The Canada-Wide Acid Rain Strategy for Post-2000Strategy and Supporting DocumentThe Canada-Wide Acid Rain Strategy for Post-2000Federal/Provincial/Territorial
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Existing Provincial SO2 Emission Caps | ||
---|---|---|
Province | SO 2 Emission Cap (kilotonnes) | Emission Cap Status |
Manitoba | 550 | cap for 1994 |
Ontario | 885 | cap for 1994 and beyond |
Quebec | 500 | cap for 1994-2000 |
New Brunswick | 175 | cap for 1994-2000 |
Nova Scotia | 189 | cap for 1994-2000 |
Newfoundland | 45 | cap for 1994 |
Prince Edward Island | 5 | cap for 1994 |
In 1991, Canada and the United States finally signed the Air Quality Agreement to manage transboundary air pollution, starting with acid rain since U.S. emissions are responsible for more than half the acid deposition in eastern Canada. For Canada, the Agreement enshrined the 2.3 million tonne cap for eastern Canada for the period 1994-1999, and reiterated the 3.2 million tonne cap on national SO2 emissions established in the First Sulphur Protocol, for the year 2000 and beyond. For the U.S., it enshrined its commitments under the Clean Air Act Amendments to reduce SO2 emissions nationally by 40% from 1980 levels by 2010.
In 1993, Energy and Environment Ministers gave the green light to Canada to sign the UN-ECE .Second Sulphur Protocol.. Canada signed the Protocol in 1994, and ratified it in 1997. The Protocol specifically designates a Southeast Canada .Sulphur Oxide Management Area. or SOMA in southeastern Canada (as shown in Figure 1) to manage only those SO2 emissions that may contribute to acidification in the United States and that also contribute to acidification in Canada. The Protocol then put a cap on SOMA emissions at 1.75 million tonnes a year starting in 2000.
A summary of Canada.s international commitments with respect to SO2 emissions is shown in Table 2.
Canada.s Current International Obligations with Respect to SO2 Emissions | |
---|---|
1985 First UN-ECE Sulphur Protocol | Cap national SO2 emissions at 3.2 million tonnes for 1993 and beyond |
1991 Canada/U.S. Air Quality Agreement | Cap eastern Canadian emissions of SO2 at 2.3 million tonnes for 1994-1999 Cap national SO2 emissions at 3.2 million tonnes for 2000 and beyond |
1994 Second UN-ECE Sulphur Protocol | Cap southeast Canada SOMA SO2 emissions at 1.75 million tonnes for 2000 and beyond Cap national SO2 emissions at 3.2 million tonnes for 1993 and beyond |
In 1993, in giving their support for signing the Protocol, Energy and Environment Ministers agreed to develop a long-term acid rain management strategy for Canada to address the on-going acid rain problem and related health effects, and to ensure Canada could meet its international obligations. The 1994 Statement of Intent (see Appendix A) reaffirmed Ministers. desire to put a long-term acid rain management strategy in place and gave guidance on the expected scope and intent of the strategy.
Canada has not only met all its current domestic and international commitments on acid rain, it has exceeded them. In 1997, SO2 emissions were 24% below the eastern Canada cap, representing a 54% reduction from 1980 levels. Also, SO2 emissions were nearly 30% below the Southeast Canada SOMA cap for the year 2000, and are estimated to be 18% below the 3.2 million tonne national cap. As a result, some lakes have started to show signs of biological recovery.
The U.S. is expected to meet its legislated emission reduction requirements. As of 1996, it had cut its SO2 emissions nationally by 26% from 1980 levels. By 2010, when its Acid Rain Program is fully implemented, emissions are expected to be down by a total of 40% nationally, with somewhat greater reductions in key mid- west states.
Despite this good progress, and even with full implementation in 2010 of the U.S. program, sensitive ecosystems in almost 800,000 square kilometres in southeastern Canada . an area the size of France and the United Kingdom combined . will receive harmful levels of acid rain, i.e., above the environmental threshold or "critical load." As a result an estimated 95,000 lakes in southeastern Canada will remain acidified.
