Finland, accounting for approximately 50% of all domestic PM2.5 emissions. In the future,
emissions from other sources are expected to fall significantly in accordance with the current
legislation, while it appears that emissions from small-scale woodburning will remain at the
current level or will only decrease slightly.
32 Government Decree on Limiting Certain Emissions from Agriculture and Horticulture 1250/2014
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No quantitative targets or obligations have been set to limit emissions from small-scale
woodburning. The Commission Regulations on new fireplaces (2015/1185) and boilers
(2015/1189) issued pursuant to the EU Ecodesign Directive (2009/125/ EC), which will enter into
force in 2020 and 2022, will slowly affect the amounts of fine particulate matter emissions. The
provisions do not apply to sauna stoves, which are the most significant individual source of
emissions from small-scale woodburning in Finland. Therefore, national measures are required
to reduce emissions from small-scale woodburning and the adverse effects they cause. In
particular, promoting the right methods of using fireplaces and encouraging the use of lower-
emission sauna stoves have been found to be feasible, effective and cost-effective ways to
reduce the adverse effects caused by small-scale woodburning. Such measures are proposed in
Table 11 in section 6.2.
Small-scale woodburning is also clearly the most significant source of black carbon emissions in
Finland. Black carbon is a climate forcer, the warming effect of which is emphasised in the
Arctic region (e.g. AMAP Assessment 2015). Reducing emissions from small-scale woodburning
will also limit black carbon emissions.
1.1.5 Reducing black carbon and methane emissions
The aim of reducing black carbon and methane emissions is to slow down climate change by
addressing short-lived climate forcers in addition to carbon dioxide emissions.
Measures taken to limit black carbon emissions will also reduce fine particulate matter
emissions and will thus improve air quality. The Arctic Council, of which Finland is a member,
has issued a recommendation to limit black carbon emissions by 25–33% by 2025 compared to
2013 levels33. The members of the Arctic Council34 have committed themselves to report
information on black carbon emissions, prepare projections on emission trends and outline
measures to limit emissions.
The International Maritime Organization (IMO) has discussed black carbon emissions from
ships in the Arctic region. Negotiations on measures to limit black carbon emissions from ships
will be initiated in spring 2019.
No quantitative targets have been set for reducing methane emissions at international or EU
level. Methane emissions are reduced by waste management measures, such as prohibiting the
landfilling of organic waste. No obligations or targets to reduce methane emissions have been
set for agriculture.
33 Arctic Council Ministerial Meeting, 11 May 2017, Fairbanks, USA. 34 Canada, Denmark, Finland, Iceland, Norway, Russia, Sweden and the United States.
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2 Responsibilities at national, regional and local levels
The responsibilities of the key authorities and other actors in the field of air pollution control in
Finland are listed in Table 7.
Table 7. Key authorities and other actors in the field of air pollution control in Finland
Actor Responsibilities
Ministry of the Environment
Prepares national air pollution control objectives, participates in international
cooperation, and develops and prepares legislation on air pollution control
and other environmental protection. National contact point for the
Convention on Long-Range Transboundary Air Pollution. National
coordination of the Medium-term Climate Change Policy Plan (KAISU).
Property-specific energy production and use, and implementation of the
Ecodesign Directive. policy making, coordination
Ministry of Economic Affairs and Employment
Responsibilities within the ministry’s own sector, such as the National Energy
and Climate Strategy, as well as industry and energy policy measures. policy making
Ministry of Social Affairs and Health
Responsibilities within the ministry’s own sector, such as reducing the adverse effects of air pollutants on human health. policy making
Ministry of Transport and Communications
Responsibilities within the ministry’s own sector, such as transport emissions reduction and transport policy measures. policy making
Ministry of Agriculture and Forestry
Responsibilities within the ministry’s own sector, such as reduction of ammonia emissions from agriculture. policy making
Ministry of Finance Responsibilities within the ministry’s own sector, such as economic
instruments relating to emission reduction, including fuel taxes and transport
taxes policy making
Regional State Administrative Agencies (AVI)/National Supervisory Authority of Finland (Luova)
Grant environmental permits to installations (all the large and some of the
medium-sized) falling under their competence. implementation
Centres for Economic
Development,
Transport and the
Environment (ELY
Centres)/National
Supervisory Authority
of Finland (Luova)
Guide and promote air pollution control in their respective areas.
Supervise environmental permits granted by the state supervisory authority
(AVI). Work related to air pollution control is carried out, in particular, in the
context of the supervision of energy production units and industrial
installations (e.g. supervise compliance with emission limit values and, where
necessary, negotiate with operators on measures required to reduce
emissions).
implementation, enforcement
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Actor Responsibilities
Other supervisory authorities relevant to air pollutant emissions covered by the Environmental Protection Act
Finnish Safety and Chemicals Agency (Tukes) and Finnish Transport and Communications Agency (Traficom)
Market surveillance of paints and varnishes that contain VOCs, as well as of combustion engines installed in machinery.
Municipalities Monitor air quality in agglomerations; safeguard and promote local air
quality; grant environmental permits to installations (the small and some of
the medium-sized) falling under their competence; supervise the
environmental permits of installations that they have granted, as well as
activities subject to registration (e.g. energy production); decide on town and
country planning and make decisions on transport and energy production
that have a significant impact on emissions, air quality and exposure; issue
environmental protection regulations to prevent environmental pollution
applied to activities other than those subject to a permit or registration. implementation, enforcement
Expert agencies and
research institutes
Finnish Meteorological Institute
Monitoring of air quality outside agglomerations; air quality modelling,
research and reporting; the national air quality reference laboratory;
maintenance of the air quality section in the environmental protection
database.
Finnish Environment Institute (SYKE)
Air pollutant emission scenarios and modelling, emission inventories,
reporting, research, impact assessment and monitoring; expert research
services to support the preparation and implementation of national and
international air pollution control legislation; the National Focal Point for
BAT information exchange.
National Institute for Health and Welfare (THL)
Research into exposure to air pollutants and related adverse effects on
human health, impact assessment, support for ministries, regional
administration and municipalities relating to the theme, international
cooperation (WHO, in particular).
Natural Resources Institute Finland (Luke)
Monitoring of the ecological impacts of air pollutants on forests.
VTT Technical Research Centre of Finland Ltd Modelling and calculation of transport emissions research, monitoring of effects
Operators Reduction, control and management of emissions and the related risks caused by the activities; monitoring and reporting to authorities; compliance with permit regulations (e.g. emission limit values) and the environmental protection requirements set for activities subject to registration (e.g. emission limit values); provision of information; air quality monitoring in accordance with the permit decision, carried out together with other operators and the municipality as joint monitoring.
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3 Trends in air pollution control measures, as well as in air quality and other environmental impacts, in the period 1990–2017
3.1 Emission trends
Finland’s emissions into the air (NOx, NMVOC, SOx, NH3, PM2.5, PM10, CH4 and black carbon)
from the 1980s until 2017 are illustrated in Figures 1–3. International water transport and air
transport have been excluded from the emission calculations. National emissions include
emissions from domestic water transport (inland waters and territorial waters) and air
transport (internal flights and landing and take-off cycles of international flights). Finland’s
emissions have fallen significantly, mainly based on technological development rather than
changes in consumption or production patterns. This reduction in emissions has been
contributed to by international agreements, the implementation of EU legislation, and specific
national legislation. Sulphur dioxide emissions have been reduced mainly by measures in
industry (desulphurisation systems, fuel quality); nitrogen oxide emissions by measures in
transport (passenger car engine technology and catalytic converters), as well as in energy
production and industry (combustion and deNOx technologies); volatile organic compounds by
measures in transport and industry; and particulate emissions by measures in energy
production, industry (electrostatic precipitators) and transport. In the period 1990–2017, PM2.5
emissions have, on average, accounted for 64% of PM10 emissions (range 59–74%). The
development of ammonia emissions results from changes in the number of livestock and
measures related to manure management.
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350
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Energy Transport Industry Product use Agriculture Waste Other
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Figure 2. Finland’s air pollutant emission trends (NOx, SOx, NH3, NMVOC, PM2.5 and PM10) (kt/a) by emission source. NMVOC emissions include NMVOC emissions caused by livestock, which are not covered by the NECD and which are not included in the scenarios presented in Chapter 5.
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Figure 3. Methane and black carbon emission (kt/a) trends in Finland in the period 1990–
2017 by emission source.
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3.2 Air quality trends and current air quality situation
Air pollutant concentrations in Finland are low compared to many European cities. Most
concentrations have fallen so much over the period 1990–2016 that the air quality limit values
are not exceeded or are only rarely exceeded. However, air pollutants still cause adverse effects
on both human health and the environment. A large proportion of air pollution comes to
Finland as long-range transboundary pollution.
The limiting of acidifying sulphur dioxide emissions was started as European cooperation as
early as the 1980s, and emissions and concentrations started to decline sharply. In the 2000s,
the decline in sulphur dioxide concentrations has been only slight. Locally elevated sulphur
dioxide levels may mainly be recorded momentarily in the context of industrial incidents.
Similar trends can also be seen in total reduced sulphur (TRS) emissions.
Nitrogen dioxide concentrations have fallen since the early 1990s, although clearly more slowly
than sulphur dioxide concentrations. The situation is worst in the busiest street canyons in
Helsinki, where the annual limit value set for nitrogen dioxide to protect human health was
exceeded in official air quality measurements in the period 2010–2015. Since 2015, the limit
values have, however, only been exceeded in indicative measurements. The emission
standards defined for petrol engines have also clearly lowered carbon monoxide and
hydrocarbon concentrations in traffic environments.
Finland has not been as successful in reducing street dust as in lowering direct exhaust
emissions from transport. Street dust manifests itself in elevated PM10 concentrations in spring,
in particular. Municipalities control street dust by enhanced street and road cleaning and dust
binding. Annual PM10 concentrations have thus fallen slightly from the top levels recorded in
the 1990s. In addition, thanks to street dust control measures, the number of times the 24-hour
PM10 limit value has been exceeded has decreased significantly in the Helsinki metropolitan
area, for example. The PM10 limit values have not been exceeded in Finland since 2006.
In Finland, fine particulate matter (PM2.5) measurements were included in air quality monitoring
programmes approximately ten years ago, which was before this was explicitly required by EU
legislation (the Ambient Air Quality Directive). In Finland, PM2.5 levels at all measurement sites
(43 stations in 2016) are less than half of the limit values set for the protection of human health,
and the concentrations have fallen slightly. Fine particulate matter found in the air either
originates directly from emission sources or is formed in the air when gases interact with one
another. In particular, small-scale burning of wood and other solid fuels often produces
significant amounts of direct emissions or substances that rapidly develop into particulates in
ambient air. Similarly, traffic and street dust can be considerable sources of fine particulate
matter emissions.
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The majority of fine particulate matter in ambient air results from long-range transboundary air
pollution and consists of secondary particles, meaning particles formed in the atmosphere from
chemical reactions between gases (sulphates, nitrates, ammonium compounds, organic
compounds, etc.). Particles formed in this way are permanent in the air and can be formed
slowly, which means that their effects can often be seen far away from the emission source.
Domestic sources are estimated to account for, on average, 20% of PM2.5 concentrations in
ambient air, including both primary and secondary particles.35 However, a significant share of
domestic emissions is produced in areas where the population density is also high, and thus
they have a considerable impact on the population’s exposure to air pollutants. Examples of
this include nitrogen dioxide and PM10 in traffic environments, and PM2.5, benzo[a]pyrene and
black carbon in areas with detached houses where small-scale woodburning is very common.
There have been no clear changes in ozone concentrations. Ozone can travel long distances,
and its highest concentrations are typically recorded at urban background locations and in rural
areas. The numerical value (120 µg/m3) of the long-term objective set for the protection of
human health is exceeded in Finland annually, but the number of days on which the limit value
has been exceeded has remained below 25. Therefore, the target value set for 2010 has not
been exceeded.
The general improvement of air quality has resulted in reduced population exposure to many
toxic organic and inorganic substances, especially in cities and industrial agglomerations. This
is likely to have benefited public health significantly in Finland.
Air quality trends at the air quality measurement stations of certain locations in Finland are
presented in Figures 4–9.
35 EMEP Status Report 1/2016
43
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Sulphur dioxide
SO2 annual
averages
Critical level
Source: FMI, cities, SYKE
Nitrogen dioxide
NO2 annual
averages
Limit value
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kt
60 600
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SO2 emissions
Helsinki Vallila
Raahe Varikko
Oulu Nokela
Rauma Sinisaari
Harjavalta Kaleva
Turku market
square Kokkola
Ykspihlaja Raahe
Lapaluoto
20 200 Naantali city centre
Turku Ruissalo
10
0 1980 1985 1990 1995 2000 2005 2010 2015
100
0
Imatra Pelkolan
Virolahti
Utö
Source: FMI, SYKE, cities
Figure 4. Sulphur dioxide concentrations (annual averages, µg/m3) at the air
quality measurement stations of certain locations and total sulphur dioxide
emissions (kt) in Finland 1980–2017.
