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COMMITTEE ON THE MEDICAL EFFECTS OF AIR POLLUTANTS


Minutes of the meeting held on Friday 8 October 1999

Present:  
Chairman: Professor S T Holgate
Members: Professor P Burney
  Dr A Gavin
  Dr A R Gibbs
  Mr F Hurley
  Professor D Purser
  Professor R Richards
  Professor A Seaton
  Professor A Tattersfield
  Dr S Venitt
Secretariat: Dr R L Maynard
  Dr H A Walton
  Miss J P Cumberlidge
  Mr J Crook
Assessors: Dr D Dixon (SEHD)
  Dr P Harrison (IEH)
  Dr M Williams (DETR)
In Attendance: Mrs P Fryer (IEH)
  Dr Tanja Pless-Mulloli (Item 6)
  Dr C Holman (Item 7)
  Ms E Jenkins (DH)

ITEM 1. APOLOGIES FOR ABSENCE AND ANNOUNCEMENTS

1. Apologies for absence had been received from Dr Burr, Professor Anderson, Professor Ayres, Professor Dayan, Professor Harrison, Professor Poole-Wilson, Professor Strachan, Dr Cooper (MRC), Dr Coster (DETR), Dr Carter (DETR), Dr Tromans (WO), Dr Smith (DETR) and Dr Morris (SCIEH).

2. The Chairman welcomed Dr Stan Venitt and noted that Dr Tanja Pless-Mulloli and Dr Claire Holman would be in attendance for Items 6 and 7, respectively.


ITEM 2. MINUTES OF THE MEETING HELD ON 16 OCTOBER 1998. COMEAP/MIN/98/3

3. The minutes were reviewed page by page. It was agreed that mention of Professor Harrison's personal interest as a Consultant to Associated Octel should be deleted from paragraph 26 since his involvement had now lapsed. It was also agreed that Professor Seaton's entry should be amended to Rolls Royce Aeroengines. Subject to these amendments the minutes were agreed as an accurate record of the meeting


ITEM 3. MATTERS ARISING FROM THE MINUTES

3.1 Committee Indemnity

4. Members were informed that the Committee's views on an indemnity had been passed on to DH's Finance department which was holding discussions with the Treasury. The Secretariat undertook to report further developments to the Committee at the February 2000 meeting.


[ACTION: Secretariat]

3.2 EU Pollution Related Diseases - Call for Proposals

5. This had been circulated to Members early in September. It was confirmed that research projects would operate on a matched funding basis.


ITEM 4. COMMUNICATING WITH THE PUBLIC ON THE HEALTH EFFECTS OF AIR POLLUTANTS. COMEAP/99/12

6. Members were reminded of the discussion that had taken place at the last meeting based on Mr Alan Hedges' presentation of his qualitative research on people's understanding of the health effects of air pollutants. The Committee had indicated that it wished to return to this issue and attention was drawn to COMEAP/99/12 which set out the progress that had been made since then.

7. Turning to Annex A of COMEAP/99/12, the Secretariat explained that this contained a series of statements which tried to capture the current state of knowledge in a relatively simple and straightforward way. It was noted that these might form the basis of future advice to the public about the health effects of air pollutants. Members were asked to consider Annex A paragraph by paragraph stating whether they were content that the statements in the Annex were an accurate reflection of current knowledge, whether there were any omissions, and whether the statements went too far or not far enough.

8. It was suggested that an introductory sentence in paragraph 1, explaining that there might be long- or short-term effects that were looked at quite differently, might be useful. There was concern that some of the statements in this paragraph were unnecessarily negative. For example, it was suggested that it might be more useful to stress that people could help by changing their behaviour patterns to reduce pollution by changing their diet, for example to increase their intake of antioxidants which might oppose the effects of pollutants, rather than saying that there was little one could do to prevent exposure other than moving, which might not, in fact, be beneficial.

9. There was some discussion of the statement that the reduction in life expectancy due to exposure to UK levels of air pollution might be as much as one year. Some Members felt that this might be incorrect in that it might include both the effects of acute exposure and long-term exposure and thus involve an element of double-counting. The Secretariat commented that this figure was based on Professor Brunekreef's work and was not intended to be definitive. It was also suggested that the effect of exposure to air pollution on life expectancy should be put into context with the effects of other risk factors, such as smoking and obesity.