In addition to sulphate, nitrogen deposition can also cause acidification. Nitrogen is a nutrient, but too much nitrogen can eventually saturate the soil, making the run-off acidic. One of the sources of nitrogen is emissions of nitrogen oxides (NOx) . the same emissions that contribute to smog. There are disturbing signs that nitrogen deposition may, in time, undermine some of the benefits of controlling SO2 emissions. While scientists are still developing critical loads for nitrogen and further actions may be required, The Strategy uses sulphate critical loads as a yard-stick for assessing excess acid deposition.
Forests are also harmed by acid rain: there is evidence of increased defoliation, tree mortality, and nutrient losses in forest soils. Preliminary modelling shows that annual forest growth in eastern Canada is estimated to decrease by 10% when critical loads are exceeded. The forestry sector in eastern Canada produces over $26 billion a year. Hence, reductions in both sulphate and nitrate would be beneficial.
Lastly, but very importantly, SO2 emissions also transform in the air into tiny sulphate particles that penetrate deep into the human lung. Recent evidence shows that sulphate particles are associated with increased premature mortality, emergency room visits, asthma symptom days, bronchitis, and other respiratory diseases. Any SO2 emission reductions achieved to combat acid rain will also result in lower levels of these particulates.
The "critical load" is a measure of how much pollution an ecosystem can tolerate, in other
words, the threshold above which pollutant load harms the environment. Acid rain is a result of deposition of sulphate and nitrogen. Because the nitrogen cycle is very complex, nitrogen critical loads have not been established for all parts of Canada, but work is under way to establish critical loads for nitrogen and sulphur combined. However, critical loads for sulphate deposition are well known for eastern Canada and were mapped in the 1990 Canadian Long-Range Transport of Air Pollutants and Acid Deposition Report. These critical loads were calculated for wet sulphate deposition to aquatic ecosystems, as aquatic ecosystems were thought to be the most sensitive ecosystem to acid deposition. As a result, critical loads for sulphate deposition are defined as the amount of sulphate that can be deposited on the area and still maintain 95% of the lakes in the region at or above a pH of 6. Critical loads for wet sulphate deposition in eastern Canada range from 8 to over 20 kilograms of wet sulphate per hectare per year. |
The primary goal of The Canada-Wide Acid Rain Strategy for Post-2000 is to ensure that critical loads for acid deposition are achieved across Canada thereby ensuring the health of our forests and aquatic ecosystems. Current scientific information indicates that critical loads for wet sulphate deposition are being exceeded only in eastern Canada.
In eastern Canada, as a first step toward that goal, SO2 emissions need to be reduced to a point where the resulting sulphate deposition does not exceed sulphate critical loads, taking into account U.S. emission reductions as well. The U.S. is responsible for more than half the acid deposition in eastern Canada. In addition, NOx emissions may also have to be reduced in the future once scientists establish critical loads for nitrogen. (Acid deposition is a function of both sulphate and nitrogen deposition.)
The document Towards A National Acid Rain Strategy describes the results of atmospheric modelling of emission reduction scenarios varying from 25 to 75 % above and beyond existing control programs for eastern Canada and the United States. Environmental benefits and costs of each scenario are also described.
The results clearly showed the importance of U.S. emissions to the remaining acid rain problem in eastern Canada. In addition, the results showed the geographical area where emissions need to be reduced in order to meet critical loads in eastern Canada is the southeast Canada SOMA, with the exception of Prince Edward Island. P.E.I. does not contribute significantly to the acid rain problem. As well, emission reductions in the U.S. (the mid- western and northeastern states) are essential for meeting critical loads in Canada.
The key finding of the modelling exercises is that very large emission reductions will ultimately be needed on both sides of the Canada-U.S. border to achieve critical loads. Specifically, initial modelling estimates suggest that SO2 emissions in Ontario and Quebec would need to be reduced by 75% from their existing caps and New Brunswick and Nova Scotia by 30 to 50% from their existing caps. And the United States will need to reduce its SO2 emissions (in the midwest and eastward) by 75% above and beyond current requirements in the Clean Air Act Amendments.