300 NO2 emissions
Helsinki Töölöntulli 50 Helsinki Hämeentie
Helsinki Mäkelänkatu Helsinki Mechelininkatu
Helsinki Mannerheimint 40 Turku market square
200 Lahti Vesku Oulu city centre Vantaa Tikkurila
30 Helsinki Vallila Helsinki Kallio Raisio city centre Kajaani city centre
20 Jyväskylä Lyseo 100 Lahti Kisapuisto
Kotka Kirjastotalo Oulu Pyykösjärvi
10 Imatra Rautionkylä Porvoo Mustijoki Espoo Luukki Virolahti
0 0 1994 1997 2000 2003 2006 2009 2012 2015
Utö Ähtäri
Figure 5. Nitrogen dioxide concentrations (annual averages, µg/m3) at the air
quality measurement stations of certain locations and total nitrogen dioxide
emissions (kt) in Finland 1994–2017.
SO
2 c
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Raja-arvo
Hengitettävät hiukkaset PM10
vuosikeskiarvot
15
10
5
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1998 2001 2004 2007 2010 2013 2016
100
50
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direct PM2.5 emissions Helsinki Töölöntulli EspooTuomarila Helsinki Hämeentie
Helsinki Mannerheimint Tampere Epilä Turku Oriketo Helsinki Mäkelänkatu Helsinki Mechelin Helsinki Kallio
Helsinki Katajanokka Oulu city centre Lappeenranta Tirilä Imatra Rautionkylä
Lahti market square Vantaa Tikkurila
Tampere bus station Lappeenranta city centre Helsinki Vartiokylä Espoo Leppävaara Espoo Lintuvaara Lappeenranta Pulp Tampere Kaleva Raahe Merikatu
Espoo Luukki Virolahti Kouvola Kankaan Koulu Vaasa water tower
Kuopio Kasarmipuisto Vantaa Hämeenlinnanv Imatra Teppanala Lohja Nahkurintori Utö Kuopio Niirala
Vaasa city centre Rovaniemi Etelärinne Lahti Saimaankatu Varkaus main health centre
Vantaa waste-to-energy plant Kittilä Matorova
Source: FMI, cities, SYKE
Figure 6. Fine particulate matter concentrations (annual averages, µg/m3) at the
air quality measurement stations of certain locations and total fine particulate
matter emissions (kt) in Finland 1998–2017.
Helsinki Töölöntulli Helsinki Mäkelänkatu
40 Helsinki Mannerheimint Helsinki Töölö Turku Market Place Helsinki Vallila
Lahti Laune Tampere Pirkankatu
Pietarsaari Bottenviks Lahti Market Place
30 Vaasa Centre Kotka Rauhala Helsinki Kallio Kotka Library
Raisio Centre Imatra Teppanala
Lappeenranta Joutseno Jyväskylä Lyseo
20 Heinola Centre Kokkola Centre
Raahe Centre Varkaus Psaari
Äänekoski Hiski Rauma Hallikatu
Imatra Mansikkala Naantali Centre 10 Imatra Rautionkylä Kuopio Kasarmipuisto
Jyväskylä Palokka Oulu Pyykösjärvi
Kokkola Ykspihlaja Kaarina
0
1994 1998 2002 2006 2010 2014 2018
Muonio Sammaltunt
Source: FMI, cities
Figure 7. PM10 concentrations (annual averages, µg/m3) at the air quality
measurement stations of certain locations in Finland 1994–2017.
Fine particulate
matter PM2.5
annual averages
WHO guideline value
PM
2.5
con
cen
tra
tio
n µ
g/m
3
PM
10 c
on
cen
tra
tio
n µ
g/m
3
Dir
ect
PM
2.5
em
issi
on
s
kt
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2.0
1.5
Benzo[a]pyrene BaP annual averages
Target value
Raahe Lapaluoto
Vantaa Päiväkumpu
Vantaa Ruskeasanta
Espoo Lintuvaara
Helsinki Puistola
Vantaa Rekola
Vantaa Rekola Etelä
Loviisa
Raahe Merikatu Espoo Kattilalaakso
1.0 Helsinki Vartiokylä
Raahe Centre
Helsinki Mäkelänkatu
0.5
0.0
2008 2010 2012 2014 2016
Helsinki Kallio
Kirkkonummi Veikkola
Virolahti
Juupajoki Hyytiälä
Kittilä Matorova
Source: FMI, cities
Figure 8. Benzo[a]pyrene concentrations (annual averages, µg/m3) at the air
quality measurement stations of certain locations in Finland 2008–2017.
12 Arsenic As annual averages Harjavalta Kaleva
Harjavalta Pirkkala
10 Helsinki Kallio
Raahe Lapaluoto
8
6
Target value
4
2
0 2012 2014 2016
Raahe Merikatu
Raahe Centre
Kokkola Yksipihlaja
Virolahti
Ähtäri
Juupajoki Hyytiälä
Kittilä Matorova
Source: FMI and cities
Figure 9. Arsenic concentrations (annual averages, ng/m3) at the air quality
measurement stations of certain locations in Finland 2007–2017.
Ba
P c
on
cen
tra
tio
n n
g/m
3 A
s co
nce
ntr
ati
on
ng
/m3
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3.3 Adverse effects of air pollutants on human health
The emissions of all common gaseous and particulate pollutants have fallen considerably over
the past few decades, which has been directly reflected in their concentrations in ambient air in
cities and industrial agglomerations.
The adverse effects of air pollutants on human health are mainly (64%) caused by fine
particulate matter (PM2.5), which contains carcinogenic compounds and heavy metals, for
example. PM10 accounts for 13% of adverse effects, and nitrogen oxides (NOx) account for
13%.36 Particles are carried by air into all parts of the respiratory tract and not only cause direct
allergic, immunological and toxic effects in the lungs, but also partly enter the bloodstream and
are transferred further to other parts of the body, such as the myocardium and the brain. These
particles increase cardiovascular disease and mortality through oxidative stress and systemic
inflammation. The effects of other air pollutants are also severe, but less significant than those
of fine particulate matter.
Figure 10 illustrates the shares of various air pollutants in causing adverse effects to human
health in Finland in 2013. The assessment has been made using the disease burden concept.
Disease burden describes loss of health among the population. It combines the number of
years lost due to premature death with morbidity.
Figure 10. Shares of various air pollutants in the total disease burden caused by air
pollutants in Finland in 2013. TRS= total reduced sulphur, C6H6=benzene, PMc =
coarse particulate matter (Ministry of the Environment 2016). 36 Ilmansaasteiden terveysvaikutukset YMra_16_2016 (Health effects of air pollutants)
Supplementary assessment
Main assessment
Other
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Although the air quality situation has improved clearly in Finland in recent years, adverse
effects on human health are still caused at the air pollutant levels recorded in Finland.
3.3.1 Adverse effects of fine particulate matter on human health
The mass concentrations of fine particulate matter (PM2.5) have fallen steadily over the past
few decades. Systematic measurement of PM2.5 concentrations was not started in cities in
Finland and other EU Member States until the early 2000s. The decrease in concentrations is
mainly attributable to extensive technological improvements implemented and being
implemented in industrial and energy installations and in road transport.
At the moment, the most important adverse effects of air pollutants are assessed to be those
caused by fine particulate matter. It has not been possible to identify an absolute safe
threshold level in terms of human health for fine particulate matter concentrations in urban air.
Numerous studies have found that even low fine particulate matter concentrations are harmful
to health and that limiting exposure to fine particulate matter is beneficial for health even at
low concentration levels. Risks of adverse health effects both appearing in the short term and
appearing in the long term grow as the PM2.5 concentration increases.
Scientific research in recent decades has shown that long-term exposure to PM2.5, in particular,
is harmful to cardiac, vascular and respiratory health (Janssen et al. 2012; WHO-REVIHAAP
2013; Chafe et al. 2015). The evidence is strongest for an elevated risk of chronic bronchitis, but
as fine particles penetrate the peripheral parts of the lungs and cause a continuous low-grade
inflammation there and in the blood circulation, this is likely to increase the risk of coronary
heart disease and cerebrovascular diseases, for example. According to an assessment carried
out by the WHO, long-term exposure (lasting several years or decades) to fine particulate
matter also increases the risk of lung cancer (WHO/IARC 2016). In addition, low-grade
inflammation appears to be associated with the development of many other chronic diseases.
Due to less reliable study designs and records than those used in the studies mentioned above,
there are far fewer studies on increased symptoms and usual pulmonary infections, outpatient
care visits, use of medication, and absences from work, school or kindergarten related to
exposure to particulate matter. This has led to the underestimation of many milder effects on
health, and in most cases, assessments of adverse effects focus on the assessment of
premature deaths and years of life lost.
Even short-term exposure to fine particulate matter can cause adverse effects on human
health. In the case of patients with respiratory diseases, such as asthma and chronic obstructive
pulmonary disease, elevated PM2.5 concentrations often increase symptoms and weaken their
condition rapidly, whereas in patients with cardiovascular diseases, adverse effects typically
appear several hours or days after higher than normal exposure. Several domestic and foreign
studies have demonstrated that the adverse effects of PM2.5 (sudden deaths, hospital
treatment, and changes in cardiac and pulmonary function) can be seen even at the lowest
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concentrations measured in urban air or with personal monitors.
Fine particles that originate from combustion and that come from low nearby emission sources
grow rapidly into larger particles with a diameter of 0.1–1 µm in the atmosphere, which can
penetrate into dwellings and other buildings, such as schools and day-care centres, and stay in
the indoor air for several hours before they settle on surfaces. Therefore, they can be inhaled
into the lungs indoors for a much longer period than larger and heavier particulate pollutants. A
fairly considerable share of the total exposure to harmful chemical substances borne by black
carbon, for example, can thus happen within one’s own home, where most people spend most
of their time during the week or year. A higher total exposure increases the risk of morbidity in
sensitive population groups, or of the worsening of an existing chronic disease.
3.3.2 Assessments of the severity of adverse effects on human health
Advanced methods to assess premature mortality associated with exposure to air pollutants
have only been available to researchers for approximately ten years now. The EU’s second
programme on air quality, the Clean Air for Europe Programme (CAFE 2013), estimated on the
basis of the health study reviews of the World Health Organization (WHO) that long-term
exposure to PM2.5 caused approximately 380,000 premature deaths in the EU-27 in 2010,
mainly due to chronic cardiovascular and respiratory diseases. The worst gaseous air pollutant,
ozone, caused a further 26,000 sudden deaths. It was estimated that premature death resulting
from long-term exposure to fine particulate matter had shortened the lives of sensitive patients
with chronic diseases by approximately ten years, on average. The overall costs of premature
deaths and increased morbidity in the EU-27 in 2010 were estimated at EUR 330–940 billion,
including direct costs and indirect economic losses.
In studies, independent of one another and applying different methods to assess exposure, the
number of premature deaths caused by fine particulate matter in Finland during the period
2005–2015 has been estimated relatively consistently at 1,600–2,000 per year. The number of
sudden deaths caused by ozone has been estimated at less than 100 cases per year.
A Finnish assessment carried out on the situation in 2005 found that the population’s long-term
exposure to PM2.5 concentrations in ambient air caused a higher number of premature deaths
(1,800 cases) than all other common environmental factors combined (Hänninen et al. 2010)
(Figure 11).
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Environmental exposure
Arsenic, drilled wells*
Benzene*
Radiation, drilled
wells
Chernobyl
Dioxin*
Ozone***
Drinking water chlorination*
Noise*
*
UV radiation
Radon
Passive smoking
Fine particulate
matter
0 50 100 150
Number of cases/year
* Includes both cancer morbidity and mortality
** One third of infarctions have been assumed to be fatal *** Divided by the ratio of the shortening of life expectancy attributable to deaths caused by fine particulate matter and ozone
Figure 11. Estimated numbers of premature deaths caused by environmental
pollutants and nuisance in Finland in 2005 (Hänninen et al. 2010).
According to an EU report (CAFE 2013), the estimated annual economic losses caused by
premature deaths and increased morbidity were approximately EUR 2.3–5.3 billion per year in
Finland in 2010.
3.3.3 Outlook by 2030
The impact of the National Energy and Climate Strategy and the EU’s air quality policy on the
disease burden and premature deaths caused by fine particulate matter in Finland has been
assessed (Karvosenoja et al. 2017). According to the assessment, the number of premature
deaths would decrease by approximately 20% between 2015 and 2030 if the population
remained unchanged. Approximately half of this reduction would result from reduction in long-
range transboundary pollution. Population growth and ageing, as well as continuing
urbanisation, will increase the quantity of adverse effects caused by fine particulate matter.
Taking into account the assumed demographic change, the estimated reduction in premature
deaths between 2015 and 2030 would be 10%.
With respect to domestic emission sources, the majority of health benefits would be achieved
by reduced exhaust emissions from transport. The adverse effects on human health caused by
small-scale woodburning and street dust are estimated to remain at approximately the current
level. Small-scale woodburning would thus be the most important individual factor
0.01
280
288
1,800
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contributing to the disease burden caused by fine particulate matter, accounting for more than
50% of all PM2.5 emissions from domestic sources and premature deaths in 2030.
Street dust would account for less than 10% of all PM2.5 emissions in 2030. However, PM2.5 only
accounts for approximately 10% of all street dust particles, and the emissions of coarse
particulate matter (with a diameter between 2.5 µm and 10 µm) are considerably higher. Street
dust accounts for approximately one third of Finland’s total PM10 emissions. Coarse particulate
matter also causes serious adverse effects on health, especially to people suffering from
respiratory conditions and asthma. In addition, it reduces comfort during the street dust
season.
The report did not assess the adverse health effects of secondary particles emitted from
domestic sources, which may be significant. However, these effects will presumably decrease
in the future as gaseous emissions involved in the formation of such particles fall.