10. The emphasis on hospital admissions for respiratory diseases in paragraph 2 required quantification in terms of the proportion of total respiratory admissions affected by air pollution. It was also noted that recent studies in Birmingham had failed to show any clear association between hospital admissions for respiratory disease and air pollution. There was some discussion of possible larger losses of life expectancy than those specified, eg in relation to heart disease. It would be useful to explain that there were fluctuations in deaths and hospital admissions due to many factors such as weather or respiratory infections such as flu. Air pollution was one (probably minor) factor that contributed. Some Members thought that the final sentence should be emphasised and be placed at the beginning of the paragraph. Members were asked whether it was sensible to distinguish between the effects of air pollution on heart and respiratory disease; most felt that this was difficult.

11. In paragraph 3 which dealt with air pollution and asthma, it was agreed that whilst there was little doubt that sulphur dioxide was a strong airway irritant in asthmatic patients, this could not be said to be the case for ozone; therefore, the reference to ozone in this context should be deleted. Members commented that environmental tobacco smoke should be mentioned in this section as a trigger for asthma. It was also suggested that the first line of this paragraph should read "Perhaps surprisingly, air pollution is not related to the increase in the number of people suffering from asthma in the UK", and that the fourth line of this paragraph should be amended to read "…may be adversely affected by day-to-day changes in air pollutants".

12. Members commented that the title of paragraph 4 which addressed the issues of avoiding the effects of air pollutants upon health should be changed, and that the paragraph was, in general, negative. It was felt that a positive list of advice for those individuals who were susceptible to the effects of exposure to air pollution was required, but also acknowledged that most people would not experience any noticeable effects and therefore need not alter their behaviour. However, the point was also raised that behaviour patterns could change levels of air pollution, and that individuals could contribute to this themselves. It was also noted that other action was also being taken to reduce pollution, eg, more demanding fuel standards and emissions limits.

13. Members went on to discuss paragraph 5 which dealt with information on levels of outdoor air pollutants. It was felt that very few, if any, patients used the data on the DETR air pollution information system in order to alter their medication, and the point was reiterated that few people actually needed to do this. In reply to a query as to whether this paragraph related to forecasting levels of air pollution or that actual day's levels, the Secretariat agreed that this needed to be clarified. The Committee felt that that the main reason for monitoring air pollutant levels was in order to regulate, and that the paragraph needed to explain this. Informing the public provided advanced warning to those who needed it, allowed the public to monitor progress and allowed the public to take action themselves to reduce pollution levels if they wished.

14. Members suggested that in paragraph 6, which contained a discussion of indoor air pollution, a clear statement should be made at the beginning emphasising that this was important in view of the fact that most people spent most of their time in an indoor environment. Some Members expressed the view that biological organisms, such as house dust mites, should be omitted from this section as they were not per se pollutants. The emphasis on carbon monoxide was welcomed, and it was also suggested that environmental tobacco smoke should be given more prominence in this context.

15. The Committee was asked whether it felt that the final paragraph on diet should be included. It was acknowledged that there was little evidence that diet had any influence on the effects of air pollution upon health, but that a good diet was beneficial to respiratory and cardiovascular health generally, and that a statement to this effect would be helpful. It was pointed out that a recent COMA report had made a specific recommendation in relation to intake of dietary supplements, and that COMEAP should not be seen to be contradicting this. After some further discussion, it was agreed that further comments should be submitted in writing to the Secretariat, who would prepare a revised draft of the advice for consideration at the February 2000 meeting.

[ACTION: Secretariat]

16. The Committee proceeded to consider Annex B of COMEAP/99/12. The Secretariat commented that DH and DETR officials had recently met with officials from the BBC Weather Centre and NETCEN. The BBC was keen to obtain the daily forecasts of air pollution information and to place it on the BBC online website, and would be preparing a "mocked-up" air pollution page with links across to the DETR website in the near future. It was also noted that the BBC was keen to pass this information on to local radio and news networks, as it was seeking to build up its community information and online facilities in the future.

