FIRST PROGRESS UPDATE ON THE MEMORANDUM OF UNDERSTANDING RESPECTING AUTOMOBILE GREENHOUSE GAS EMISSIONSPrepared by the Joint Government-Industry GHG MOU CommitteeAvailable in PDF format JUNE 2006 Table of Contents
1. IntroductionBy any standard, Canada's economy is performing well. Canada's gross domestic product (GDP) has increased by 44 percent between 1990 and 2003, unemployment rates are at record lows, and our ratio of debt to GDP is steadily declining. But such economic success also drives many challenges. The amount of energy that Canadians use to heat and cool their homes and workplaces and to operate their appliances, factories and transportation systems has increased significantly over the same period, and the resulting greenhouse gas (GHG) emissions have increased proportionally. To address this challenge, Canada has developed many initiatives that focus on energy efficiency. As a result of this and other factors, growth in total GHG emissions was 24 percent from 1990 to 2003 – half of the growth in the economy. Altogether, power generation and industry activities account for about half of Canada's total GHG emissions. Although total annual vehicle kilometres travelled by cars and light trucks increased by 24 percent between 1990 and 2003, their GHG emissions have only increased by 21 percent. Nonetheless, Canadians driving passenger cars and light trucks still account for about 12 percent of Canada's total GHG emissions. Although progress has been made, the Canadian automotive industry accepts that it has an ongoing responsibility to help Canadians continue to address this challenge. On April 5, 2005, a significant step forward was made to further reduce GHG emissions. The Government of Canada and the automotive industry reached a voluntary landmark agreement to reduce annual GHG emissions from Canada's vehicle fleet by 5.3 megatonnes (Mt) in 2010. This agreement represents a strong commitment on the part of the automotive industry to work with the Government of Canada and all Canadians in the pursuit of economic and environmental prosperity. Both parties are particularly proud of the voluntary nature of this agreement that provides greater GHG reductions in an earlier time frame than would otherwise be possible. This initiative builds on significant achievements made to date in the reduction of smog causing, vehicle-related emissions. New Tier 2 emission vehicle technologies now entering the market in Canada and the United States are expected to reduce smog-causing emissions by 99 percent from pre-control levels. Tier 2 standards, which will contribute very significantly to improved air quality as new vehicles replace older ones, are the most stringent national standards in the world and, for the first time, will apply equally to both passenger cars and light duty trucks, including sport utility vehicles. This agreement also builds on the industry's track record of successful voluntary agreements in Canada in a number of areas including vehicle safety, fuel consumption and emissions reductions. This is the first report since the Memorandum of Understanding Respecting the Automobile Greenhouse Gases was signed. It provides information on the activities and progress under the Memorandum of Understanding (MOU) through the first quarter of 2006. 2. The Memorandum of Understanding (MOU)The MOU sets out a comprehensive approach to reduce GHG emissions. It calls on the automotive industry to reduce GHG emissions from light duty vehicles (cars, minivans, sport utility vehicles and pickup trucks), so that annual reductions of 5.3 Mt will be achieved in 2010. The MOU was founded on a framework of key principles that are contained in the Preamble of the MOU (see Appendix-A). Several of these key principles are outlined below:
Both the Government of Canada and the automotive industry are committed to working together to deliver on the commitments of this MOU. Key Components of the MOUThe MOU has several key components. They are as follows:
A copy of the MOU is presented in Appendix A. The MOU, Its Approach and BenefitsThe GHG approach in the MOU recognizes that the primary GHG, CO2, is produced from fossil fuel use in vehicles and that there are several other potent GHGs (such as methane and nitrous oxide from the tailpipe and hydrofluorocarbon losses from vehicle air-conditioning units) that are also associated with motor vehicle use. The MOU's GHG approach takes all vehicle-related GHGs into account with regard to their impact on climate change. This voluntary approach in the MOU focuses on immediate actions to achieve GHG reductions and provides a cost-effective solution for government, industry and consumers. It also allows the industry to select the most appropriate means to achieve the collective 2010 target, while preserving the high value that this important sector brings to Canada's economy. It recognizes