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3.4 Environmental impacts of air pollutants
In order to assess the adverse effects of emissions that cause acidification, eutrophication and
the formation of ground-level ozone, critical loads have been set for various types of
ecosystems, meaning air pollutant depositions or concentrations below which emissions
should be reduced. Critical loads are set at a level below which significant long-term harmful
effects on sensitive elements of the environment do not occur according to current knowledge.
Acidification
Acidification of the environment refers to a process in which the capacity of soil or waters to
neutralise acid deposition from the atmosphere starts to weaken. As the process progresses,
the acid neutralising capacity of the system runs out, and the pH falls permanently below 5.
Low soil pH decreases the availability of alkaline nutrients to plants and increases the
conversion of aluminium and heavy metals into toxic soluble forms. Soluble metals, aluminium
in particular, and low pH damage aquatic organisms through acute or chronic toxic effects and
reduce biodiversity as species sensitive to acidification disappear.
The most significant acidifying compounds are sulphur dioxide, nitrogen oxides and ammonia.
These emissions can be transported in the atmosphere over hundreds, even thousands of
kilometres. In the calculations modelled for 2014, domestic emissions are estimated to account
for 14% of the total deposition of oxidised sulphur compounds in Finland (EMEP 2016).
According to the modelling, 18% of oxidised nitrogen compounds and 38% of reduced nitrogen
compounds originated from domestic emissions in 2014 (EMEP 2016).
Acidifying compounds are deposited on the ground in rain as wet deposition or in particles and
gases as dry deposition. Sulphur dioxide, nitrogen oxide and ammonia emissions from Europe
have fallen considerably over recent decades.
In Finland, the estimated surface area of ecosystems at risk of acidification is less than 1% of
the total area of ecosystems (Table 8). This estimate is based on an assessment of the
acidification sensitivity of a representative group of lakes (total surface area 287 km2)
(Hettelingh et al. 2017).
Eutrophication
Eutrophication refers to an increase in primary production caused by an excessive supply of
nutrients to plants and algae. Nitrogen deposition, the amount of which is affected by
atmospheric emissions of nitrogen oxides and reduced nitrogen compounds (e.g. ammonia),
causes eutrophication in terrestrial and aquatic ecosystems.
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The estimates for eutrophication are based on empirical critical loads of nitrogen, which are in
the range of 3–5 kg N/hectare/year for most ecosystems in Finland (Holmberg et al. 2011, 2017).
It was estimated that the critical level for eutrophication will only be exceeded in 3% of the area
of ecosystems in Finland in 2020. The exceedances were calculated for ecosystems within
Natura 2000 sites, as well as for lakes and other habitats, covering a total area of 41,000 km2
(Hettelingh et al. 2017). Although the eutrophying atmospheric nitrogen deposition has
decreased in both the EU and Finland (Table 8), it still exceeds the critical level in some parts of
Southern and Western Finland (Hettelingh et al. 2017a) (Table 8, Figures 12 and 13). The
nitrogen deposition can also cause a threat to biodiversity (Table 8, Figure 14).
Table 8. Ecosystem area (% of the total area of ecosystems) where the critical
loads are exceeded in Finland and in the EU-28 in 2005 and 2020 (Hettelingh et al.
2017)
2005 2020
Finland EU-28 Finland EU-28
Acidification 1 14 0 6
Eutrophication 10 81 1 71
Biodiversity 9 28 4 10
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Ozone formation
In Finland, the concentrations of ground-level ozone do not show a clear rising or declining
trend. In the 1990s, when measurement was started, the concentrations first rose, reached
their peak at the turn of the century, and have been in slight decline in the 2010s. The critical
levels set for the protection of vegetation were not exceeded in Finland in 2014 (EEA 2017).
However, the long-term objective set for the protection of vegetation (6,000 µg/m3 ∙ h) is often
exceeded at background stations in Southern Finland.
Figure 12. Ecosystem area at risk of acidification in Europe in 2005 and 2020
(Hettelingh et al. 2017).
Figure 13. Ecosystem area at risk of eutrophication in Europe in 2005 and 2020
(Hettelingh et al. 2017).
Exceedance (AAE) of CLaci Exceedance (AAE) of CLaci
Exceedance (AAE) of CLeutN Exceedance (AAE) of CLeutN
no exceedance no exceedance
no exceedance no exceedance
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Figure 14. Ecosystem area at risk of loss of biodiversity, meaning exceedances of
critical loads of deposition in Europe in 2005 and 2020 (Hettelingh et al. 2017).
Exceedance (AAE) of CLbio
no exceedance no exceedance
Exceedance (AAE) of CLbio
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4 Compliance with obligations related to emissions and air quality
As a general rule, Finland has reduced its atmospheric emissions at least in accordance with the
commitments and obligations laid down in EU directives and national legislation. In the period
2010–2016, the commitments were only exceeded for ammonia emissions. In general, air
quality in Finland is also good and air pollutant concentrations are low. However, emission
levels permitted according to the air quality obligations have been exceeded on some
occasions, as described above in section 3.2.
4.1 Exceedances related to emission reduction commitments
According to the EU’s first NECD (2001/81/EC), Finland’s maximum ammonia emissions since
2010 should have been 31 kilotonnes per year. In the period 1990–2015, Finland exceeded the
levels of emissions permitted according to its reduction commitments every year (Table 9). In
2018, Finland’s ammonia emissions into the air were calculated using a new revised method,
thanks to which the ammonia emissions have met the commitments since 2016.
Table 9. Total ammonia emissions and share of agriculture of the emissions in 1990, 2005 and 2010–2016
Year Total emissions (kt)
Agriculture (kt)
1990 33.0 31.1
2005 37.3 31.7
2010 34.9 31.0
2011 33.8 30.3
2012 33.3 29.9
2013 32.7 29.5
2014 33.1 29.8
2015 31.4 28.5
2016 31.0 28.1
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4.2 Exceedances of obligations related to air quality
The annual limit value set for nitrogen dioxide and the 24-hour limit value set for PM10
have been exceeded occasionally in the largest cities and in the vicinity of busy roads.37
The concentrations of lead, carbon monoxide, benzene and sulphur dioxide recorded
in Finland are clearly below the limit values set in the Ambient Air Quality Directive. In
addition, the pollutant concentrations recorded across Finland are below the one-hour
limit value for nitrogen dioxide and the annual limit values for PM10 and PM2.5.
Annual limit value for nitrogen dioxide
The annual limit value for nitrogen dioxide set for the protection of human health, 40 µg/m3,
has been exceeded in Helsinki only. Exceedances have been recorded since 2005 at individual
measurement stations. The annual limit value for nitrogen dioxide has been binding on
Member States in the EU since 2010. The European Commission granted the City of Helsinki a
postponement of the deadline for compliance under the Ambient Air Quality Directive with
respect to the limit value for nitrogen dioxide until the beginning of 2015.
According to national legislation, if a limit value is exceeded, or if there is a risk of such,
the municipality must prepare an air quality protection plan in accordance with the
Environmental Protection Act, aiming to keep pollution below the limit value. Based
on this, air quality protection plans were drawn up in the municipalities of the Helsinki
metropolitan area to reduce air pollutant concentrations and improve air quality for
the period 2008–2016. However, the measures defined in the plans were not effective
enough, and the limit value was still exceeded in Helsinki in 2015. Therefore, the City
of Helsinki prepared a new air quality protection plan for 2017–202438.
In 2016 and 2017, limit values were not exceeded at the measurement stations that are
used for official supervision of limit values. However, nitrogen dioxide concentrations
are also monitored using less expensive methods than those used at the measurement
stations. These methods do not meet the quality requirements laid down for official
monitoring, but help to provide a more comprehensive picture of air quality. These
include methods such as the passive sampler method and new sensor techniques. The
results of these methods show that there is still a need for Helsinki to follow its new air
quality protection plan.39
The most significant source contributing to the high annual concentrations of nitrogen dioxide
in the urban environment is road transport. National legislation addresses emissions and
concentrations by limiting exhaust emissions from road transport in accordance with the EU’s
legislation on vehicles.
37 http://www.ymparisto.fi/fi-FI/Ilmasto_ja_ilma/Ilmansuojelu/Ilmansuojelun_raja_ja_ohjearvot 38 https://www.hel.fi/helsinki/fi/asuminen-ja-ymparisto/ymparistonsuojelu/ohjelmat/ilman 39 https://www.hsy.fi/en/residents/theairyoubreathe/Pages/airqualitymap.aspx
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Nitrogen dioxide concentrations can be lowered by influencing transport, improving the
efficiency of transport system planning, and ensuring that housing, services and jobs form as
effective a whole as possible, promoting low-emission public transport (including the metro
and electric buses), walking and cycling, and seeking to reduce the use of private cars in city
centres. Key measures in the new air quality protection plan of the City of Helsinki include
introducing low-emission and zero-emission buses, increasing the share of alternatively
powered vehicles in the vehicle stocks of the City and its partners, extending the network of
charging stations for electric cars, and applying a comprehensive approach to land use and
transport planning.
The 24-hour limit value for PM10
The 24-hour limit value for PM10, not to be exceeded on more than 35 days per calendar year,
50 µg/m3, has been exceeded in Finland in Helsinki only. The limit value has been binding on
Member States since 2005.
The 24-hour limit value for PM10 was exceeded in Helsinki in 2003, 2005 and 2006. A report, as
referred to in the Environmental Protection Act, was prepared on the occasions the levels were
exceeded in 2003, and this stated that the exceedances were mainly caused by sanding for the
winter maintenance of streets and roads, assessed the areas where the limit value was
exceeded, and described the measures that the City would take to lower concentrations. The
European Commission approved the report at the beginning of 2006. Similar reports were
prepared on the exceedances in 2005 and 2006.
According to national legislation, if a limit value is exceeded, or if there is a risk of such, the
municipality must prepare an air quality protection plan in accordance with the Environmental
Protection Act, aiming to keep pollution below the limit value. If the limit value is exceeded due
to sanding or salting for the winter maintenance of roads and streets, the municipality may
prepare, instead of an air quality protection plan, a report on the exceedance, the reasons for it,
and the measures required to lower concentrations. Although the 24-hour limit value for PM10
has not been exceeded in the Helsinki metropolitan area since 2006, street dust control has
been included in the action plans prepared to lower concentrations and improve air quality in
the Helsinki metropolitan area for 2008–2016 and in the air quality protection plan for 2017–
2024, prepared by the City of Helsinki.
Exceedances of the numerical value of the 24-hour limit value for PM10 are recorded in Finnish
cities. A significant proportion of these exceedances are detected in traffic environments in
winter and spring, in particular (Figure 15). The main reasons for high concentrations detected
in spring are the use of studded tyres and the particle load caused by sanding for winter
maintenance of roads and streets. Studs erode asphalt from the start of the studded tyre
season (beginning of November), and the material used for sanding also increases the amount
of dust, as the material is crushed under the tyres and simultaneously erodes the road surface
by means of the sandpaper effect.
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PM10 WHO guideline value Maximum number of permitted exceedances
The material itself can also contain dust. In moist conditions, the dust accumulates on street
surfaces, and it is stirred up into the atmosphere by traffic in dry weather.
As the number of days with exceedances is close to 35, it can be assumed that the critical
number of days with exceedances would be below 35 if the number of studded tyres were lower
or alternatively if no winter sanding was used. The City of Helsinki, for example, has been able
to reduce the number of days with exceedances by enhancing street cleaning and winter
sanding and salting. Smaller quantities of screened and washed crushed rock that produces less
dust are used, and applications are targeted at areas with problems. The street cleaning
process in spring is systematic and as timely as possible. In addition, the equipment used in
cleaning is more effective (e.g. suction washing road-sweepers) and streets are moistened with
weak calcium chloride solution to bind dust on the dustiest days. However, not all of these
measures are taken widely in Finland, and the measures are not in all respects sufficient with
respect to human health and comfort. So far, it has only been possible to solve the problem of
exceeding the air quality limit value, not the adverse effects on human health and comfort
caused by street dust.
35 Oct-Dec
30 June-Sep
25 Mar-May
20 Jan-Feb
15
10
5
0
* Less than 90% of airport data (monitoring site changed on 18 October 2017).
Figure 15. The distribution of the exceedances of the numerical value of the 24-
hour limit value for PM10 at the measurement stations of the Helsinki Region
Environmental Services Authority HSY in the Helsinki metropolitan area (HSY
Ilmanlaatu pääkaupunkiseudulla vuonna 2017).
Nu
mb
er o
f ex
ceed
ance
s o
f th
e lim
it v
alu
e
leve
l (50
µg
/m3 )
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Ozone
As a general rule, the ozone target values set for 2010 are not exceeded in Finland, but the
long-term objectives are exceeded at rural background stations, in particular.
In order to avoid adverse effects on human health, the maximum daily eight-hour mean for
ozone should not exceed 120 µg/m3. However, the daily mean is permitted to exceed this level
25 times per year. Such exceedances are recorded at rural background stations every year.
However, the number of exceedances has been less than 25, and thus the target value is not
exceeded.
The public must be informed if the one-hour value of ozone concentration exceeds
180 micrograms per cubic metre of air. Concentrations as high as this are rare in Finland. The
most recent ozone episode exceeding the information threshold was measured in Virolahti in
May 2006.
Benzo[a]pyrene and certain metals
In Finland, the concentrations of arsenic, cadmium, nickel and benzo[a]pyrene are usually
clearly below the target values. An exception is made by some industrial plants: within their
area of influence, concentrations may exceed the set target values. Annual concentrations of
benzo[a]pyrene may also be high – close to the target value concentration or even above it – in
agglomerations where small-scale woodburning is very common.
