The Cabinet has decided to expand the Smoke Control Areas in Cambridge to cover the entire city, excluding permanently moored vessels.

URL: https://democracy.cambridge.gov.uk/ieDecisionDetails.aspx?ID=5696

Decision Maker: Cabinet

Outcome:

Is Key Decision?: Yes

Is Callable In?: Yes

Purpose: Under the Local Air Quality Management (LAQM) regime, Local Authorities are responsible for monitoring air quality and contributing to national targets, including the reduction of Particulate Matter (PM2.5). In Cambridge, solid fuel burning is the largest single source of PM2.5 emissions, accounting for 40% of the total. According to the Public Health Outcomes Framework, 51 deaths in Cambridge in 2023 could be attributed to particulate air pollution (latest available data).   The primary legislation governing emissions from solid fuel burning is the Clean Air Act 1993, which includes provisions for Smoke Control Areas (SCAs). Within an SCA, smoke emissions are prohibited unless smokeless fuel is used, or the appliance is approved by DEFRA. The existing SCAs in Cambridge, established in the 1960s and 70s, cover only a small portion of the city and exclude the majority of residential properties, limiting their effectiveness to control emissions.   To assess the potential impacts and benefits of expanding the SCA to cover the entire city, Cambridge City Council commissioned independent experts, Air Quality Consultants Ltd. Their report evaluated the environmental, health, and socio-economic impacts of such an expansion, including the implications of including or excluding permanently moored vessels.   The report concluded that expanding the SCA citywide would result in a net societal benefit, primarily from health improvements due to reduced air pollution and greenhouse gas emissions. These benefits were found to outweigh the associated costs, which include the financial burden on homeowners and vessel owners to switch fuels or upgrade appliances, as well as implementation and enforcement costs for the Council. The socio-economic analysis highlighted that few residents rely solely on solid fuel for heating and hot water. Most use wood-burning stoves for leisure or to supplement other heating methods. However, evidence suggests this is not the case for residents of moored vessels, who are more dependent on solid fuel, may have lower incomes and be more vulnerable.   Following agreement at the Environment & Community Scrutiny Committee on 26th September 2024, a public consultation was held from 27 January to 20 April 2025. A total of 776 responses were received, with approximately 55% in favour of expanding the SCA and 40% opposed. Supporters cited health and environmental benefits, while opposition focused on concerns about impacts on low-income households, personal freedom, scepticism about air pollution levels, and resource prioritisation by the council. In parallel, targeted engagement was conducted with the boating community. The findings of the consultation and wider targeted engagement supported the findings of the report, that with the exception of the boating community most residents are not solely dependent on solid fuel and that for most burning solid fuel is a personal choice.   Based on the findings of the independent report, public consultation, and targeted engagement, the recommendation is to revoke the existing SCAs and establish a single, citywide SCA. However, permanently moored vessels should be excluded from the expansion at this time due to the disproportionate impact on this group. The Council will continue to engage with the boating community to explore viable alternatives and seek funding to support a transition to more sustainable heating solutions.

Content: Under the Local Air Quality Management (LAQM) regime, Local Authorities are responsible for monitoring air quality and contributing to national targets, including the reduction of Particulate Matter (PM2.5). In Cambridge, solid fuel burning is the largest single source of PM2.5 emissions, accounting for 40% of the total. According to the Public Health Outcomes Framework, 51 deaths in Cambridge in 2023 could be attributed to particulate air pollution (latest available data).   The primary legislation governing emissions from solid fuel burning is the Clean Air Act 1993, which includes provisions for Smoke Control Areas (SCAs). Within an SCA, smoke emissions are prohibited unless smokeless fuel is used, or the appliance is approved by DEFRA. The existing SCAs in Cambridge, established in the 1960s and 70s, cover only a small portion of the city and exclude the majority of residential properties, limiting their effectiveness to control emissions.   To assess the potential impacts and benefits of expanding the SCA to cover the entire city, Cambridge City Council commissioned independent experts, Air Quality Consultants Ltd. Their report evaluated the environmental, health, and socio-economic impacts of such an expansion, including the implications of including or excluding permanently moored vessels.   The report concluded that expanding the SCA citywide would result in a net societal benefit, primarily from health improvements due to reduced air pollution and greenhouse gas emissions. These benefits were found to outweigh the associated costs, which include the financial burden on homeowners and vessel owners to switch fuels or upgrade appliances, as well as implementation and enforcement costs for the Council. The socio-economic analysis highlighted that few residents rely solely on solid fuel for heating and hot water. Most use wood-burning stoves for leisure or to supplement other heating methods. However, evidence suggests this is not the case for residents of moored vessels, who are more dependent on solid fuel, may have lower incomes and be more vulnerable.   Following agreement at the Environment & Community Scrutiny Committee on 26th September 2024, a public consultation was held from 27 January to 20 April 2025. A total of 776 responses were received, with approximately 55% in favour of expanding the SCA and 40% opposed. Supporters cited health and environmental benefits, while opposition focused on concerns about impacts on low-income households, personal freedom, scepticism about air pollution levels, and resource prioritisation by the council. In parallel, targeted engagement was conducted with the boating community. The findings of the consultation and wider targeted engagement supported the findings of the report, that with the exception of the boating community most residents are not solely dependent on solid fuel and that for most burning solid fuel is a personal choice.   Based on the findings of the independent report, public consultation, and targeted engagement, the recommendation is to revoke the existing SCAs and establish a single, citywide SCA. However, permanently moored vessels should be excluded from the expansion at this time due to the disproportionate impact on this group. The Council will continue to engage with the boating community to explore viable alternatives and seek funding to support a transition to more sustainable heating solutions. Cabinet resolved to approve revoking the existing Smoke Control Areas (SCAs) and implementing a single, city-wide SCA, excluding permanent residential moored vessels.

Date of Decision: June 24, 2025