that no two companies are alike and that an industry-wide approach is the most practical method to achieve the climate change objectives for Canada because it provides the flexibility that each manufacturer needs to contribute to the overall GHG reduction goal, as appropriate to its unique customer base, product technology portfolio and market strategy. In addition, the automotive industry has a long-standing history and strong track record of meeting voluntary agreements with the government on environmental, safety and fuel efficiency objectives. More than a dozen active voluntary agreements like this one have been successfully implemented in Canada. (See Appendix B for a list of the voluntary agreements.) There are several programs and initiatives underway in different countries around the world that focus on reducing GHG emissions and improving fuel consumption. Some of these initiatives could influence the availability of technologies in the Canadian market and the approaches taken by automakers to meet the Canadian MOU. In general, voluntary agreements offer advantages in terms of flexibility, and they can be put in place more quickly than regulatory measures thus leading to earlier actions and greater GHG emissions reductions. In Canada, the government and the automotive industry have committed to delivering on the MOU and its goal to reduce GHGs. The 5.3 Mt Reduction GoalThe 5.3 Mt reduction goal is based on updating the work of the 1999 Government Transportation Climate Change Table and its projections of vehicle-related GHG emissions and Natural Resources Canada's Canada's Emissions Outlook: An Update, published in December 1999. The 5.3 Mt target is measured from a "reference case" level of emissions that is designed to reflect the actions of the automotive industry that would have occurred in the absence of action on climate change. Annex 2 in the MOU outlines key variables that determine vehicle emissions. In terms of the key variables, two kinds are identified: factors that the industry is accountable for, and external factors that cannot be directly controlled by industry. Factors outside the control of the automotive industry relate to economic and demographic variables including those market activities and trends that influence decisions by consumers on what types of vehicle they buy, how many new vehicles they buy every year, and how many kilometres they drive. Factors that the industry is accountable for include fuel type, the level of fuel consumption for new vehicles, adjustments for on-road consumption, and rates of GHG emissions (in grams per kilometre) from vehicle components. These include emission control equipment (nitrous oxide), engine combustion products (methane), air conditioners (hydrofluorocarbons) and lubricants (CO2). The reference case includes moderate reductions in average new vehicle fuel consumption and decreasing emission rates of GHGs, such as nitrous oxide and methane from vehicles, based on estimates of the business-as-usual GHG emissions case presented in Study #3 by the Transportation Table in 1999. The MOU commits the automotive industry to reductions in GHG emissions from vehicles on the road in Canada, so that in 2010 actual emissions for the year will be 5.3 Mt below this reference case. Since the reference case already includes some reductions in GHG emission rates in the period up to and including 2010, additional efforts by the automotive industry beyond these improvements will be required to achieve the 5.3 Mt target. Figure 1 illustrates the reference case as forecast in 1999 and the emissions reduction goals under the MOU. Actual GHG emissions from the light duty vehicle fleet in 2010 will be a consequence of the interplay between the external factors and the factors that the automotive industry is accountable for. In order to measure performance under the MOU, that is, whether the actual GHG emissions from light duty vehicles are 5.3 Mt lower than the reference case emissions in the year 2010, a joint government-industry monitoring committee will employ an analytical framework to calculate the reference case and compare these emissions to actual levels. 