The annual average concentration of benzo[a]pyrene in ambient air may not exceed the target
value of 1 ng/m3. This target value has been applied since 2013. It was exceeded in Raahe in
2013–2016 and in the Helsinki metropolitan area (Vantaa) in 2014.
The annual average concentrations of arsenic, cadmium and nickel in ambient air may not
exceed the target values of 6 ng/m3, 5 ng/m3 and 20 ng/m3, respectively. These target values
have been applied since 2013. Of these, the target value for arsenic was exceeded in Harjavalta
in 2013–2016 and the target value for nickel in 2016.
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5 Emission trends according to the baseline projection This chapter presents the historical trends in the emissions discussed in the NAPCP and the
emission projections for 2020, 2025 and 2030. The emission projection modelled for 2020–2030
is referred to as the baseline projection. The development of emissions is affected by
technological reduction measures, as well as by changes in the use of fuels, the number of
livestock and other activities.
Projections of the activities included in the baseline projection, meaning developments in the
use or volume of fuels in various sectors, are mainly based on the National Energy and Climate
Strategy and, where necessary, on other sources (Table 10). In addition, the baseline projection
takes account of any legislative measures that have an impact on the reduction of emissions
and on which an implementation decision has already been made (Table 11). The measures
proposed in the Medium-term Climate Change Policy Plan for 2030 (KAISU) are not included in
the baseline projection.
Table 10. Projections of activities used in emission modelling for the baseline
projection. For transport, the emission projection has been directly extracted from
the LIPASTO calculation system for traffic exhaust emissions and energy use.
Emission sector Activity/emission projection
Energy production and industry National Energy and Climate Strategy, the policy scenario
Small-scale woodburning by households
National Energy and Climate Strategy, the basic scenario
Waste sector National Energy and Climate Strategy, the basic scenario
Transport and machinery LIPASTO by VTT Technical Research Centre of Finland Ltd.
Agriculture NH3 model by LUKE and SYKE
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Table 11. The most important legal instruments and measures affecting the
emission trends in the emission projection for 2020–2030, that is, the baseline
projection
Activity Instrument or other measure
Energy production and
industry (including
waste incineration)
Industrial Emissions Directive, BAT conclusions concerning energy
production and other industrial sectors, Medium Combustion Plant
Directive
Environmental Protection Act (527/2014)
Government Decree on Limiting Emissions from Large Combustion
Plants (936/2014)
Government Decree on Environmental Protection Requirements for
Medium-sized Energy Production Units (1065/2017)
Government Decree on Waste Incineration (151/2013)
Transport Euro emission classes (Euro 1–Euro 6) Act on the promotion of biofuels in transport (Laki biopolttoaineiden käytön edistämisestä liikenteessä, 446/2007)
Agriculture Industrial Emissions Directive and BAT conclusions on the intensive
rearing of poultry and pigs (Commission Implementing Decision (EU)
2017/302), Nitrates Directive
Environmental Protection Act 527/2014
Nitrates Decree (1250/2014)
Action plan to reduce ammonia emissions from agriculture in Finland.
Publications of the Ministry of Agriculture and Forestry 1b/2018.
Small-scale woodburning
Ecodesign Directive (2009/125/EC) and Commission Regulations
2015/1185 on fireplaces and 2015/1189 on boilers issued pursuant to it
Waste sector Waste Act (646/2011)
Government Decree on Landfills (331/2013)
The fuel combustion projections for the energy production and industrial processes sectors
have been extracted from the policy scenario of the National Energy and Climate Strategy,
which is better in line with the target of phasing out the use of coal by 2030 set in the
Programme of Prime Minister Sipilä’s Government than the basic scenario. According to the
policy scenario, the use of coal will not be phased out completely, but it will decline
considerably more than in the basic scenario. Overall, the two scenarios are very similar with
respect to the use of fuels by the energy production sector. The activities of small-scale
woodburning are as presented in the basic scenario of the National Energy and Climate
Strategy.
The emission projection for fuel use by means of transport and related emissions is based on
the LIPASTO model developed by VTT Technical Research Centre of Finland Ltd. Its calculation
methods were updated in 2018. With respect to the use of fuels, the activity projection for road
transport is slightly higher than the scenarios of the National Energy and Climate Strategy,
whereas the projection for machinery and transport other than road transport corresponds well
to the strategy. The sector “Machinery and other transport” also includes emissions from rail
transport, as well as from domestic water transport and air transport.
Emissions from industry and energy production, as well as from small-scale woodburning, were
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calculated using the national FRES emission model developed by SYKE (Karvosenoja 2008). In
addition, street dust emissions caused by transport were estimated using the FRES model,
based on a national application of the NORDUST model (Kupiainen et al. 2018). With respect to
emissions from agriculture, the projections of changes in the number of livestock and manure
management are central. They are based on data provided by the Natural Resources Institute
Finland (Luke).
Ammonia emissions from agriculture were calculated using the emission model for agriculture
(Grönroos et al. 2017). No projections were modelled for some of the less significant emission
sectors, but emissions were presented at the level of the most recent inventory year, 2016.
The following sections present projections of air pollutants covered by the NECD and discuss
the most important factors affecting the evolution of emissions. The emission trends present
the situation at five-year intervals so that the figures for 2005–2015 are extracted from the
national emission inventory (2018 reporting year) and the projections for subsequent years are
modelled, proportional reductions from the 2015 emissions.
The emission reduction commitments laid down in the NECD are also shown in the figures
describing the emission projections for those air pollutants for which such commitments have
been set. The emission reduction commitments were set as percentages compared to
emissions in 2005. Therefore, the amount of emissions that meets the commitments in 2020
and 2030 may still change if the development of calculation methods used for emission
inventories results in changes to the 2005 emission estimates. According to the most recent
emission reporting, the emission reduction commitments set for 2020 were already met in
201640, whereas the emissions of some air pollutants must still be lowered from the current
level to meet the commitments set for 2030.
In addition to the air pollutants covered by the NECD, black carbon and methane emission
trends were estimated. The projected development of these emissions is central to the work of
the Arctic Council in preventing warming in the Arctic region. In addition, black carbon
emissions must be reported in accordance with the NECD.
PM10 is not covered by the reduction commitments laid down in the NECD, but total PM10
emissions must also be reported to the Commission annually. Therefore, the development of
these emissions is not discussed in this chapter, but in Chapter 3.
40 Informative Inventory Report (IIR)
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5.1 Sulphur dioxide
Situation: According to the development in the baseline projection, the emission reduction
commitment set for 2020 has already been met, and the commitment set for 2030 will also be
met.
Most sulphur emissions in Finland originate from the use of fuels in energy production and
industry (Figure 16). The largest individual emission sources are oil refining and metal industry
installations, as well as coal-fired power plants. In 2016, emissions were clearly below the levels
defined by the commitments, and the declining use of coal and the application of BAT
conclusions41 in power stations will further lower emissions.
SO2 80
70
Road transport 60
Machinery and other transport
50
Small-scale woodburning
40
Industrial processes
30
Fuel combustion in energy production and industrial processes
20
Other (e.g. agriculture and peat production)
10
0
2005 2010 2015 2020 2025 2030
Figure 16. Sulphur dioxide emissions according to the baseline projection by
sector. The orange lines represent the levels defined by the emission reduction
commitments.
41 http://www.ymparisto.fi/fi-FI/Kulutus_ja_tuotanto/Paras_tekniikka_BAT/Vertailuasiakirjat
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5.2 Nitrogen oxides
Situation: According to the development in the baseline projection, the emission reduction
commitment set for 2020 has already been met, and the commitment set for 2030 will also be
met.
In Finland, the most significant sources of nitrogen oxides are road transport and mobile
machinery, as well as energy production and industry (Figure 17). Emissions from transport and
machinery have fallen and will continue to fall thanks to EU legislation, although traffic
volumes have been increasing slightly. The realisation of the assumed emission reductions in
the transport sector plays a key role in meeting the emission reduction commitments set for
nitrogen oxides. According to the baseline projection, the proportion of alternatively powered
vehicles is growing, but is not yet significant. Therefore, emission reductions are mainly
attributable to advances in combustion engine technology. In many cases, the nitrogen oxide
emissions of new engines have not corresponded to the levels stated by the manufacturers in
normal use, and the impact of this information was updated in the LIPASTO emission values in
2018.
All combustion processes produce nitrogen oxide emissions. According to the National Energy
and Climate Strategy, the use of fuels by energy production will increase by more than 20%
between 2015 and 2030. Therefore, NOx emissions from energy production will fall only
moderately according to the baseline projection, although many energy production
installations invest in and introduce emission reduction methods based on BAT technology. In
2030, energy production and industry would account for almost 60% of total NOx emission in
Finland.
NOx 250
200 Road transport
Machinery and other transport
150
Small-scale woodburning
100 Industrial processes
Fuel combustion in energy production
and industrial processes
50 Other (e.g. agriculture and peat production)
0
2005 2010 2015 2020 2025 2030
kt/a
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Figure 17. Nitrogen oxide emissions according to the baseline projection by
sector. The orange lines represent the levels defined by the emission reduction
commitments.
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5.3 Fine particulate matter
Situation: According to the development in the baseline projection, the emission reduction
commitment set for 2020 has already been met, and the commitment set for 2030 will also be
met.
Fine particulate matter emissions are produced by many sectors, but small-scale woodburning
has become the most significant emission source in the 2000s (Figure 18). Exhaust emissions
from transport and machinery have fallen and will continue to fall as engine technology
develops and the stock of equipment is replaced. Exhaust emissions from the transport sector
will be a relatively insignificant emission source by 2030. Emissions from energy production
have also been on the decline thanks to stricter legislation and emission-reducing technologies.
Emission levels defined in the BAT conclusions will lower emissions from the current level,
although the use of fuels will grow according to the baseline projection.
Advances in the engine technology of means of transport will not affect street dust emissions.
Street dust emissions include particles caused by road abrasion, tyre and brake wear, and
gravel used for sanding. In addition, other dust settled on the road is stirred up into the air by
vehicles. Coarse particulate matter (PM10) accounts for a large proportion of street dust, and it
is the most significant individual source of PM10 emissions in Finland. However, street dust
emissions also include fine particulate matter, and as exhaust emissions are declining, street
dust will account for an increasingly significant proportion of fine particulate emissions caused
by transport. The baseline projection assumes no new measures to limit street dust emissions.
This means that emissions will increase slightly in line with the assumed growth in transport
performance. The trends in dust emissions from peat production and agriculture, and in other
diffuse emissions, have not been modelled; the emissions are assumed to remain at the 2016
level in the projection.
Particulate emissions from small-scale woodburning will be limited by legislation for the first
time, as the Ecodesign Directive sets maximum emission limits for small boilers and fireplaces
on the market as of 2020 and 2022. The impact of the regulation will be minor by 2030, as the
stock of equipment renews slowly, and a large proportion of fireplaces sold in Finland have for
years met the emission limits set in the regulation (Savolahti et al. 2016). In addition, the
regulation does not cover sauna stoves, which currently account for 40% of the total PM2.5
emissions caused by small-scale woodburning.
The adverse effects of small-scale woodburning are also affected by the volumes of wood used,
which are assessed at approximately ten-year intervals. According to statistics, the use of
firewood and pellets totalled approximately 19 TWh in 2010 and 17 TWh in 2015. Annual
fluctuations in temperature have a significant impact on the estimated use of wood. For
instance, according to Statistics Finland, the highest consumption since the early 1970s was
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recorded in 2010 due to the cold winter. The use of firewood is assessed by means of surveys.
The Natural Resources Institute Finland has carried out four surveys on small-scale
woodburning since 1992. The most recent survey concerned the 2016/2017 heating season,
during which the use of wood was 3% higher than in the previous survey conducted during the
2007/2008 heating season. The use of wood in small-scale burning has increased clearly more
strongly during the last few decades. According to the National Energy and Climate Strategy,
the moderate growth recorded recently is expected to continue. The strategy estimates that
the use of wood in 2030 is within the same range as in the record year 2010. However, general
trends in the use of wood are difficult to forecast, and peaks in heating needs caused by cold
years may affect the attainment of emission reduction commitments.
PM2.5 30
Street dust
25
Road transport
20 Machinery and other transport
15 Small-scale woodburning
10 Industrial processes
5
0
2005 2010 2015 2020 2025 2030
Fuel combustion in energy production and industrial processes
Other (e.g. agriculture and peat production)
Figure 18. Fine particulate matter emissions according to the baseline
projection by sector. The orange lines represent the levels defined by the
emission reduction commitments.
Sauna stoves are estimated to account for approximately 40% of current emissions from
small-scale woodburning in Finland (Figure 19). Sauna stoves are not covered by the scope
of the Ecodesign Directive. Therefore, it is assumed in the modelling that their emission
factor will remain unchanged. However, based on the most recent, yet unpublished
emission measurements, it seems preliminarily that the sauna stoves currently on the
market produce, on average, clearly less emissions than assumed in the emission
calculations. It is likely that the use of new measurement results will lower the emission
projection at least for the post-2015 period.
kt/a
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PM2.5 emissions from small-scale woodburning, kt/a
12,000
10,000
8,000
6,000
4,000
2,000
0
2015 2030
Modern firewood boiler
Firewood boiler with water
heater Firewood boiler
without water heater Wood
chip boiler
Pellet boiler
Sauna stove
Open fireplace
Modern iron
stove
Conventional iron
stove Cooker
Masonry oven
Modern heat-retaining
masonry heater
Conventional heat-
retaining masonry heater
Figure 19. PM2.5 emissions from small-scale woodburning by type of equipment.