17. In addition, the Secretariat told COMEAP that the BBC had suggested a numerical Air Pollution Index (API) based on the current banding system, the aim being to have similar 1-10 scales for air pollution as currently operate for tanning times and for pollen. It was suggested that the advantages of developing a simple numerical index would be immense; it would ensure that information about air pollution levels was more widely available than at present, and that it was more likely to feature in weather reports. Thus, in a relatively short space of time, people would become as familiar with what the numbers meant in terms of air pollution levels as they were now with those relating to temperatures, pollen counts and tanning times. Attention was drawn to a table attached at Annex B that demonstrated how such an index might work. It was acknowledged that there were disadvantages; three pollutants registering, eg, 7 (high) would lead to an overall 7 - this would be a different sort of day with quite different effects on health from one where only one pollutant registered as high, also graded as 7. However, it was noted that this applied equally to the present banding system. The Secretariat also pointed out that there was more of a temptation with a numerical index to add up the numbers. However, on the whole, the feeling was that the advantages of approving an index along the lines set out in the Annex far outweighed these disadvantages, as it would help to raise people's awareness of air pollution levels. Members were invited to comment on whether they felt content with an API along the lines set out at Annex B of COMEAP/99/12 and whether the statements that accompanied each band were helpful enough. It was noted that the aim, like that of the current banding system, was not to provide a completely scientifically accurate numerical scale, but to give a general indication of likely effects.

18. Members supported the concept of an Air Pollution Index. They noted the concern that people might be tempted to add up numbers, but felt that this was unavoidable if such a system was used. Some Members commented that this was not an issue about whether numbers or bands were used to describe the levels of air pollution and air quality, but of whether all pollutants should be grouped together. The suggestion was also made that rather than using a table on the proposed website, a histogram, employing five different colours to describe the different air quality at a particular time, might be more accessible to the public.

19. Some Members commented that consistent measuring times should be used; they felt that while it was acceptable to use different averaging times for different pollutants, the same averaging time should be used when looking at one particular pollutant. This applied particularly to ozone in the current banding system approach where different averaging times were used at different levels of pollution. However, it was pointed out that this might be difficult because of the requirements imposed by EC Directives. After some additional discussion, it was agreed that these comments would be taken into account, and that the text would be considered again at the next meeting of the Committee in February 2000.


[ACTION: Secretariat]


ITEM 5. INVESTIGATING THE HEALTH IMPACT OF LOCAL EMISSIONS. COMEAP/99/13

No interests were declared in this item.

20. This issue had been discussed at the meeting in February 1999 and attention was drawn to a revised draft version of the Guidelines attached in the Annex to COMEAP/99/13 on which members' views were welcomed. In particular, the Secretariat noted that members' suggestions for additional organisations and references would be welcome. Subject to the Committee's views, the Secretariat intended to send out this revised version for limited pre-consultation before undertaking a wider consultation with to health authorities, local authorities, industry and the Environment Agency. Following that, it was intended to issue the Guidelines as a Health Service Circular of Good Practice. This would set the Guidelines in the context of health authorities' other duties relating to chemical incidents, securing the health of local population, etc, and suggest ways in which Regional Health Authorities might begin to develop and co-ordinate activities to examine the potential health impact of environmental pollution. The Secretariat hoped that it would be possible to circulate a near final version of the Guidelines to Members before the next meeting

21. Members felt that early on in the document there should be a statement pointing out that historically, such investigations had rarely found any positive causal associations between local industrial emissions and health effects. This would serve to reduce the general public's expectations of getting a definitive answer. It was also suggested that there should be some discussion with CDSC Collindale, and HSE who regularly undertook such investigations. Another body that might usefully be involved was the Faculty of Public Health Medicine. The point was raised that there were different, well-established procedures in place for one-off incidents, and it was agreed to make this point clear in the document. It should also be emphasised that the guidelines related to emissions to air. There was some discussion as to who the guidelines were ultimately aimed at and what body/organisation should be responsible for investigating the health impacts of these kinds of incident. The Secretariat replied that the guidelines had originally been intended to assist local Directors of Public Health, and to prevent such queries being referred to COMEAP as a matter of routine. Members felt that this was sensible and should be made clear in the document. The suggestion was also made that the exacerbation of common diseases should be added to the list in paragraph 3.