3. Achievements to DateSince the signing of the MOU, progress has already been made. The key initial milestones specified in the MOU have been met. This includes the formation of a joint governmentindustry monitoring committee and its associated Mandate and Operational Plan. In addition, the Canadian automotive industry has already introduced many advanced fuel savings technologies into the marketplace. Outreach activities have also been undertaken. Joint Government-Industry GHG MOU CommitteeThe MOU outlined some specific milestones that were required to be met. The first was the establishment of a joint government-industry committee composed of equal numbers of government and industry members within 60 days of the signing, the purpose of which is to provide an accountability mechanism to track and report on progress on the MOU. The Joint GHG MOU Committee was formed on June 1, 2005, meeting the first milestone in the MOU. The Committee consists of eight members in total, with four representatives each from government and industry. There are two chairs (co-chairs), one from government and one from industry. There are two representatives from Natural Resources Canada, one from Environment Canada, one from Transport Canada, two from the Canadian Vehicle Manufacturers' Association and two from the Association of International Automobile Manufacturers of Canada. The second milestone outlined in the MOU was that the Committee would table a Mandate and its Operational Plan for approval to the Parties no later than 180 days from the signing of the MOU. The Committee met to develop the Mandate and the Operational Plan. The Terms of Reference and the Operational Plan were tabled for the Parties on October 2nd, 2005, within the 180 days specified. The Mandate of the Committee is clearly outlined in the Terms of Reference. It indicates that the Committee is a key component of the MOU, responsible for tracking progress towards the industry's 5.3 Mt reduction target. The Terms of Reference also provide for the following Committee activities:
The work of the Committee is primarily technical in nature. The Terms of Reference and the Operational Plan for the Committee, which provide further details, are provided in Appendix C. The Committee has begun its work regarding the data aspects and the analytical framework to monitor the progress on the MOU goals. It has grouped its work into several technical areas. They are (i) vehicle kilometres travelled, by age and passenger car and light truck categories and annual vehicle stock by model year and by passenger car and light truck categories; (ii) adjustment factors to convert laboratory fuel consumption values to real world on-road performance and vehicle fuel consumption; (iii) diesel and alternative fuels and GHG emissions under the MOU, CO2 emission factors and the global warming potential for GHGs (CO2e); (iv) nitrous oxide and methane emissions; (v) mobile air-conditioner emissions; and (vi) CO2 emissions from lube oil. The Committee plans to provide reports on its activities after the conclusion of each reporting milestone and also on the progress towards the 5.3 Mt target, including the three interim goals and the final target. The Operational Plan outlines the Committee activities and milestones for the duration of the MOU. The key milestones are outlined in Appendix D. This report is for the period associated with the first milestones under the Operational Plan. It provides information on the activities and progress under the MOU through the first quarter of 2006. It should be highlighted that the three Committee progress updates are not required under the terms of the MOU and are above and beyond the reporting requirements. However, the Committee recognized the importance of sharing early information on its activities to date. The Operational Plan indicates that a communications plan will be developed by the Committee. Its purpose is to ensure clear communication to the public on the progress of the MOU, including the interim goals and the 2010 target, as well as the activities of the Joint GHG MOU Committee. It has three key elements: (i) Committee progress updates, (ii) reports on emissions and the interim goals and (iii) the final report.
Advanced Technology IntroductionsAnnex 3 of the MOU provides a potential list of the various types of fuel-saving technologies from the automotive industry that would contribute to a reduction in GHG emissions from vehicles. It was noted that most of the technologies have related effects requiring reengineering of associated systems, increased computer power and software sophistication, as well as changes to assembly procedures and supplier systems. Some technologies require further research, development and engineering work and in certain applications may not be appropriate, feasible or cost-effective. Since the signing of the MOU, the automotive industry has already introduced many new models that incorporate technologies that can reduce GHGs. Technologies available in the Canadian market for the 2006 and 2007 model year include: Transmission Improvements
Engine Improvements
Other Vehicle Improvements
Advanced Technology Vehicles
Appendix E provides a detailed list of models or technologies that have been introduced. This is by no means comprehensive. It is intended to show that new models are incorporating many advances in new vehicle technology. Outreach ActivitiesSince the signing of the MOU, the Government of Canada and the automotive industry have participated in outreach activities to discuss and share information on the MOU and its intent.