In modern heat-retaining masonry heaters and iron stoves, special attention
has been paid to the supply of air for combustion.
The projected concentrations of fine particulate matter in ambient air in Finland in 2015 and
2030 are presented in Figure 20. They include domestic primary and secondary particles, as
well as the contribution of long-range transboundary pollution. Due to long-range
transboundary pollution from Central Europe, background concentrations are clearly higher
in the southern parts of Finland than in the northern parts of the country. The impact of
local emissions on air quality is particularly significant in densely populated areas and along
major roads.
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Figure 20. Projected concentrations of fine particulate matter (PM2.5) in ambient air in 2015 and 2030. The modelling covers all domestic emission sources and long-range transboundary pollution. Fine particulate matter includes both primary and secondary particles. (Produced in the BATMAN project using the SILAM model developed by the Finnish Meteorological Institute.)
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5.4 Non-methane volatile organic compounds
Situation: According to the development in the baseline projection, the emission reduction
commitment set for 2020 has already been met, and the commitment set for 2030 will also be
met.
Emissions of non-methane volatile organic compounds (NMVOC) were almost halved between
2005 and 2015, and the level of emissions is already close to the target set for 2030 (Figure 21).
The most significant reductions have been recorded in the emissions from transport and
machinery, as well as from industrial processes. In the future, emissions are expected to remain
close to the current level for other sectors, while emissions from transport and machinery will
continue to fall as vehicles are replaced. “Industrial processes” also covers industrial painting
shops, which are the most significant emission source within the sector. Various process
industry activities also produce NMVOC emissions, which are limited by emission limit values
established in BAT conclusions. However, the impact of the implementation of BAT
conclusions on the amount of emissions has not been assessed here, except for the oil refining
industry. The sector “Other” mainly includes emissions from the use of solvents, as well as
volatile emissions from the storage and distribution of oil, for example. The emission trend for
this sector has not been modelled; the emissions were kept at the 2016 level in the projection.
NMVOC 140
120 Road transport
100 Machinery and other transport
80 Small-scale woodburning
60 Industrial processes
40 Fuel combustion in energy production and industrial processes
20 Other (e.g. use of solvents and distribution of fuels)
0
2005 2010 2015 2020 2025 2030
Figure 21. NMVOC emissions according to the baseline projection by sector. The
orange lines represent the levels defined by the emission reduction
commitments.
kt/a
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5.5 Ammonia
Situation: According to the development in the baseline projection, the emission reduction
commitment set for 2020 has already been met, and the commitment set for 2030 will also be
met.
In Finland, approximately 90% of ammonia emissions originate in agriculture (Figure 22),
especially in the handling and application of animal manure. Emissions from agriculture have
fallen in the 2000s, partly due to the decreased number of livestock and partly thanks to the
increased use of emission-reducing manure management technologies. In addition, emissions
are affected by the amount of nitrogen excreted by animals in dung during a year, which
depends on the stock and feeding of animals, for example. As the production per animal
increases, the amount of nitrogen excreted per animal has also risen, which has slowed down
the reduction of ammonia emissions originating from manure.
It is assumed that ammonia emissions from agriculture will continue to fall, in particular, as the
number of animals is expected to decline. However, manure management measures are still
needed. With that in mind, an action plan was prepared in cooperation between the Ministry of
Agriculture and Forestry and the Ministry of the Environment to reduce ammonia emissions
from agriculture in Finland (Ministry of Agriculture and Forestry 2018). The ammonia emission
trends for sectors other than agriculture have not been modelled; the emissions were kept at
the 2016 level in the projection.
NH3 40
35
30
25 Road transport
20 Small-scale woodburning
Industrial processes
15 Agriculture
10
5
0
2005 2010 2015 2020 2025 2030
Figure 22. Ammonia emissions according to the baseline projection by sector. The
orange lines represent the levels defined by the emission reduction commitments.
kt/a
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5.6 Black carbon and methane
The NECD requires that Member States report on black carbon emissions, but no emission
reduction commitment is laid down for black carbon in the directive. In addition, black carbon
is mentioned in the directive in the context of fine particulate matter, as Member States are
encouraged to target reduction measures for particulate emissions with a high black carbon
content. In Finland, black carbon is mainly emitted by small-scale woodburning and transport.
By 2030, small-scale woodburning is expected to remain as the only significant emission source
of black carbon (Figure 23), as emissions from transport will fall, thanks to advances in engine
technology. Measures taken to lower fine particulate matter emissions from small-scale
woodburning also reduce black carbon emissions. The Arctic Council set a joint voluntary
target of limiting black carbon emissions between 25% and 33% below the 2013 levels by 2025.
In Finland, the emission trend would comply with this target according to the baseline
projection.
BC 7
6
5 Road transport
4 Machinery and other transport
3 Small-scale woodburning
2 Fuel combustion in energy
production and industrial processes
1
0
2005 2010 2015 2020 2025 2030
Figure 23. Black carbon emissions according to the baseline projection by sector.
Methane is not included in the air pollutants monitored under the NECD, but methane
emissions are reported under the Convention on Climate Change. Methane emissions were not
calculated when this programme was prepared, but the projection is extracted from the
National Energy and Climate Strategy (Figure 24). Emissions from the waste sector are
affected, in particular, by the prohibition on landfilling organic waste, which entered into force
in 2016. However, existing landfill sites will still remain sources of methane. Methane emissions
from agriculture are estimated to increase slightly until 2020, after which they will decline.
kt/a
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CH4 250
200
150
100
Agriculture
Waste management
Use of fuels
50
0
2005 2010 2015 2020 2025 2030
Figure 24. Methane emissions according to the baseline projection by sector.
5.7 Conclusions
The emission reduction commitments laid down in the NECD will be met by implementing the
measures specified in the baseline projection as presented above. In addition, the actions planned
to be implemented to reduce greenhouse gas emissions (e.g. the implementation of the Medium-
term Climate Change Policy Plan for 2030 (KAISU)) will also contribute to the reduction of air
pollutants.
However, any assessments of the attainment of emission reduction commitments involves
uncertainties. For instance, it may be that not all measures planned in the National Energy and
Climate Strategy or the action plan to reduce ammonia emissions from agriculture will be
implemented, or that the activities used as the basis of the calculations grow more than expected
and thus emissions from these activities are also higher than projected. Similarly, the
continuously evolving calculation methods may also lead to changes in emissions figures for past,
already reported years.
The attainment of the emission reduction commitments is monitored through emission
inventories and projections prepared and updated by the Finnish Environment Institute. The
NAPCP must be updated if the monitoring shows that one or more emission reduction
commitments are not fulfilled or are at risk of not being fulfilled.
kt/a
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6 Additional measures and their impact on emissions and air pollutant concentrations
Air pollution will continue to cause adverse effects on human health and the environment in
2030 (see section 3.4) despite the fact that the emission reduction commitments set by the
NECD are met. For this reason, it is important to consider measures that would help to reduce
the levels of air pollutant emissions and concentrations below the level set in EU legislation.
This chapter proposes measures to improve air quality and reduce the number of people
exposed to poor air quality, especially in areas where exposure is highest. Fine particulate
matter generated in urban areas and close to inhalation height are the most harmful air
pollutant emissions to human health (Savolahti et al. 2018). These emissions mostly originate
from small-scale woodburning and road transport. Harmful effects caused by dust and exhaust
emissions from long, massive construction projects required for a more compact urban
structure are also a problem. Reducing emissions from these sources, in particular, is the best
way to improve air quality in densely populated areas.
In addition, achieving better air quality requires that no decisions that impair air quality in the
short or long term be made in any of the sectors affecting air quality. In order to prevent
undesirable developments, it is necessary that air quality be considered in all strategies,
programmes and projects planned and implemented in different sectors of society that affect
air pollution control. Measures to promote this end are proposed to ensure desirable
development.
The additional measures proposed for adoption at national level would improve public health
and citizens’ well-being and reduce the cost of health damage due to air pollutants.
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6.1 Road transport
Road transport contributes to poor air quality through exhaust emissions and street dust.
Adverse effects can be mitigated by improving the energy efficiency of transport systems and
vehicles, by replacing fossil oil-based fuels with electricity and gas, and by influencing the
regulation of local emissions. In addition to combustion-related air pollutants, street dust
causes adverse effects on human health and decreases the comfort of citizens. These effects
can be reduced by preventing street dust formation.
Exhaust emissions from vehicles have been cut effectively in Finland through EU legislation on
different types of vehicles, while Finland has not been as successful in reducing street dust. It
has been possible to lower the concentrations slightly from the top levels recorded in the
1990s. However, elevated concentrations of PM10 still cause adverse effects on human health.
Municipalities control street dust by enhanced street and road cleaning and dust binding.
In the policy scenario of the National Energy and Climate Strategy, the use of fuels by road
transport decreases from the current level clearly more than in the baseline projection
presented in the previous chapter. This would also lower air pollutant emissions. Road
transport plays a significant role in cutting nitrogen dioxide emissions, in particular. Measures
that could be used to reduce the use of fuels by road transport to the level specified in the
policy scenario are presented in the Medium-term Climate Change Policy Plan for
203042. These include improving the energy efficiency of transport and increasing the share of
electric cars. If energy use were as described in the policy scenario, NOx emissions would be
slightly less than 2 kt lower by 2030 than in the projection presented in Chapter 5.
Measures to reduce adverse effects on human health caused by exhaust emissions and street
dust from transport are proposed in Tables 12a and 12b. Most of these measures have already
been proposed in other policies on transport. However, this NAPCP wishes to support these
policies and ensure their implementation.
In addition, Table 14 lists linkages of current strategies, programmes and projects in various
sectors, including the transport sector, to air quality and their impacts on air quality, and
proposes measures to better take air pollution control into account in their implementation and
updates.
42 Ministry of the Environment 2017. Government Report on Medium-term Climate Change Policy Plan for 2030 –
Towards Climate-Smart Day-to-Day Living. Reports of the Ministry of the Environment 21en/2017.
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Table 12a. Measures to reduce air pollutant emissions from road transport
MEASURE IMPACTS AND COST ASPECTS RESPONSIBLE BODY
Supporting measures and initiatives to
expedite the renewal of the vehicle stock
and the increase in the percentage of zero-
and low-emission vehicles of the total
vehicle stock
stricter limit values for heavy-duty
vehicles, passenger cars and vans
Act on clean vehicles in public
procurement
purchasing subsidy for electric cars
support for the construction of
distribution infrastructure for alternative
power sources
zero- and low-emission company cars
car-scrapping incentives without a
requirement to purchase a new car
development of transport taxation
Updating energy labelling of cars
consumers provided with information on
environmentally friendly vehicles
Measures that lower CO2 emissions also reduce
local emissions.
The limit values will encourage car
manufacturers to develop low- and zero-
emission cars, which will increase their number
on the markets.
The Act on clean vehicles in public
procurement will strongly steer towards the
use of electric, gas-powered and alternatively
powered vehicles in the public procurement of
vehicles and transport services.
The purchasing subsidy for electric cars (EUR 24 million in 2018–2021) and the support for distribution infrastructure (EUR 18 million in 2018–2021) aim to increase the number of electric and gas-powered cars to at least 250,000 and 50,000, respectively, by 2030.
The dissemination of information will increase the awareness of consumers and car dealers on environmental aspects relating to cars.
LVM, YM, VM
Supporting measures that reduce passenger
car transport performance in urban areas
Act on Transport Services
assessment of the local emissions
impacts, and development of
implementation taking into account
emissions and exposure
coordination of land use and transport,
development of a more compact urban
structure taking into account air quality
and the accessibility and development of
public transport (e.g. by means of
planning)
implementation of the programme for
the promotion of walking and cycling
(see Table 14)
development of a transport taxation
system that favours low-emission forms
of transport
The Act on Transport Services facilitates the production and coordination of new and old transport services. An increase in services will also increase their use and mitigate growth in passenger car performance and emissions. Improvements in the urban structure seek, on
one hand, to support the organisation of public
transport and, on the other hand, to promote
walking and cycling while reducing local
emissions.
The goal is a 30% increase in the number of
journeys made on foot or by bicycle. The
programme also includes an investment
programme to support projects promoting
walking and cycling in municipalities
(EUR 30 million).
People will choose low-emission vehicles and forms of transportation.
LVM, YM, VM,
cities
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Table 12b. Measures to reduce air pollutant emissions, especially street dust, from
road transport
MEASURE IMPACTS RESPONSIBLE BODY
Implementing the recommendations of the Dusty Roads project, such as
integrated land use and transport planning
(speeds, heavy goods vehicles)
development of works contracts (equipment,
dust binding, screened and washed crushed
rock, timing of cleaning)
quality specifications for pavements and
surfaces
The amount of street
dust will decrease –
adverse effects on
human health will
decrease, comfort will
increase
Finnish Transport
Infrastructure Agency,
cities
Enhancing the dissemination of best practices in
street cleaning and maintenance to
municipalities and contractors.
Incorporating best practices into the contractor selection criteria in procurement.
Adverse effects on
human health will
decrease, comfort will
increase.
Competence of contracting entities and contractors in environmental aspects will improve.