The main reason for developing The Canada- Wide Acid Rain Strategy for Post-2000 was to deal with acid rain, and the primary environmental benefit associated with each emission reduction scenario is a decrease in the area receiving acid deposition levels above critical loads for aquatic ecosystems and an associated decrease in the number of lakes that will remain acidified. However, reducing SO2 emissions is also good for human health, because it lowers the ambient levels of fine sulphate particles.
The Task Group report describes modelling results which indicate that:
It should be noted, however, that the health benefits and valuation exercises were quite controversial.
There are substantial costs associated with reducing emissions. Table 3 shows the range of possible annual control costs to Canadian industry and utilities of reducing SO2 emissions. The costs are annualized (total capital plus operating costs amortized over the life of the asset) in millions of dollars and do not reflect broader societal costs. The costs could well decrease as natural gas becomes available, and as the price of pollution prevention and control technologies falls.
In total, the 25%-emission-reduction-scenario has been estimated to cost roughly $80 million per year, the 50%-emission-reduction-scenario is expected to cost roughly $600 million per year; and the 75%-emission-reduction-scenario is expected to cost in the order of $2 billion per year.
Estimated Annualized Control Costs (millions of dollars) | |||
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Province | 25% Reduction Scenario | 50% Reduction Scenario | 75% Reduction Scenario |
Ontario | $41-44 | $378-450 | $970-1300 |
Quebec | $14-17 | $78-128 | $562-750 |
New Brunswick | $0 | $1 | $10-17 |
Nova Scotia | $16-20 | $57-61 | $130-193 |
TOTAL | $71-81 | $514-641 | $1672-2260 |
Since the long-term goal of The Canada-Wide Acid Rain Strategy for Post-2000 is to achieve critical loads and since significant further SO2 emission reductions in the SOMA region and the U.S. are required to meet wet sulphate critical loads, The Strategy recommends the four SOMA provinces report to Ministers in 1998 on progress towards developing SO2 emission reduction targets required to achieve critical loads for wet sulphate deposition.
It should be noted that in 1997 the provinces were already well below their current SO2 caps:
Because many of the sources that emit SO2 also emit NOx (which contributes to smog formation as well as acidification), carbon dioxide (which contributes to climate change), and fine particulate matter, these four provinces will consider integrating their acid rain management programs with their other air management programs.
It cannot be stressed enough that large U.S. emission reductions are essential to meet critical loads in eastern Canada. Specifically, the U.S. needs to reduce its SO2 emissions (in the midwest and eastward) by 75% beyond current requirements in the 1990 Clean Air Act Amendments to solve Canada.s acid rain problem.
Fortunately, the U.S. is already investigating another 50% SO2 emission reduction under the current U.S. initiative to meet the proposed new National Ambient Air Quality Standard for fine particulate matter. Canada will continue to strongly support the U.S. Environmental Protection Agency in these efforts.
Canada, working with the provinces and other stakeholders, will also use other avenues to seek a minimum 50% SO2 emission reduction in the U.S., for example:
In order to ensure that all parts of Canada meet critical loads into the future, .clean. areas . areas that at present do not exceed critical loads . need to remain clean. Therefore, for all of Canada, excluding the SOMA, emissions of SO2 and NOx need to be managed to ensure deposition levels do not approach the critical load. It is important that provinces/territories take, as required, the necessary steps to keep their clean areas clean.
As per the CCME National Commitment on Pollution Prevention, pollution prevention is the preferred strategy for protecting the environment. Governments need to take steps to ensure pollution prevention, defined as the use of processes, practices, materials and energy that avoid or minimize the creation of pollutants, is applied to new sources. Recognizing the difficulties in applying pollution prevention to existing sources, governments are also encouraged to apply pollution prevention to existing sources whenever feasible. This element of The Strategy would also apply coast- to-coast.
Although current emissions and emission forecasts indicate that Canada will meet all of its existing international commitments with respect to SO2 emissions into the foreseeable future, an annual review will prevent non-compliance by providing governments with sufficient warning of the possible need for corrective actions.