4. The Path ForwardThe Joint GHG MOU Committee has been formed and is moving forward with its work under the MOU, the Terms of Reference and Operational Plan. The agreement between the automotive industry and the government on reducing GHG emissions from light duty vehicles is on track and the basic foundations have been put in place. New vehicle technologies and models are coming to market faster than previously expected, and companies in the automotive industry are making progress in their vehicle fleets that will contribute to the overall industry GHG reductions over the period of the agreement. The Committee is committed to sharing information on its activities and progress and will continue to deliver its responsibilities as defined by the MOU. The Committee will report on its activities again after the fourth quarter of 2006. Appendix AMemorandum of Understanding Between the Government of Canada and the Canadian Automotive Industry Respecting Automobile Greenhouse Gas Emissions Appendix B List of the Automotive Industry's Voluntary AgreementsThis appendix provides a list of the Government of Canada's voluntary agreements with the automotive industry.1 In the past, the Government of Canada has had great success in negotiating voluntary agreements with the automotive industry in areas such as vehicle safety, fuel efficiency, vehicle emissions and pollution prevention. In total, there are 14 voluntary agreements in effect (ten on vehicle safety and four on vehicle fuel efficiency), two Memoranda of Understanding (MOU) that have been completed successfully on vehicle emissions, and one initiative on pollution prevention that is ongoing by industry on its own. Vehicle SafetyThere are currently ten voluntary agreements on vehicle safety. Memorandum of Understanding Between Transport Canada and all Canadian Automobile Manufacturers on Side-Impact Protection The purpose of this MOU was to set out the general terms and conditions with regard to side-impact protection applicable to passenger cars, multi-purpose passenger vehicles, trucks and buses with a gross vehicle weight rating of 2722 kilograms (6000 pounds) or less, except for walk-in vans and certain other special purpose vehicles. Driver and Passenger Front Air Bags In response to a 1989 letter from the Minister of Transport, manufacturers voluntarily began installing air bags in Canadian vehicles, on the same timetable as the U.S., in the absence of regulatory framework. Anti-Lock Braking Systems (ABS) Manufacturers began installing ABS on vehicles in the late 1980s, and these systems are either standard or optional equipment on all vehicles today. Traction Control, Stability Control and Roll Stability Control Systems In the mid-1990s, manufacturers began making these active systems available to provide enhanced vehicle control in adverse weather and road conditions. Three-Point Lap and Torso Belt Systems in Centre Seating Positions Manufacturers began phasing-in centre rear three-point belt systems even though the regulations only require a two-point lap belt system. This voluntary initiative applied until September 1, 2005, at which time a regulation came into force. Depowered Air Bags In response to public and government concerns regarding the deployment of "full-powered" air bags, manufacturers petitioned for new test procedures that allowed the installation of less aggressive air bags, starting with the 1998 model year. Side Air-Bag Systems To provide enhanced occupant protection in side impacts, manufacturers began phasing-in side air bags in the late 1990s. Internal Emergency Trunk Release Beginning in 2001, manufacturers began equipping Canadian vehicles with internal emergency trunk releases, complying with the U.S. FMVSS 401 standard, in the absence of any regulatory requirement to do so in Canada. Enhanced Interior Head Protection Starting in the 2000 model year, manufacturers began the phase-in of vehicles that met the requirements of the U.S. FMVSS 201 standard for enhanced head protection, even though there is no equivalent requirement in Canada. Advanced Occupant Restraint Systems As early as the 2000 model year, manufacturers began introducing vehicles that have advanced occupant protection systems, including dual stage air bags, seat belt pretensioners and load limiters, and occupant classification systems. Vehicle Fuel EfficiencyVoluntary agreements on vehicle fuel efficiency consist of one voluntary program and three MOUs. Transport Canada Voluntary Motor Vehicle Fuel Consumption Program This voluntary