LVM, Association of Finnish Local and Regional Authorities, SYKE, municipalities
Increasing guidance to motorists on the best tyre
options in terms of air quality and safety.
Investigating the possibility to limit the use of studded tyres in certain areas.
Adverse effects on
human health will
decrease, comfort will
increase.
Public awareness of the impact of the tyres selected will increase.
LVM, Association of Finnish Local and Regional Authorities, SYKE
6.2 Small-scale woodburning
Small-scale woodburning is the most significant source of fine particulate matter emissions in
Finland, accounting for approximately 50% of all domestic PM2.5 emissions. It has been
estimated that exposure to particulates from small-scale woodburning causes some
200 premature deaths in Finland annually (Karvosenoja et al. 2017). In the future, emissions
from other sources are expected to fall significantly in accordance with the current legislation,
while it appears that emissions from small-scale woodburning will remain at the current level or
will only decrease slightly. The impacts of the Ecodesign Directive, which will enter into force in
2020 and 2022, on emissions from small-scale woodburning in Finland are estimated to be
relatively low by 2030, as the stock of heat-retaining fireplaces is replaced slowly in Finland and
sauna stoves are not covered by the scope of the directive. In other words, the adverse effects
of small-scale woodburning on human health must be reduced by additional national
measures.
Emissions from small-scale woodburning, the potential to reduce them, and their effects on
human health have been widely studied in Finland (e.g. Tissari 2008, Savolahti et al. 2016,
Jalava et al. 2012, Salonen et al. 2015 and 2016). In particular, promoting the right methods of
using fireplaces and encouraging the use of lower-emission sauna stoves have been found to be
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feasible, effective and cost-effective ways to reduce the adverse effects caused by small-scale
woodburning. Additional measures based on the studies mentioned above, for example, are
presented in Table 13.
Small-scale woodburning is also clearly the most significant source of black carbon emissions in
Finland. Black carbon is a climate forcer, the warming effect of which is emphasised in the
Arctic region (e.g. AMAP Assessment 2015). Black carbon emissions must be taken into
account when assessing the impacts of different heating methods on the climate.
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Table 13. Measures to reduce fine particulate matter emissions from small-scale woodburning
MEASURE IMPACTS RESPONSIBLE BODY
Increasing guidance to citizens and
other actors:
Enhancing the dissemination of good
practices in information provision in
municipalities
Increasing citizens’ awareness of the
adverse effects of small-scale
woodburning
Increasing the provision of
information and advice on the
appropriate use of fireplaces
Increasing the use of various
communication channels (brochures,
videos, Twitter)
Initiating co-operation with new
actors (e.g. schools, hobby
organisations, areas with detached
houses, sauna societies)
Initiating co-operation with climate
projects in municipalities (energy
efficiency, emissions, air quality,
citizens’ well-being)
Better practices in small-scale woodburning
(stoves, fireplaces, sauna stoves) can reduce fine
particulate matter emissions from combustion by
a few per cent in Finland. In addition, the right
burning technique has a significant impact on the
efficiency of the fireplace and thus on the amount
of wood required for heating. Awareness of the
adverse effects on human health caused by
emissions may also reduce the unnecessary use of
fireplaces in agglomerations. In this case,
emission reductions may be clearly more
significant than estimated. The aim of the
measure is to reduce population exposure to fine
particulate matter, especially in areas where
small-scale woodburning is very common. The
measure is also estimated to be quite cost-
effective, even if its effectiveness were to be low.
Municipalities, HSY,
Association of Finnish
Local and Regional
Authorities, YM, SYKE,
MSAH, THL, MoEC
Central Association of
Chimney Sweeps,
Finnish Home Owners’
Association,
Organisation for
Respiratory Health,
Allergy, Skin and
Asthma Federation
Reducing the adverse effects of polluting woodburning sauna stoves:
Investigating the possibility of
setting technical requirements for
sauna stoves (including criteria
relating to low emissions, R&D
project)
Investigating the possibility of
introducing voluntary agreements
(e.g. Green Deal agreements) with
sauna stove manufacturers
Investigating the possibility of
introducing incentives to renew the
sauna stove stock
These measures are basic measures required to
bring low-emission sauna stoves onto the market.
YM, VM, sauna stove
manufacturers,
research institutes,
Tulisija- ja
savupiippuyhdistys
TSY ry
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Increasing the efficiency of smoke nuisance prevention:
Updating the guidelines on small-
scale woodburning and health (STTV
Oppaita 6:2008) to turn them into a
more suitable tool for health and
environmental authorities. The
guidelines should state clearly that,
in addition to the Health Protection
Act (Terveydensuojelulaki 763/1994),
other legislation may be applicable
to smoke nuisance caused by small-
scale woodburning.
Developing measurement
technology used in practice to
guarantee the reliability of
measurements related to smoke
nuisance monitoring
Encouraging the replacement of old
fireplaces, boilers, and boilers
without water heaters with low-
emission equipment. Investigating
the possibility of introducing
incentives.
Developing a model and piloting
good practices to prevent smoke
nuisance caused by small-scale
woodburning by means of building
ordinance, detailed guidelines for
building, and plot assignment
stipulations.
Recommending property owners to
build a firewood store if they have a
wood-heated fireplace or boiler.
These measures are key measures to reduce smoke nuisance.
They will affect the activities of health and
environmental authorities in municipalities. There
is a need to develop common practices.
A measurement method would provide
information on ambient air pollution caused by
smoke from small-scale woodburning and on the
migration of air pollutants from outdoors into the
indoor environment. This information could be
used locally to inform residents in areas with
detached houses.
Reasonably priced, objective tools would
supplement the existing,
subjective organoleptic monitoring of smoke
nuisance and thus make the determination of
smoke nuisance easier. Such evidence would
expedite the phasing out of poor fireplaces and
high-emission wood boilers used for central
heating and based on limiting combustion air as a
primary heating method.
Conditions set for building can be used to prevent
smoke nuisance.
Proper storing of firewood improves the quality of firewood and thus affects emissions.
YM, MSAH, THL, Valvira,
municipalities, Finnish
Home Owners’
Association
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6.3 Taking air pollution control into account in planning and decision-making activities in other sectors
Good air quality reduces morbidity and increases comfort. In addition to technical emission
reduction measures, improving air quality requires that air quality be taken into account
systematically in all strategies, programmes and projects that affect air pollution control and
their implementation in different sectors of society. This means that air pollution control
should be a factor affecting the policies outlined in all planning and decision-making relating to
these strategies, programmes and projects, and should also be taken into account when the
health and environmental impacts of any measures to be taken in other sectors are assessed.
Key sectors for air pollution control include the land-use and planning, energy, climate,
transport, agriculture and welfare sectors. Measures in the transport sector are also discussed
in section 6.1.
The progression of climate change will also have direct effects on human health. For instance,
as the average temperature increases, slippery weather conditions will be more frequent in
winter, which will increase the risk of accidents and also the need for sanding, which in turn will
increase street dust problems. These adverse effects on human health should be identified and
taken into account. In addition, more attention should be paid to the fact that many climate
measures, such as increasing energy efficiency and promoting cycling, also improve local air
quality. However, the impacts of climate measures may also weaken air quality. For example,
increasing the density of the urban structure may result in the formation of street canyons.
Therefore, measures that also improve air quality should be emphasised in climate change
mitigation.
When promoting air pollution control, efforts should be made to use the existing programme
and organisation structures established for climate change mitigation, as the actors are mainly
the same in both areas. Practical measures in both air pollution control and climate change
work are often taken in municipalities. Municipalities participate in several national and
international programmes and networks that take actions to mitigate climate change and
adapt to its impacts. Municipalities are also involved in networks that aim to share good
practices in the promotion of well-being and health.43
Table 14 lists linkages of current strategies, programmes and projects in various sectors to air
quality and their impacts on air quality and proposes measures to better take air pollution
control into account in them. In addition to their implementation, air quality aspects should
also be considered in their updates.
Table 15 presents current projects linked to air pollution control in municipalities and measures
to better take air pollution control into account in them.
43 https://thl.fi/fi/web/hyvinvoinnin-ja-terveyden-edistamisen-johtaminen/kansallinen-tuki-ja-verkostot/ter- ve-
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Table 14. Linkages of current strategies, programmes and projects to air quality and their impacts on air quality, as well as measures to better take air pollution control into account in them
Strategy or programme that affects air quality
Main measures and impacts of the strategy/programme affecting air quality
Measure Impacts and cost aspects Responsible body
All Improving the knowledge base related to
the adverse health effects and costs of
health damage due to air pollutants and its
usability, thus ensuring that effects on air
quality and human health are taken into
account as a factor affecting the policies
outlined in various projects.
SYKE, THL, FMI
National Energy
and Climate
Strategy (2017)
As a general rule, many measures in the strategy
will also improve air quality (phasing out coal in
energy production by 1 May 2029, reducing
transport performances, increasing the number
of electric and gas-powered vehicles).
Seeking to ensure that effects on air
quality and human health are taken into
account as a factor affecting the policies
outlined when the strategy is updated, for
example by illustrating the monetary value
of health benefits. This can be influenced,
for example, by supplementing the
guidelines issued for the impact
assessment of authorities’ plans and
programmes with a section that provides
guidance on determining the monetary
value of health benefits brought by air
pollution control.
People’s health will improve and comfort will increase as
climate measures also support the improvement of air
quality. This can often be achieved without additional
costs, as greenhouse gases and local emissions mainly
originate from the same sources.
Illustrating the monetary value of health benefits
brought by air pollution control will draw attention to
the potential to reduce society’s health costs through air
pollution control (national economic savings).
MEAE, YM,
LVM,
MSAH,
MMM, VM
Medium-term Climate Change Policy Plan for 2030 (KAISU, 2017)
Many measures in the plan will also mainly
improve air quality (electric cars, low-emission
machinery, tighter emission performance
standards for road transport, promotion of clean
small-scale woodburning).
Seeking to ensure that effects on air
quality and human health are taken into
account as a factor affecting the policies
outlined during the implementation of the
plan. This can be influenced, for example,
by supplementing the guidelines issued for
the impact assessment of authorities’ plans
and programmes with a section that
provides guidance on determining the
monetary value of health benefits brought
by air pollution control.
People’s health will improve and comfort will increase as
climate measures also support the improvement of air
quality. This can often be achieved without additional
costs, as greenhouse gases and local emissions mainly
originate from the same sources.
Municipalities will implement many measures close to
citizens, which means that the effects of the measures
taken to improve air quality will benefit citizens quickly.
Illustrating the monetary value of health benefits
brought by air pollution control will draw attention to
the potential to reduce society’s health costs through air
pollution control (national economic savings).
YM, LVM, MEAE, municipalities
Programme for
the promotion of
walking and
cycling (Ministry
of Transport and
All measures to increase walking and cycling also
improve air quality. Measures related to the
development of the urban structure (e.g. MAL
agreements and their assessment criteria), the
planning of the location of services and the
Supporting the implementation of the
programme and especially the
development of assessment criteria relating
to the sustainability and local emissions
impacts for MAL agreements, including the
The application of the assessment criteria relating to the
sustainability and local emissions impacts for MAL
agreements will become an established part of
municipal, regional and national planning and
implementation of measures. Air quality along
LVM, YM, municipalities
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Communications,
2017)
planning of transport systems are particularly significant.
monetary value of health benefits brought
by air pollution control. Supporting the
application of the assessment criteria in all
projects.
pedestrian walkways and bicycle paths will improve.
Interim report by
the Transport
Climate Policy
working group:
Carbon-free
transport by 2045
– Paths to an
emission-free
future (Ministry of
Transport and
Communications,
2018)
The BIO, TECHNO and SERVICE scenarios would
reduce carbon dioxide emissions based on
different alternatives, which would all also be
likely to reduce air pollutants.
The SERVICE scenario would reduce transport
performance and improve energy efficiency,
and thus air pollutants would also decrease.
The starting point for all three scenarios is the principle that costs will always be raised for the most polluting polluters.
Supporting the implementation of the
proposals by ensuring that effects on air
quality and human health, as well as the
monetary value of achieved health
benefits, are taken into account as a factor
affecting the policies outlined.
Ensuring that air quality aspects, including
health benefits, are included in the impact
assessment of the scenarios.
People’s health will improve and comfort will increase as
policies relating to climate also support the improvement
of air quality. This is generally possible without additional
costs, as greenhouse gases and local emissions mainly
originate from the same sources.
LVM, YM
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Table 15. Current projects linked to air pollution control in municipalities, as well as proposed measures to better take air pollution control into account in them
Municipal projects that affect air quality
Links of the project to air quality (measures and impacts)
Measure Impacts and cost aspects
All projects Municipalities are actively involved in climate and
other projects and networks that affect air quality
and that can also serve as structures to promote
measures aimed at improving air quality.
Enhancing impact assessment carried out in collaboration between
various sectors. Incorporating air quality objectives into ongoing
programmes and projects.
Increasing the role of air quality in projects that are central to air
pollution control in municipalities.
In addition to adverse effects on human health, justifying measures
using the impacts of black carbon on climate in the Arctic region.
In order to link air quality aspects with ongoing and new projects, launching a project that identifies and highlights measures included in climate projects that also improve air quality and reduce population exposure and adverse effects on human health.
In addition to climate benefits, the
measures will improve air quality and
benefit human health. Any
implementation of measures that impair
air quality will be avoided. Land use,
transport, energy production. Small-scale
woodburning and street dust.
