Sunset in Haifa Bay/Photo: Ilan Malester
REDUCING
AIR POLLUTION
IN HAIFA BAY
An ambitious action plan promises to reduce
air pollution and environmental hazards in
Haifa Bay
On April 28, 2015, the WHO Regional Office for Europe and the Organization for
Economic Co-operation and Development (OECD) published dramatic findings that made headlines throughout
the world: Air pollution costs European
economies $1.6 trillion a year in premature deaths and diseases – an amount
nearly equivalent to one tenth of the
gross domestic product (GDP) of the entire European Union in 2013. The findings
were made public at the opening of a
three-day Mid-Term Review Meeting of
the European Environment and Health
Process (EHP) convened in the northern
city of Haifa in Israel.
Haifa proved a perfect venue for the
High-Level Mid-Term Review Meeting of
the EHP. In recent years, the environmental and health impacts of air pollution in
Haifa Bay captured the headlines in Israel
in the wake of some disturbing reports.
In one, the Pollutant Release and Transfer Register for 2013 placed Haifa at the
top of the list of polluted cities in Israel. In
another, data published by the Ministry
of Health pointed to an excess of adult
morbidity and mortality in the region
compared with the national average for
respiratory disease, cardiovascular disease and cancer.
Haifa Bay: A
Pollution Hotspot
Haifa Bay has long been considered one
of Israel’s air pollution hotspots due to its
high concentration of industrial plants,
including an oil refinery and chemical
and petrochemical industries, alongside
high transport loads and port activities.
The situation is exacerbated by the
physical proximity of a wide range of
hazardous material sources, including
an ammonia tank and fuel farms, to
population centers, and by topographic
and climatic conditions that aggravate air
pollutant dispersion. As a result, pollutant
emissions and hazardous material risks
threaten a population of more than half
a million residents living in a 165 square
kilometer metropolitan area.
Recognition of the environmental and
health problems in Haifa Bay led to the
www.environment.gov.il
establishment of an air monitoring system
in the region some thirty years ago,
and today the Haifa metropolitan area
boasts the densest monitoring network
in Israel with 27 continuous monitoring
stations that measure criteria pollutants
including sulfur oxides, nitrogen oxides,
ozone, particulates and more. In 20072008, the system was complemented by
the results of a comprehensive survey
to characterize air quality in Haifa Bay,
especially in terms of “exotic” air pollutants
that cannot be continuously measured in
the stations. Four series of comprehensive
measurements were taken in over 20
points in Haifa Bay, one per season. In
2013, periodic environmental sampling
was instituted in 14 sampling points
throughout the country at a frequency
of once in two weeks, with four of the
sampling points concentrated in Haifa
Bay.
Based on the results of monitoring and
sampling, the Ministry of Environmental
Protection initiated an air pollution reduction action plan for Haifa Bay in February
2008. The plan focused on 15 industrial
plants with high air pollution potential
as expressed in the emission of nonmethane volatile organic compounds
(NMVOC). The results were not long in
coming. Implementation of best available technologies led to a 65% decrease
in NMVOC emissions between 2009 and
2015. Air quality continued to improve
with the conversion of two units in Haifa’s
heavy fuel oil based power plant to combined cycle natural gas units in 2012 and
with the introduction of natural gas into
the petrochemical complex in 2013.
At the same time, much remains to
be done, especially when it comes to
transportation-related emissions. In
fact, the only exceedance of the annual
NO2 standard in Haifa Bay in 2014 was
recorded in a transportation monitoring
station. Additionally, recent monitoring
and sampling results show a few
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Air Pollutants in Haifa Bay
exceedances of the diurnal standard
for PM2.5, which are mostly attributed
to vehicular emissions and dust storms.
Challenges also remain in other areas as
evidenced by exceedances of the annual
target for formaldehyde and benzoapyrene.
In light of the environmental and
health data, and in accordance with the
precautionary principle, the Ministry
of Environmental Protection decided
that additional steps are necessary to
significantly reduce pollutant emissions to
the environment while at the same time
expanding monitoring and increasing
epidemiological research on air pollutionrelated mortality and morbidity in Haifa
Bay.
Moving Forward
– Confronting
the Challenges
While pollution levels in Haifa Bay
continue to show a downward trend with
further decreases expected as a result of
increased supervision and enforcement
and the introduction of natural gas and
best available techniques, the public
perception of air quality in the region
continues to be negative.