program sets minimum levels of fuel efficiency performance for the automotive industry. Separate levels are set annually for new passenger cars and for new light duty trucks. A company's performance is measured by averaging fuel efficiency across its fleets. The levels are harmonized with U.S. fuel economy standards. Memorandum of Understanding between the Motor Vehicle Manufacturers' Association (MVMA) and Her Majesty the Queen in Right of Canada as represented by the Minister of Natural Resources concerning Motor Vehicle Fuel Efficiency This MOU was designed to support and enhance the important role that fuel-efficiency improvements can play in reducing greenhouse gas (GHG) emissions across the transportation sector. The most cost-effective method of realizing such improvement is through a balanced approach aimed at vehicle owners and operators, as well as vehicle technology. Memorandum of Understanding between the Association of International Automobile Manufacturers of Canada (AIAMC) and Her Majesty the Queen in Right of Canada as represented by the Minister of Natural Resources concerning Motor Vehicle Fuel Efficiency Similar in details and in scope to the MOU signed between Natural Resources Canada (NRCan) and the MVMA (see above), this agreement recognizes the role that can be played by fuel efficiency in reducing GHG emissions across the transportation sector. Memorandum of Understanding between the Canadian Automobile Dealers Association (CADA) and Her Majesty the Queen in Right of Canada as represented by the Minister of Natural Resources concerning Motor Vehicle Fuel Efficiency Similar in details and in scope to the MOU signed between NRCan and the MVMA (see above), this agreement recognizes the role that can be played by fuel efficiency in reducing GHG emissions across the transportation sector. Vehicle EmissionsEmissions from automobiles and light-duty trucks have been regulated in Canada since 1971. Given the importance of harmonizing standards, MOUs have been used successfully as interim measures to account for updates in U.S. federal emissions programs, until appropriate Canadian regulations or legislation could be implemented. Memorandum of Understanding between the Motor Vehicle Manufacturers' Association (MVMA) and the Association of International Automobile Manufacturers of Canada (AIAMC) and Her Majesty the Queen in Right of Canada as represented by the Minister of Transport Canada for 1994-95 Model Year Light-duty Vehicles This MOU was signed between Transport Canada and the MVMA and the AIAMC for the 1994-95 model years. It set out general terms and conditions applicable to a gasolinefuelled, light-duty vehicle emissions phase-in program for model years 1994 and 1995, consistent with the phase-in objectives of the U.S. regulations (Tier 1 emissions standards). Amendments to the Motor Vehicle Safety Act (MVSA) came into force in 1995, providing new features to facilitate alignment with U.S. rules. Regulations were subsequently adopted under the MVSA in 1997 to align with U.S. Tier 1 standards. Memorandum of Understanding Between the Minister of the Environment, representing Her Majesty the Queen in Right of Canada and the Canadian Vehicle Manufacturers' Association (CVMA)2 and the Association of International Automobile Manufacturers of Canada (AIAMC) for Light-duty Vehicle and Light-duty Truck Vehicle Emissions 2001-2003 Model Years This MOU was signed between Environment Canada and the CVMA, the AIAMC and their member companies. It was designed to provide for the sale of low-emission light-duty vehicles and light-duty trucks in the 2001-2003 model years consistent with a voluntary program in the U.S. Regulations came into effect in January 2004 under the Canadian Environmental Protection Act (CEPA) to align Canadian regulations with U.S. Tier 2 emissions standards. Pollution PreventionThere is currently one initiative on pollution prevention. Canadian Automotive Manufacturing Pollution Prevention Project This MOU was signed between Environment Canada, the Ontario Ministry of the Environment and the CVMA in 1992. It was designed to foster the concept of pollution prevention and had the specific goal of producing a verifiable reduction of toxic substances and other environmental contaminants of concern that are used, generated or released from the participating companies. The cooperative effort resulted in a reduction and/or elimination of more that 440 000 tonnes of toxic substances and other substances of concern, and demonstrates that large industry is