22. Moving on to the different stages of investigation, it was pointed out that most of the concerns raised as a result of a complaint could probably be allayed at Stages 1 and 2. If the guidelines were clear on this point, then the need to recommend further investigations (which might be costly) might be reduced. On a more general point, it was suggested that the different Stages should be given titles and that it should be made clear at the end of each stage that there might not be a need to move on any further. Members felt that public relations were very important in this type of investigation, and suggested that cross-reference to the DH publication on Communication of Risk should be made. The suggestion was made that it might be appropriate to investigate other possible causes of local levels of disease, such as migration, or some other common factor within the local community, early on in the investigation. Members also noted that reference to fears about the long-term effects of exposure, such as developing cancer, was raised in Stage 5. They felt that the guidelines should clearly explain that it could take as many as 20-30 years for such effects to be seen. After some final discussion, it was agreed that the guidelines should be sent out for wider public consultation. An initial limited consultation would be considered before this stage. The results would be reported back to the Committee at the next meeting.


[ACTION: Secretariat]


ITEM 6. DO PARTICULATES FROM OPEN CAST COAL MINING IMPAIR HEALTH? COMEAP/9914

Profesor Seaton declared a lapsed interest and ; Mr Hurley declared a non-personal interest in this item.

23. The Committee was reminded that it had considered two previous studies of the effects of open cast coal mining on local health; the first by Temple and Sykes in 1992, and the second by Lyons et al in 1997. It was noted that in both cases Members had felt that the studies had not produced convincing evidence of significant damage to health. In 1996, DH and DETR allocated funding to allow researchers at Newcastle University to undertake a detailed study of the effects of open cast coal mining on child health. The aims of this study were: to compare and characterise particulate levels in communities close to and some distance from open cast sites using quantitative and qualitative monitoring methods; to compare the respiratory morbidity of children living in these communities; to investigate the relationship between particulate patterns and respiratory morbidity; to collect extra site and background information, and to inform the planning process through the findings of the study. The study compared health outcomes of 5 communities close to operational open cast sites with 5 paired control communities some distance away. The health outcomes covered different levels of severity of illnesses of the respiratory tract, eye and skin over several different time periods

24. The main findings of the study were described. Children in open cast communities were on average exposed to a small but significant additional amount of PM10 on average compared with children in control communities (2.1 µg/m3, 14%). It was found that this increase was due to shale particles rather than particles of coal dust. The overall prevalence of asthma, wheeze and other respiratory illnesses, the severity of asthma amongst those having asthma, daily self-reported ill health and overall rates of GP consultations were similar in open cast and control communities. However, GP consultations for respiratory skin and eye conditions were higher in open cast than in control communities for 4 pairs of communities during the core study period. Associations between daily PM10 levels and health outcomes were frequently positive, but not always significantly so. The magnitude of the effect was similar in open cast and control communities, and with those seen in previous studies with PM10 pollution from point sources or general urban background. The study concluded by recommending a framework to direct scoping and assessment in the planning process. Members' attention was drawn to the questions at paragraph 15 of COMEAP/99/14 and asked to consider the draft statement appended at Annex B.

25. The Committee agreed that the study was of a high standard, and with the main finding of the report that open cast coal mining was associated with a small increase in the mean concentration of airborne particles measured as PM10 in areas close to open cast sites. Members were in agreement with the authors that this was due to an increased concentration of shale rather than soot.

26. It was agreed that the respiratory health of children living in communities close to open cast sites was very similar to that of children living in communities distant from such sites. Members noted that overall, the number of consultations made to general practitioners was similar for children who lived close to open cast sites compared with those who did not. It was agreed that there was a small increase in consultations for respiratory, skin and eye conditions in those living close to open cast sites in four of the five pairs of communities studied. While this increase was statistically significant, the average number of consultations in the communities close to and distant from open cast sites was small as was the difference between these consultation rates. In the absence of other evidence of effects it was not possible to be certain that these differences were due to open cast operations. Members commented that in the fifth pair of communities consultation rates were lowest in the community close to an open cast site but these data were excluded because of the relatively few records available.