Growing recognition of the risks posed
by the density of pollution and hazardous substances to the surrounding
population led the Ministry of Environmental Protection to launch a new en-
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› Sulfur dioxide: The main source of SO2 emissions in Haifa Bay is heavy fuel oil
combustion. Industry is responsible for 99% of the emissions and transportation for
the remaining 1% with the petrochemical sector the major contributor. Emissions
from this sector have been reduced dramatically due to the gradual transition to
natural gas in both power plants and industry.
› Nitrogen oxides: NOX is emitted from transportation (54%) and from industry
(46%). Emission reductions are especially prominent in the energy and petrochemical
sectors due to the introduction of natural gas.
› Particulates: PM10 emissions are attributed to industry (74%) and to transportation
(26%) while 69% of the PM2.5 emissions are attributed to industry and 31% to transportation. Trends show significant emissions reductions from energy generation and
the petrochemical industry due to changes in the fuel mix in the Haifa power plant
and the transition to natural gas in the petrochemical industry.
› Non-methane volatile organic compounds: According to the PRTR for 2013,
some 4,200 tons of NMVOCs are emitted in Haifa Bay annually, of which industry
contributes 1,900 tons per year, domestic uses 1,100 tons per year, transportation 760
tons per year, and gas stations 250 tons per year. A 65% decrease in NMVOC industrial
emissions was noted in Haifa Bay over the past six years, largely due to compliance
with regulatory requirements of the Clean Air Law and emission permits.
vironmental action plan for Haifa Bay in
2015 aimed at improving air quality and
reducing the risks from hazardous substances, contaminated land and groundwater. While the link between cancer and
pollution cannot be proved, the Ministry
of Environmental Protection chose to act
in accordance with the precautionary
principle. In cooperation with the Haifa
Municipality and the Haifa Association
of Towns for the Environment, it set up a
joint team, which included the Ministry
of Health and the Ministry of Transport,
to formulate an action plan to reduce air
pollution and environmental risks in Haifa
Bay.
The draft plan was presented to
the public in the summer of 2015
for feedback and was subsequently
submitted to the government by the
Ministers of Environmental Protection,
Finance, Transportation and Health. It
was approved by government decision
on September 6, 2015.
In accordance with the plan, some NIS 330
million (about $90 million) will be invested
in improving air quality in Haifa Bay,
increasing inspection and enforcement,
reducing risks to the population,
monitoring pollutants, implementing
epidemiological research and making
information more accessible to the
public. Implementation of the provisions
by several ministries is expected to bring
about a major change for the better in the
quality of life and the health of residents
of the Haifa metropolitan area.
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THE NATIONAL PLAN
FOR REDUCTION OF
POLLUTION AND
ENVIRONMENTAL
HAZARDS IN HAIFA BAY
Reduction of Air Pollution from
Industry and Stationary Sources
The action plan sets regional targets for
the reduction of air pollutant emissions
from industrial sources in Haifa Bay and
calls for reducing NMVOC emissions
by a further 48% by 2018 relative to
emissions in 2014.
This will be accomplished by:
› Mandating the use of best available
techniques (BATs) for emissions
reduction in each of the facilities and
stacks of the 26 industrial plants that
are responsible for more than 70% of
industrial emissions in Haifa Bay.
› Converting all industrial steam boilers
to natural gas and clean fuel instead
of heavy fuel oil (mazut) which is
currently used by half of the existing
53 boilers in Haifa Bay.
› Increasing supervision and inspection
of industrial facilities including
increasing the number of spot checks
Reduction of Air Pollution
from Transportation
Vehicles in Haifa Bay contribute more
than half of NOx emissions, a quarter
of NMVOC emissions and a quarter of
PM2.5 emissions. Although responsible
for only 20% of the kilometers traveled,
diesel vehicles are responsible for 75% of
the fine respirable particles emitted by
transportation. Implementation of the
action plan is expected to make Haifa the
first city in Israel that is free of polluting
diesel smoke.
Industry at Haifa Bay/Photo: Ilan Malester
in stacks and inspections to detect
fugitive leaks.