Energy efficiency
agreements
2017–2025
Increasing the efficiency of energy use and
production generally reduces the consumption of
fuels that cause emissions.
Encouraging energy users to join the agreements so as to increase the
coverage of the agreements.
Increased coverage of the agreements will
most likely also cut local emissions.
The
implementation
of KAISU in
municipalities
and regions
(”KuntaKaisu” or
Municipal Kaisu)
Measures taken to mitigate climate change in
municipalities also often improve local air quality
and reduce black carbon emissions.
Selecting KuntaKaisu projects that are also well suited for
promoting air quality. Disseminating best practices to double the
benefit.
The objectives of air pollution control will be better taken into account in climate change mitigation work at the local level, which will also promote human health and comfort, meaning that benefits will be visible quickly.
IlmastoKunnat
(ClimateMunic
ipalities)
activities of
the
Association of
Finnish Local
and Regional
Authorities
A network open to all, which aims to bring
together all types of municipalities and promote
their climate work while taking into account
their specific characteristics.
Developing the platform to ensure that air quality aspects are
considered adequately and appropriately.
In addition to climate change mitigation, air quality will be considered in local climate work, which will bring positive effects to human health and comfort.
HINKU Forum The aim is to reduce municipalities’ greenhouse
gas emissions by 80% from the 2007 level by 2030.
SYKE continues as the coordinator of HINKU projects with respect to air quality.
Air quality will be taken into account and
measures will be taken to improve it.
Healthy Cities–
Terve Kunta
network
Supports the dissemination of good practices to
promote health and well-being.
Integrating aspects relating to air quality and the living environment
into the work of the network. In this way, the existing cooperation
structure can be used and its work can be enriched with new content.
Air quality will be integrated into the
promotion of health and well-being.
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MAL agreements Cooperation between municipalities and the State
in the development of the urban structure affects
air quality.
Supporting the development of assessment criteria relating to the
sustainability and local emissions impacts for MAL agreements,
including the monetary value of health benefits achieved by air
pollution control.
Supporting the application of the assessment criteria in all projects.
The application of the assessment criteria relating to the sustainability and local emissions impacts for MAL agreements will become an established part of municipal, regional and national planning and implementation of measures.
Municipal
strategy (for
each term of the
municipal
council)
The achievement of the objectives set in the municipal strategy is monitored by issuing an extensive report on well-being for each term of the municipal council, for example. The report can also incorporate indicators relating to the living environment and air quality.
Developing environmental health indicators. The effectiveness of measures that affect
air quality will be monitored.
Helps to link air quality to health costs in municipalities.
Recommending the inclusion of the cost of air pollution damage (the
IHKU model) in the impact assessments of municipal strategies.
The costs of poor air quality for society
and people will be made visible.
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6.4 Other measures
Table 16 lists general development and communication measures to promote air pollution
control in Finland.
Table 16. Other measures to promote air pollution control
MEASURE IMPACTS RESPONSIBLE BODY
Supporting air pollution control in municipalities
The aim is to better integrate air pollution
control into climate work in municipalities
in cases where such integration brings
cost savings and increases the efficiency
of activities and resource efficiency.
YM, MSAH, MEAE, LVM, SYKE, FMI, THL
Enhancing communication
relating to air pollution
control and increasing its
customer orientation in
cooperation with other actors
The aim is to provide citizens and
decision-makers with easy-to-understand
information on air quality and its effects
on human health, as well as on the cost of
damage caused by poor air quality. Old
and new communication channels will be
widely used.
Municipalities, YM, MSAH,
MEAE, LVM, SYKE, FMI,
THL, HSY,
Organisation for Respiratory Health, others
Developing air quality and
emission websites to make
them more customer-
oriented
The aim is for the air quality website of
the Finnish Meteorological Institute to
offer comprehensive information on air
quality, including a real-time calculation
of the exceedances of the numerical value
of the 24-hour limit value set for PM10 in
the EU and the exceedances of the WHO
24-hour guideline value set for PM2.5 by
measurement station. The information
on emissions will be shown on maps on
the website, which means that it can be
used when selecting a place of residence
or developing the living environment, for
example.
FMI, municipalities, SYKE, HSY
Launching a training project
in the calculation of air
pollution damage cost
The dissemination of information on
damage cost, for example, by promoting
the application of the IHKU model, will
increase knowledge of air quality impacts
and thus support decision-making.
YM, SYKE, THL, Association of Finnish Local and Regional Authorities
Participating in the WHO scientific evaluation to revise air quality guideline values
The aim is to ensure that the WHO
guideline values will be updated in
accordance with the most recent research
data available.
THL
Influencing the tightening of
the EU’s air quality limit
values
The aim is to ensure that the EU’s air quality limit values will be updated so that they correspond to the WHO recommendations as far as possible. Long-range transboundary pollution accounts for a large proportion of air pollution concentrations in Finland, and
YM, SYKE, THL, FMI
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thus Finland benefits from emission reductions achieved in other countries.
Introducing air pollution
control ambassadors for
schools and organisations
The project will raise awareness of air
pollution control, and thus encourage
various actors to promote the cause.
MoEC, YM, MSAH, SYKE, FMI, THL
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7 Monitoring of the implementation and effects of the NAPCP
7.1 Monitoring of emission trends
Estimates of air pollutants have been prepared based on international agreements since 1980
for sulphur compounds expressed as sulphur dioxide (SO2), nitrogen compounds expressed as
nitrogen dioxide (NO2) and ammonia (NH3); since 1987 for non-methane volatile organic
compounds (NMVOC); since 1990 for carbon monoxide (CO), heavy metals (As, Cd, Cr, Cu, Hg,
Ni, Pb, V ja Zn) and persistent organic pollutants or POPs (PCDD/F, PAH4, HCB, PCB, HCH,
PCP, SCCP); and since 2000 for particulate matter (TSP, PM10, PM2.5 and black carbon). The
guidelines provided by international agreements on emissions sources and compounds to be
reported are constantly changing and being supplemented.
Information on air pollutant emissions are submitted on an annual basis to the European
Commission in accordance with the NECD (2016/2284), to the United Nations Economic
Commission for Europe (UNECE) that acts as the secretariat of the Convention on Long-range
Transboundary Air Pollution, and to the Stockholm Convention on Persistent Organic
Pollutants of the United Nations Environment Programme (UNEP). Information on air pollutant
emissions (NMVOC) is also used in Finland’s reporting to the United Nations Framework
Convention on Climate Change (UNFCCC).
The Finnish Environment Institute is responsible for national emission inventories and
projections, as well as informative inventory reports. The inventory covers the emissions of
sulphur dioxide, nitrogen oxides, ammonia, NMVOC, PM2.5, PM10, carbon monoxide, certain
heavy metals (Cd, Hg, Pb), POPs (total PAHs, benzo[a]pyrene, benzo[b]fluoranthene,
benzo[k]fluoranthene, indeno(1,2,3-cd)pyrene, dioxins/furans, PCBs, HCB) and black carbon
(BC).
NATIONAL AIR POLLUTION CONTROL PROGRAMME 2030
The Finnish Environment Institute publishes the emission inventories and projections prepared
and updated in a public information network service44. The emission data available includes
data as time series and by emission source, as well as the spatial distribution of emissions. In
addition, Finland’s informative inventory report (IIR)45 is available in English.
7.2 Monitoring of the ecological impacts of emissions
The NECD requires that Member States ensure the ecological monitoring of negative impacts
of air pollution.
The number of ecosystems to be monitored depends on the biogeography of the Member
State and the ecosystem types found in the country. The EU is divided into 11 biogeographical
regions. Of these, the Alpine (Upper Lapland) and Boreal region (other parts of the country)
extend to Finland.
In Finland, the relevant ecosystems covered by the monitoring of acidifying and eutrophying
impacts are freshwater ecosystems, forests and peatlands, while forests and agricultural soils
are represented in the monitoring of ozone air pollution loads. In Finland, ecological impact
monitoring, as required by Article 9 of the NECD, is carried out at 34 monitoring sites (Figure
25). In addition, the monitoring of impacts takes into account results obtained in the
monitoring activities carried out in the Baltic Sea region.
Provisions on the national implementation of monitoring the ecological impact of atmospheric
sulphur and nitrogen emissions with respect to the ecosystem types mentioned above, and on
the monitoring of ozone air pollution loads, are laid down in the Environmental Protection Act
and the Environmental Protection Decree (Ympäristönsuojeluasetus 713/2014). In the
Environmental Protection Act, the responsibilities for organising the monitoring of ecological
impact and the monitoring of ozone air pollution loads are divided between the Finnish
Environment Institute, ELY Centres, the Natural Resources Institute Finland, the Finnish
Meteorological Institute and the Ministry of the Environment. The Finnish Environment
Institute is responsible for compiling a report on the ecological impact monitoring data for the
European Commission and the European Environment Agency (EEA). In addition, the Finnish
Environment Institute publishes the information in a public information network service.
44 Air pollutant emissions in Finland 45 Informative Inventory Report
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Freshwater ecosystems
The acidifying and eutrophying impacts of air pollution are monitored in accordance with the
NECD at 24 monitoring sites (19 lakes, 5 streams), which cover geographically different types
of deposition and climatic conditions (Figure 25). The monitoring sites are oligotrophic lakes
and streams located in forested headwater areas that are sensitive to the impacts of air
pollutants and that reflect changes in air pollutant loads. The bodies responsible for monitoring
the ecological impacts on freshwater ecosystems are the Finnish Environment Institute and the
ELY Centres.
NATIONAL AIR POLLUTION CONTROL PROGRAMME 2030
Forests and peatlands
For forests, the ecological impact monitoring, as required by the NECD, covers three stations
included in the ICP Forests level II/ICP IM) (Figure 25). The areas monitored are located in
protected areas and represent geographically different types of deposition and climatic
conditions. The monitoring sites are mainly conifer-dominated catchment areas, in which the
infertile soil is sensitive to the impacts of air pollutants. The body responsible for monitoring
the ecological impacts on forests is the Natural Resources Institute Finland.
Organising the ecological impact monitoring, as referred to in the NECD, does not require
continuous emission monitoring in peatlands. It means that the impacts of air pollutants on
vegetation and the chemical state of the soil need to be monitored at intervals of 5–10 years.
The peatlands monitored are also located in areas included in the ICP IM (Figure 25), which
represent various mire types, such as hardwood swamps, pine bogs and fens, as well as raised
bogs and aapa mires of the mire complex types found in Finland. The Ministry of the
Environment is responsible for ecological impact monitoring carried out in peatlands. The
Ministry commissions the monitoring, as referred to in Article 9 of the NECD, as specific
projects at regular intervals.
Figure 25. Ecological impact monitoring sites as referred to in Article 9 of the NECD
in Finland.
Monitoring sites as referred to in the NECD
Freshwater ecosystems Forests Ozone air pollution loads Peatlands
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Ozone
The National Emission Ceiling Directive requires that Member States monitor ozone air
pollution loads to assess damage to vegetation growth and biodiversity. In Finland, ozone air
pollution loads are monitored at four stations included in international measurement
programmes (Figure 25). Three of the monitoring stations represent forest areas and one
represents agricultural soils. The body responsible for the monitoring of ozone air pollution
loads is the Finnish Meteorological Institute.
7.3 Air quality monitoring
In Finland, air quality is mainly monitored by municipalities and the Finnish Meteorological
Institute. In addition, the Finnish Meteorological Institute functions as the national air quality
reference laboratory, which plays a key role in ensuring the consistent quality of air quality
monitoring. As a national reference laboratory, it offers quality control and assurance support
to air quality monitoring networks in Finland, for example, by organising reference
measurements and training.
The most widely measured compounds are PM10, PM2.5 and nitrogen dioxide. Air quality
measurements have been organised in a decentralised manner in municipalities, meaning that
air quality measurements are carried out in approximately 60 municipalities at approximately
100 measurement stations that form approximately 30 measurement networks (Figure 26). The
measurement networks are very different from each other in terms of the scope of their
activities and their resources, ranging from networks only comprising one measurement
station to extensive measurement networks operating in the area of several municipalities and
comprising more than ten stations. In many cases, industrial installations operating in the area
and producing emissions participate in the measurement activities and its financing (joint
monitoring), but they may also have a measurement network of their own. Air quality data are
collected in a database maintained by the Finnish Meteorological Institute, which forms part of
the environmental protection database. The Finnish Meteorological Institute publishes up-to-
date data46 and reports further to European Commission.
46 https://en.ilmatieteenlaitos.fi/air-quality
NATIONAL AIR POLLUTION CONTROL PROGRAMME 2030
Figure 26. Finland’s air quality monitoring network.
7.4 Monitoring of the measures included in the NAPCP
The measures adopted in the NAPCP will be implemented in cooperation with the different
responsible bodies. The measures specified in the baseline projection described in Chapter 5
will be assessed as part of the emission trends monitoring referred to in section 7.1.
The Ministry of the Environment will establish a monitoring network to support and monitor
the implementation of the measures proposed in the NAPCP. Key actors responsible for the
implementation of the programme will be invited to join the network. The implementation of
the measures proposed in Chapter 6 will be assessed through separate studies in 2026 and
2031. The Ministry of the Environment is responsible for the implementation of the
assessments together with the Finnish Environment Institute.