27. It was commented that the levels of smoking were similar in opencast and control communities. The Committee noted that the increase in particle concentrations close to open cast sites was not due to the release of coal particles but was more likely due to earth moving and excavation. From a planning perspective, the composition of the overburden is likely to be important: shale, for example, is less likely to have an effect on health than quartz. However, such increments in exposure to these materials as may occur in local communities as a result of open cast mining operations are most unlikely to have any detectable effects on health. Nevertheless, the Committee recommended that efforts should continue to be made to control the emission of particles from open cast sites.

28. It was noted that the study considered only children and therefore was not an all embracing study of the effects of open cast coal mining upon health. The Committee acknowledged that the short-term effects on children's respiratory health seen in this study were small. It was noted that though the study only covered children, Members felt that from what was known of the long-term effects of coal mining on the health of coalminers, it was most unlikely that open cast sites would have any long-term effects on the health of local communities. However, the Committee recommended that as a precautionary measure, the modifications to the planning process suggested by the authors be considered by the relevant planning authorities and be incorporated in minerals planning guidance.


ITEM 7. TECHNOLOGIES FOR REDUCING EMISSIONS FROM MOTOR VEHICLES. COMEAP/99/15

29. Mr Hurley declared a non-personal interest in this item.

30. The Chairman welcomed Dr Claire Holman who gave a short resumé of the report she had prepared for DH on technologies for reducing emissions from motor vehicles. This had been circulated as COMEAP/99/15. It was explained that over the last 30 years there had been major advances in technology with the result that vehicle emissions were now a few percent less than they had been prior to the 1970s. The various types of vehicles, exhaust after-treatments and current types of fuel that are available at the present time and that had enabled these advances to be made, were described. This included the advantages and disadvantages of petrol- versus diesel-fuelled vehicles, descriptions of current catalyst technology and next generation technology for emissions control, and the effects of various types of fuel additives on emissions. Members' comments and questions were welcomed.

31. There was some discussion about the types of traps and catalysts used to reduce emissions. In reply to a query about catalysts and traps that contained zeolite, which was known to be potent carcinogen, it was pointed out that only fibrous zeolite was a carcinogen, and that this was not used in these types of applications. It was acknowledged that modern traps and catalysts, and sometimes, fuel itself, contained metals that were released into the atmosphere. These included platinum, palladium, rhodium, copper, barium, tungsten, cerium, vanadium and manganese. Reference was made to a Geological Survey meeting at which it had emerged that the levels of platinum salts near roundabouts and gardens near to busy roads had been rising. The Secretariat reminded Members that some years ago, Professor George Kazantzis had given a presentation on this issue. It had emerged that although platinum salts were released into the environment, they were not the salts known to cause allergies. Members commented that if the chloride salt of platinum was released, this could be a problem, since these salts were strong mutagens, and in a case control study exposure to metal dust was associated with cryptogenic fibrosing alveolitis. A point was also made about the concerns that some metals might be involved in the mechanism of action of particles, particlularly ultrafine particles which could be of concern with engines that produced such particles. However, it was noted that legislation was being introduced to deal with this problem by requiring the fitting of particle traps.

32. The Secretariat concluded the discussion by informing Members that the COMEAP was committed to giving an opinion on the possible effects on health of adding MTBE to petrol, and that the Blue Ribbon Panel had recently produced a report on this. This would be circulated to Members before the end of the year.

[ACTION: Secretariat]

ITEM 8. COMEAP UPDATE REPORT ON AIR POLLUTANTS. COMEAP/99/16

33. The Secretariat reported that pressure of work in the Air Pollution Unit had led to a reassignment of business priorities that had affected the progress of this report. A working group meeting had been held in September (attention was drawn to the tabled draft note) which had proposed that:

(i) the draft report on mechanisms of action of air pollutants should be retained but as an internal and unpublished report. It would be drawn on to help to interpret the epidemiology data which would be covered in the published report;

(ii) the review of chamber studies of air pollutants should be truncated. A summary report highlighting only key advances would be prepared by staff at DH;

(iii) the work being undertaken at St George's Hospital on the epidemiology was important, should continue and should form the core of the report. It was noted that this was, in fact, a completely new look at the epidemiology, and that, therefore, the report should no longer be regarded as an "Update". It was proposed that this section of the work should be published in a peer-reviewed journal and as a Stationery Office report;

(iv) the review of the effects of long-term exposure to air pollutants should be completed and presented to COMEAP in early 2000, when a decision on possible publication would be taken.