proactive in progressive environmental management. Appendix C. Joint Government-Industry GHG MOU Committee – Terms of Reference and Operational PlanTERMS OF REFERENCE FOR THE JOINT GHG MOU COMMITTEEThe Government-Industry Monitoring Committee established pursuant to the MOU to track GHG Emissions from Light Duty Vehicles (the "Committee") Background On April 5, 2005, the Government of Canada and the Canadian Automotive Industry signed a Memorandum of Understanding (MOU) whereby the Canadian Automobile Industry voluntarily committed to reducing greenhouse gas (GHG) emissions from the light duty vehicle sector (cars and light duty trucks) in Canada, to achieve a reduction in GHG emissions of 5.3 megatonnes (Mt) in 2010 relative to the reference case. Mandate The Committee is a key component of the MOU, responsible for tracking progress towards the Industry's commitment to achieve a 5.3 Mt reduction target. The MOU provides for the following activities by the Committee:
The work of the Committee is to be technical in nature and the chairs will ensure the Committee does not stray into policy issues. The Committee will direct and approve the work to be undertaken. Natural Resources Canada (NRCan) staff will lead the analytical work, with input from other departments and industry, as appropriate. The decision to obtain input from modelling and technical experts will reside with the Committee. Membership The Committee will consist of eight members in total, with four representatives each from government and industry. There will be two chairs (co-chairs), one from government and one from industry. Government representatives on the Committee will include a co-chair from NRCan and one member each from NRCan, Environment Canada and Transport Canada ("Government"). Industry representatives will include two representatives or industry members from each of the two Canadian motor vehicle manufacturer associations (Canadian Vehicle Manufacturers' Association and the Association of International Automobile Manufacturers of Canada) (the "Industry"). Quorum will consist of a minimum of three Government and three Industry members. Member substitution at individual meetings will not be considered, but replacement members may be required in the future, if appointed members become unavailable. Government and Industry will choose their own representatives with their appointment not requiring the approval of the Committee. Decision Making The Committee will operate through a consensus, while respecting the views of those who may disagree from time to time. As may be necessary, a professional third party, acceptable to both Government and Industry, acting reasonably, may be enlisted to assist in the assessment of "technical issues" where the Committee cannot reach agreement. Either the Government or Industry may invoke the right to have a mutually agreed third party mediate in cases where there is disagreement over technical issues. Term of Committee The Committee will remain active until:
Milestones As provided in the MOU, the Committee was formed within 60 days from the MOU's signing (April 5, 2005). The Committee will table a mandate and its operational plan for approval no later than 180 days from the signing of the MOU (Sunday, October 2, 2005). AdministrationBudget The budget for the Committee will be drawn from the Government of Canada's climate change funds for the Motor Vehicle Fuel Efficiency Initiative, and the Committee will approve its disposition. Secretary A secretary shall be approved by the Committee and need not be a member of the Committee. The secretary will work closely with the Committee but will not be a voting member unless the secretary is a member of the Committee otherwise than as a secretary. The secretary will be responsible for:
Meeting Frequency Meetings shall be scheduled semi annually for the duration of the MOU. The co-chairs may also call meetings, when required. Initially, more frequent meetings will be required to establish the work of the Committee. OPERATIONAL PLAN FOR THE JOINT GHG MOU COMMITTEE
Appendix D. Key Milestones under the Operational Plan
Appendix E. Advanced Technology Introductions by the Automotive IndustryBMW Canada Inc.
DaimlerChrysler Canada Inc.
Ford Motor Company of Canada, Limited
General Motors of Canada Limited
Honda Canada Inc.
Hyundai Auto Canada
Mazda Canada Inc.
Mercedes Benz Canada Inc.
Suzuki Canada Inc.
Toyota Canada Inc.
Volkswagen Canada Inc.
1 Source: MOU Announcement Backgrounder – April 5, 2005 2 The MVMA was renamed the CVMA in 1996. |
|