› Mandating all gas stations in Haifa
Bay to install Stage II Vapor Recovery
Systems which recover some 85%
Pollutant
Industrial Emissions
2009
NMVOCs
PM2.5
Sulfur oxides
Emissions Reduction
Percentage reduced: Percentage reduced:
2014-2018
2009-2018
2014
2018
4,540 1,780
930
48%
80%
180
50%
55%
400
75%
95%
12%
51%
400
360
7,400 1,600
Nitrogen oxides 4,550 2,500 2,200
This will be accomplished by:
› Establishing Israel’s first “Low Emission
Zone” to restrict the entry of diesel
vehicles unless equipped with
particulate filters.
› Launching a pilot project for at least
30 public transport buses powered by
natural gas, including the maintenance
and fueling infrastructure.
› Providing guidelines to the public
and to civil servants on heat waves
and cold waves and preparing
www.environment.gov.il
of the fuel vapors during vehicle
refueling. It is estimated that gas
stations are responsible for 8% of
NMVOC emissions in Haifa Bay and
that installation of the systems will
reduce emissions by 270 tons/year.
emergency response plans, especially
for vulnerable and high risk groups.
› Providing incentives and support for
the installation of particulate filters in
diesel vehicles (especially trucks and
buses) in Haifa Bay.
› Promoting the movement of trucks
in Haifa’s Carmel Tunnels by means
of lower tariffs in order to minimize
truck traffic in the city’s most densely
populated area, thereby reducing
population exposure to pollution and
noise by 97%.
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the number of samplings, the number of pollutants sampled and the
number of sampling points (from four
to eight).
Increasing Environmental and
Health Surveys and Research Studies
Roadside vehicular pollution spot checks/Photo: Yuval Hendler
› Supporting the purchase of 22 new
trucks powered by natural gas and
installing about 12 particulate filters in
the rest of the diesel truck fleet, thus
making Haifa the first city in Israel to
operate a low-pollution garbage
collection fleet.
› Supporting the operation of 500
electric taxis through financial
incentives.
Reduction of Air Pollution
from Vessels
Vessels are known as major polluters due
to their use of marine heavy fuel oil with
high sulfur content and lack of emissions
reduction systems. It is estimated that
vessels contribute 5% of particulate
emissions, 4% of nitrogen oxide emissions
and 2% of sulfur oxide emissions in Israel.
The aim is to reduce air pollution emitted
from vessels in Israel’s ports including
Haifa port.
This will be accomplished by:
› Enacting air pollution emission
regulations for vessels based on
Annex VI of MARPOL 1973/1978, the
International Convention for the
Prevention of Pollution from Ships.
› Promoting compliance with European
Directive 1999/32/EC on reducing the
sulfur content of marine fuels.
› Promoting the establishment of an
infrastructure for connecting vessels
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to shore-side electricity while at berth
in the new ports of Haifa and Ashdod,
thus enabling vessel engines to be
switched off, in accordance with EU
recommendation 2006/339/EC.
Expanding Air Quality
Monitoring and Sampling
The Ministry of Health collects information on mortality and morbidity which
are linked to air pollution in the scientific
literature. However, existing registers do
not specifically relate to the health effects
of environmental pollution. It is necessary
to establish a collection, processing and
analysis system for morbidity and mortality data in Haifa Bay in order to check the
impacts of air pollution on health and the
environment and serve as a basis for decision making.
This will be accomplished by:
While Haifa Bay’s air monitoring system is
especially dense, continuous monitoring
methods are not yet available for many
of the pollutants emitted in Haifa Bay.
To complement the system, periodic air
sampling is undertaken to determine
the concentration of such air pollutants
as NMVOCs, heavy metals and polyaromatic materials. Both systems should
be expanded in order to provide a more
comprehensive knowledge base on air
pollution trends and population exposure
to pollutant emissions.
› Conducting health surveys including
epidemiological surveys to assess
the impacts of different air pollutants
on the health of different population
groups in different parts of Haifa Bay.
This will be accomplished by:
Reducing the Risks of
Hazardous Materials
› Increasing the monitoring of
transportation sources and improving
the geographic distribution of
monitoring stations so as to identify
the most polluted areas and focus
efforts on these regions.
› Increasing the number of air pollutants
that are continuously monitored,
including PM1, black carbon and BTEX
(benzene, toluene, ethylbenzene and
xylene).