34. Members agreed that these proposals were sensible, but expressed some disappointment that the final report might not contain a self-contained chapter on mechanisms; there was some concern that the importance of mechanisms might be downplayed, and it was also noted that for particles, much of the new information was in terms of mechanisms. However, it was also noted that the forthcoming EPAQS report on particles would be considering mechanisms of particles. It was suggested that it might be helpful to include an Appendix summarising the previous reports, and then drawing attention to the main new developments. The Secretariat agreed that it would be possible to produce a short, but heavily referenced Appendix of this nature.


ITEM 9. PAPERS FOR INFORMATION

9.1 COC Statement on Carcinogenicity of Ozone. COMEAP/99/17

35. The COC statement on carcinogenicity of ozone, now available on the COC website, was circulated for information. It was explained that there was some evidence that ozone should be regarded as genotoxic but that lung tumours only occurred in mice at levels of ozone above those that were known to damage lung tissue. The COC's conclusions therefore suggested that the mechanism of carcinogenicity remained uncertain at the present time. It was noted that further work was underway and that this might be considered by the COC in due course. The issue was also likely to be considered by COMEAP as part of the planned air pollution and cancer report.


9.2 CONCAWE Report: Overview and Critique of the Air Pollution and Health: a European Approach (APHEA) Project

36. The CONCAWE Report prepared by Dr Lesley Rushton had been circulated for Members' information. It was not discussed because Professor Ross Anderson, who had been closely involved in the APHEA project was not present at the meeting. The Secretariat commented that many of the criticisms made in the CONCAWE report would be addressed by the second phase of the APHEA project.

ITEM 10. ANY OTHER BUSINESS

10.1 Supplementary Funding for Air Pollution Research

37. It was noted that the bids received for funding under the July call for proposals were of an extremely high quality and that a total of 9 bids had been successful. The successful applicants were being notified by IEH. The bids for a larger research programme were still with Ministers.


10.2 Appointments

38. The Secretariat commented that the terms of appointment of 5 current Members were due to end in June 2000. The Department would, therefore, be advertising later in the year for new members to fill these vacancies.


10.3 Members' Interests

39. It was noted that the Secretariat would be in contact with Members later in the month asking them to update their interests in order that a new register of interests could be made operative from 1 January. The Secretariat noted that it was important that Members complied within the time set. The Secretariat also suggested that, in line with other DH Committees, the register of interests would be placed on the COMEAP website.

[ACTION: Secretariat, Members]

10.4 Impact of Devolution

40. Members were informed that due to the setting up of the Scottish Parliament, the Welsh Assembly and the arrangements for Northern Ireland, an internal review of the relationship between the Department of Health and the devolved administrations in terms of their relationship with COMEAP had taken place. It was thought that at the very least, devolution would lead to a change in the Committee's terms of reference in order to reflect these new relationships. However, it seemed unlikely that there would be any direct impact on the working of the Committee compared with that which had applied in the past. The benefits of a formal written constitution to clarify the operation of the Committee were being considered.



ITEM 11. DATES OF FUTURE MEETINGS

41. The following dates were noted:

Friday 18 February 2000

Friday 16 June 2000.

42. It was commented that the proposed date for the October meeting (Friday 20 October 2000) coincided with the International Congress of Allergy and Clinical Immunology meeting in Sydney and that several Members might be attending this meeting. Therefore it was agreed that this meeting should take place on Friday 3 November 2000.

43. After some further discussion, it was also agreed that the final meeting of the Committee in each year should take place on the first Friday of November, rather than the third Friday of October as had previously been the case. This would avoid the half term holiday.

ACTION SHEET

Para Reference

Action

Responsibility

4 Report back on progress on indemnity at meeting in February 2000 Secretariat
15 Prepare a revised draft of advice for the public for February 2000 meeting Secretariat
22 Report back with results of consultation on guidelines for investigation the health impact of local emissions in February 2000 Secretariat
32 Circulate Blue Ribbon report on MTBE to Members Secretariat
39 Contact Members re Register of Interests

Members to reply by December 1 1999
Secretariat



Members

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