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In: Soimakallio S., Hildén M., Lanki T., Eskelinen H., Karvosenoja N., Kuusipalo H., Lepistö A., Mattila T., Mela H., Nissinen A., Ristimäki M., Rehunen A., Repo A., Salonen R., Savolahti M., Seppälä J., Tiittanen P., Virtanen S. 2017. Energia- ja ilmastostrategian ja keskipitkän aikavälin ilmastopolitiikan suunnitelman ympäristövaikutusten arviointi. (Environmental impact assessment of the Energy and Climate strategy and Medium-term Climate Change Policy Plan.) Valtioneuvoston selvitys ja tutkimustoiminnan julkaisusarja 59/2017.
Kupiainen K., Ana Stojiljkovic, Ville-Veikko Paunu, Niko Karvosenoja, Ari Karppinen, Jaakko Kukkonen, Leena Kangas, Mari Kauhaniemi, Bruce Denby, Otto Hänninen 2018. Characteristics and Mitigation of Vehicular Non-Exhaust Particle Emissions in Nordic Conditions. ITM 2018, 36th International Technical Meeting on Air Pollution Modelling and its Application, 14-18 May 2018, Ottawa, Canada. Extended abstract 4 pp.
Ministry of Agriculture and Forestry 2018. Action plan to reduce ammonia emissions from agriculture in Finland. Publications of the Ministry of Agriculture and Forestry 1b/2018.
Salonen, R.O., Pasanen, K., Pulkkinen, A.-M., Pennanen, A., Sokura, M., Pärjälä, E., Pukkala, E. 2015. Puun pienpolton savut: uutta tietoa altistumisesta ja terveyshaitoista. Ympäristö ja Terveys 6/2015: 4–11. http://urn. fi/URN:NBN:fi-fe2015103015772.
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Salonen, R.O., Pasanen, K., Pulkkinen, A.-M., Pennanen, A., Pärjälä, E., Koskentalo, T., Pukkala, E. 2016. Puun pienpolton savuja ulkoa sisälle ja pitkäaikaisesta altistumisesta syöpiä (2016) Ympäristö ja Terveys 8/2016: 28–39. http://urn.fi/URN:NBN:fi-fe201702281887
Savolahti M., Kangas L., Karppinen A., Karvosenoja N., Kukkonen J., Lanki T., Nurmi V., Palamarchuk Y., Paunu V-V., Sofiev M. & Tiittanen P. 2018. Ilmansaasteiden haittakustannusmalli Suomelle (IHKU). (Air Pollution Damage Cost Model for Finland (IHKU).) Valtioneuvoston selvitys ja tutkimustoiminnan julkaisusarja 26/2018
Savolahti M., Karvosenoja N., Tissari J., Kupiainen K., Sippula O., Jokiniemi J. 2016. Black carbon and fine particle emissions in Finnish residential wood combustion: Emission projections, reduction measures and the impact of combustion practices. Atmospheric Environment 140:495–505.
Suoheimo, P., Grönroos, J., Karvosenoja, N., Petäjä, J., Saarinen, K., Savolahti, M., Silvo K. 2015. Päästökattodirektiiviehdotuksen ja keskisuurten polttolaitosten direktiiviehdotuksen toimeenpanon vaikutukset Suomessa. (Impacts of the implementation of the Revision of National Emission Ceilings Directive and the Proposed Medium Combustion Plants Directive in Finland.) https://helda.helsinki.fi/handle/10138/153981
Tissari, J. 2008. Fine Particle Emissions from Residential Wood Combustion. Doctoral dissertation. Kuopio university publications C Natural and environmental sciences 237.
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Annex 1. Reported (2005, 2010, 2015) and projected (2020, 2025, 2030) air pollutant emissions
Only those emission sectors are included that are covered by the emission reduction
commitments set in the NECD. Some of the figures for 2005–2015 are preliminary estimates
for updates in the inventory, and thus they may deviate from the reported values.
Emissions kt/a 2005 2010 2015 2020 2025 2030
SO2
Fuel combustion in energy production and industrial processes
51.6 53.4 32.2 23.2 19.0 18.7
Industrial processes 8.7 5.3 4.0 2.9 2.4 2.3
Small-scale woodburning 6.6 6.0 3.9 3.2 3.3 3.2
Road transport 0.1 0.1 0.0 0.0 0.0 0.0
Machinery and other transport 1.9 1.3 0.2 0.2 0.1 0.1
Other (e.g. agriculture and peat production) 0.7 0.1 0.5 0.4 0.2 0.1
Total 69.6 66.2 40.8 29.9 25.0 24.4
NOx
Fuel combustion in energy production and industrial processes
66.8 76.0 53.1 52.0 41.9 42.1
Industrial processes 0.7 0.6 0.6 0.6 0.5 0.5
Small-scale woodburning 11.3 12.2 7.9 7.7 7.7 7.5
Road transport 74.7 49.7 35.8 26.3 17.8 13.1
Machinery and other transport 41.7 35.2 24.9 20.0 15.7 13.0
Other (e.g. agriculture and peat production) 0.1 0.1 0.1 0.3 0.6 0.6
Total 195.3 173.8 122.4 106.9 84.2 76.6
PM2.5
Fuel combustion in energy production and industrial processes
3.8 2.5 2.5 2.3 1.8 1.8
Industrial processes 3.4 2.6 2.1 1.9 1.5 1.5
Small-scale woodburning 10.4 13.7 10.2 9.2 9.0 8.7
Road transport 3.0 1.8 1.1 0.6 0.5 0.4
Street dust 1.1 1.1 1.1 1.2 1.2 1.2
Machinery and other transport 3.2 2.2 1.5 1.1 0.7 0.6
Other (e.g. agriculture and peat production) 2.9 2.4 1.6 1.5 1.5 1.4
Total 27.8 26.3 20.1 17.7 16.3 15.7
NMVOC
Fuel combustion in energy production and industrial processes
1.5 2.0 1.7 1.7 1.7 1.7
Industrial processes 25.7 20.2 14.0 13.7 13.7 13.7
Small-scale woodburning 17.9 23.8 17.9 17.0 16.6 16.3
Road transport 25.1 12.9 7.1 3.0 2.0 1.8
Machinery and other transport 30.5 16.6 11.7 8.2 7.0 6.2
Other (e.g. agriculture and peat production) 21.6 20.1 16.2 16.1 16.0 16.0
Total 122.3 95.6 68.6 59.7 57.0 55.7
NATIONAL AIR POLLUTION CONTROL PROGRAMME 2030
Emissions kt/a 2005 2010 2015 2020 2025 2030
NH3
Fuel combustion in energy production and industrial processes
0.0 0.0 0.0 0.0 0.0 0.0
Industrial processes 2.1 0.6 0.5 0.5 0.5 0.5
Small-scale woodburning 0.8 1.0 0.8 0.8 0.8 0.8
Road transport 2.0 1.6 1.1 1.0 1.0 1.0
Machinery and other transport 0.0 0.0 0.0 0.0 0.0 0.0
Agriculture 31.7 31.0 28.5 26.1 25.1 24.6
Total 36.6 34.2 30.9 28.4 27.4 26.9
BC
Fuel combustion in energy production and industrial processes
0.2 0.2 0.2 0.1 0.1 0.1
Industrial processes 0.0 0.0 0.0 0.0 0.0 0.0
Small-scale woodburning 3.1 4.1 3.0 2.7 2.6 2.5
Road transport 1.6 0.9 0.6 0.3 0.2 0.1
Street dust 0.2 0.2 0.2 0.2 0.2 0.2
Machinery and other transport 1.3 0.9 0.6 0.3 0.2 0.1
Other (e.g. agriculture and peat production) 0.0 0.0 0.0 0.0 0.0 0.0
Total 6.4 6.3 4.6 3.6 3.3 2.9
CH4
Use of fuels 17.9 18.8 14.0 14.0 14.0 14.0
Waste management 106.7 96.4 72.0 50.0 41.0 32.0
Agriculture 90.9 90.7 92.0 93.0 89.5 86.0
Total 215.5 205.9 178.0 157.0 144.5 132.0
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PUBLICATIONS OF THE MINISTRY OF ENVIRONMENT 2019:7
Annex 2. Air pollution control legislation
Environmental Protection Act 527/2014
Environmental Protection Decree (Ympäristönsuojeluasetus) 713/2014
Climate Change Act 609/2015
Government Decree on Waste Incineration 79/2017
Government Decree on arsenic, cadmium, mercury, nickel and polycyclic aromatic
hydrocarbons in ambient air (Valtioneuvoston asetus ilmassa olevasta arseenista, kadmiumista,
elohopeasta, nikkelistä ja polysyklisistä aromaattisista hiilivedyistä) 113/2017
Government Decree on Limiting Emissions from Large Combustion Plants 936/2014
Government Decree on Environmental Protection Requirements for Medium-sized Energy
Production Units 1065/2017
Government Decree on Limiting Certain Emissions from Agriculture and Horticulture
1250/2014
Annex 3. Measures included in the National Energy and Climate Strategy (NECS) for 2030 that affect air pollution control
NECS With minor exceptions, Finland will phase out the use of coal for energy.
NECS
The share of transport biofuels will be increased to 30 per cent, and an obligation to
blend light fuel oil used in machinery and heating with 10 per cent of bioliquids will be
introduced. The minimum aim is to have 250,000 electric and 50,000 gas-powered vehicles on the roads by 2030.
NECS
Technology-neutral tendering processes will be organised in 2018−2020, on the basis of which aid will be granted to cost-effective new electricity production from renewable energy.
NECS
The share of renewable energy in end consumption will increase to approximately 50 per
cent and self-sufficiency in energy to 55 per cent. The domestic use of imported oil will be halved as planned.
NATIONAL AIR POLLUTION CONTROL PROGRAMME 2030
Annex 4. Measures included in the Medium-term Climate Change Policy Plan (KAISU) for 2030 that affect air pollution control
KAISU/Transport and land use
Replacing fossil fuels with renewable and low-emission fuels and power sources
KAISU/Transport and land use
Improving the energy efficiency of vehicles and other means of transport
KAISU/Transport
and land use Improving the energy efficiency of the transport system, including the impacts of
the development of land use on emissions
The State will participate in the coordination of transport and land use in urban
regions and in work concerning the transport system, for example through
agreements on land use, housing and transport (MAL). The aim is to ensure
that projects promoting walking, cycling and public transport will be prioritised
in urban transport planning and project funding.
The location of jobs and services in growing urban regions will be steered
towards regional centres, subcentres and public transport nodes with a high
service level.
Infill construction, the creation of locations that are good for the urban
structure, and the use of such locations for new construction will be promoted
in urban areas.
The joint programme of the State and urban regions for promoting walking
and cycling will be implemented in 2018–2022.
Park-and-ride facilities will be developed in transport nodes.
Station areas will be developed through market experiments and urban
development
pilots.
KAISU/Agriculture Growing crops in organic soils for several years with zero tillage.
Raising the water table through controlled subsurface drainage.
Planting forest and wetland forest in areas with organic soil.
Promoting biogas production.
KAISU/Machinery Frontloading the introduction of a bioliquid blending obligation and increasing
the blending ratio (for light fuel oil) towards the 10% target set for 2030. The
steering instrument used to accomplish this will be an amendment to the act
on promoting the use of biofuels in transport (laki biopolttoaineiden käytön
edistämisestä liikenteessä 446/2007).
Promoting the use of biogas in machinery.
Increasing the share of energy-efficient and low-emission machinery through
public procurement. Promoting the energy-efficient use of machinery through guidance by
information.
KAISU/Other
energy-related
emissions
Introducing an obligation to blend light fuel oil with 10% of bioliquid, and
frontloading its implementation.
Promoting the replacement of fuel oil-fired boilers with boilers fired with solid fuel.
Enhancing the efficiency of energy audits in accordance with the policies proposed in the National Energy and Climate Strategy.
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PUBLICATIONS OF THE MINISTRY OF ENVIRONMENT 2019:7
The European Union’s revised National Emission Ceilings Directive
(2016/2284) lays down the obligation to prepare a National Air Pollution Control
Programme (NAPCP) for Member States. Finland’s NAPCP comprises the
actions for realising the emission reduction commitments laid down in the
directive for emissions of sulphur dioxide, nitrogen oxides, volatile organic
compounds, fine particulate matter and ammonia. The NAPCP includes a
description of the current state of Finland’s air pollution control (emissions, air
quality, effects) and an estimate on the amount of pollution, the effects caused
by it, and what measures must be implemented by 2030.
The calculations made by the Finnish Environment Institute show that Finland
already meets the emission reduction obligations set by the directive with the
previously agreed measures set out in the National Energy and Climate
Strategy and the action plan to reduce ammonia emissions from agriculture.
Air pollution continues to cause health hazards and environmental damage
despite the fact that the emission reduction obligations are met. Due to this, the
NAPCP includes measures to further improve air quality and reduce exposure
to pollution. These measures are specifically related to emissions that are
inhaled (small-scale woodburning and street dust, exhaust fumes) and, on the
other hand, to the actions of other sectors that affect air quality.
The NAPCP emphasises the need to take air pollution control into account
systematically in all planning and decision-making activities that affect air quality
at all levels of decision-making. In particular the transport, energy, climate,
agriculture and land-use sectors, together with municipalities, can affect air
quality. The benefits can be seen throughout the welfare sector. Joint projects,
aimed at promoting carbon neutrality and public health, usually also improve air
quality.
ISBN: 978-952-361-009-5 (printed)
ISBN: 978-952-361-008-8 (PDF)
ISSN: 2490-0648 (printed)
ISSN: 2490-1024 (PDF)