› Doubling the scope of periodic environmental sampling by increasing
› Conducting research and surveys
on air pollution, soil contamination
and river pollution so as to assess the
impacts of environmental pollution
on the different environmental media
and the different ecosystems in Haifa
Bay.
Due to the density of industrial facilities
dealing with hazardous materials and
their proximity to the population in
Haifa Bay, measures must be taken to
reduce risks including expansion of
the knowledge base and removal of
risk factors from populated areas. One
measure which is already in advanced
planning is the removal of the 12,000
ton ammonia storage tank from Haifa
Bay and the establishment of an
ammonia production plant in southern
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Israel that will supply the ammonia
needs of the country. The aim is to
reduce risks to the population from
hazardous material events.
This will be accomplished by:
› Conducting an aggregate risk survey
on all sources of risk in Haifa Bay in
order to assess their impact on the
population in case of hazardous
material events in industrial facilities or
during hazardous material transport.
› Removing
hazardous
material
facilities from Haifa Bay including
reviewing alternatives for relocating
fuel farms and tanks to suitable sites
that are further removed from the
population.
Reaching for
the Goal
Implementation of the Haifa Bay action
plan is expected to bring about an 80%
reduction in NMVOC emissions from industrial sources and to cut carcinogenic
particulate emissions from transportation by half in 2018 relative to 2009. And
progress is already underway. Stringent
requirements for the installation of advanced pollution abatement technologies are being incorporated into the business licenses and emission permits of 26
of the region’s largest industrial plants
with the greatest pollution potential. Vapor recovery systems have already been
installed in 90% of Haifa Bay’s gas stations. Plans for the operation of 30 buses
by natural gas have been advanced by
Egged, the largest transit bus company
in Israel. The first phase of a Low Emission Zone was launched, restricting entry
of heavy trucks to Haifa's lower city. Two
additional mobile monitoring units have
been added to the monitoring system
that will also measure concentrations of
Transparency and
Accessibility of Environmental
Information to the Public
The perception of environmental quality
in Haifa Bay is negative and the information available is not clearly communicated to the general public.
To help remedy the situation a public
conference aimed at making environmental information more accessible to
the public was convened in January of
2015, which was followed by a poll on
public needs later in the year. The aim is
to improve the quality of information on
air quality that is available to the public
and to make it accessible and easily understood.
sub-micron particulates and black carbon. Air sampling points have been doubled from four to eight. Inspection and
enforcement have been fortified. And the
list goes on and on.
One of the greatest challenges remains
transport-related air pollution, especially
diesel pollution, based on the recognition that exposure to fine and sub-micron particles of diesel exhaust presents
a major health risk. “The World Health
Organization has classified diesel engine exhaust as carcinogenic. Therefore,
major efforts are focusing on reducing
emissions from diesel vehicles, especially buses and trucks. We want to ‘sell’
the vision of Haifa as a diesel free city.
Our motto is Haifa first, then the rest of
the country,” says Amir Zalzberg, Head of
the Transportation and Fuel Department
at the Ministry of Environmental Protection. “I don’t believe in one silver bullet,”
he goes on. “The idea is to promote the
penetration of a wide range of alternative
environment-friendly technologies to the
market – electric buses, buses powered
by compressed natural gas, retrofits with
www.environment.gov.il
This will be accomplished by:
› Providing the public with an accessible,
clear and understandable database
which will be available on the Ministry
of Environmental Protection’s website
and will include updated information
on emission sources and air quality in
Haifa Bay, pollutants emitted to air and
their health impacts, preparedness for
and prevention of emergencies, and
contact information on practical steps
to be taken during emergencies.
› Publishing annual reports on inspection and enforcement on the ministry’s website, including the results of
spot checks and enforcement.
particulate filters and much more. The
market can then decide which emissionreduction technologies best fit its needs.”
One thing is already certain. Air quality
improvement in Haifa Bay is at the top of
the priority list of the ministry, as stated by
Minister of Environmental Protection Avi
Gabbay: “The situation in Haifa Bay must
change. We are continuing to work with
the Ministries of Transportation, Health,
Finance and local authorities on behalf of
the hundreds of thousands of residents of
the Haifa metropolitan region who have
a right to clean air and quality of life.”
Industrial air pollution monitoring/Photo: Yuval Hendler
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