There are disturbing signs that nitrogen deposition may, in time, undermine some of the benefits from controlling SO2 emissions. The role of nitrogen is complex and further research is required to fully understand the role of nitrogen in acidification.
Canadian programs to control NOx emissions are currently aimed at reducing levels of ground-level ozone. Governments will cooperate in assessing the impact of these emission reductions on acidification. This also highlights the need for governments to manage air issues in an integrated manner.
It is important to have a science program that ensures Canada remains in a good position to monitor the health of its environment and the effectiveness of Canadian and U.S. emission control programs. Therefore, it is important that the federal and provincial governments cooperate in taking stock of the adequacy of existing science programs related to acid rain research and monitoring.
Stakeholders also delivered a very strong message along these same lines: the precarious acid rain science program must continue to be able to monitor environmental impacts, recognizing that governments are under considerable budgetary constraints.
Environment Canada, in cooperation with provincial/territorial governments, will review the adequacy of existing science programs, and will report back to Energy and Environment Ministers, with recommendations, in the fall of 1999.
To keep decision-makers and the public informed, regular reporting is required. Specifically, the annual reports will address current and projected SO2 and NOx emission levels in Canada and the U.S., and progress in implementing the commitments in The Strategy. Environment Canada, in cooperation with provincial/territorial governments, will submit the first annual report to Energy and Environment Ministers in the fall of 1999.
The members of the multi-stakeholder task group who developed the supporting documentation for this Strategy came to consensus on a number of policy recommendations. The elements of The Strategy regarding pollution prevention, keeping clean areas clean, reviewing of monitoring and science programs and annual reporting on emissions of NOx and SO2 are consistent with the Task Group recommendations.
The Task Group was also able to reach consensus regarding the following recommendations for further emission reductions:
However, the Task Group was unable to come to consensus on setting the targets and schedules for further SO2 emission reductions to achieve critical loads. The three non- government organizations (NGOs) and the three industry representatives (from the mining, electrical utilities, and petroleum sectors) on the Task Group have submitted their respective positions on this matter, which are described more fully in the Task Group report.
Non-government organizations. position Environmental and health NGOs would like Ministers to agree this year to a schedule to reach critical loads in eastern Canada, without delay. Their position is that provinces start by freezing emissions in the SOMA at their current levels . which are almost 30% below the SOMA cap . then further reduce SO2 emissions in increments of 25% until the full 75% reduction is realized by 2015.
The NGOs also want a 25% reduction in SO2 emissions in western Canada by 2003, and a strategy to be developed by 1998 to reduce nitrogen deposition to critical loads. Industry's position
Industry does not want Canada to act unilaterally to reduce SO2 emissions. Rather, industry's position is that Canada pursue joint actions with the U.S. to set a bilateral goal of achieving critical loads on both sides of the border, and then to reduce emissions from both countries to meet that goal.
In the near term, however, industry suggests that the provinces work with industry and other stakeholders to advance and implement potential emission reduction initiatives that are technically and economically feasible.
Further SO2 emission reductions are needed in the southeastern part of Canada and in the mid-western and northeastern United States to solve Canada.s acid rain problem. The Canada- Wide Acid Rain Strategy for Post-2000 provides the framework for achieving further emission reductions towards the long-term objective of reducing acid deposition to below critical loads in all parts of Canada while protecting those areas not presently threatened by acid rain.
The Ministers of Energy and Environment of Canada, British Columbia, Alberta, Saskatchewan, Manitoba, Ontario, New Brunswick, Nova Scotia, Prince Edward Island, Newfoundland, Yukon and Northwest Territories hereby agree to manage acid rain causing emission in the following manner:
Original signed by
Marcelle Mersereau
Minister of Environment
Province of New Brunswick
Doug Anguish
Minister of Energy
Province of Saskatchewan
On behalf of Federal/Provincial/Territorial
Energy and Environment Ministers
Bathurst, New Brunswick
November 8, 1994
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