5 TRANSPORTATION AND THE ENVIRONMENT

Levels of green house gas emissions from freight transportation have increased, however, emissions grew at lower rate than the increase in activity level.

OVERVIEW

Although transportation provides many economic and social benefits, the movement of people and goods can have significant environmental consequences, which in turn have social and economic repercussions. Sustainable transportation calls for ensuring that the environment is considered along with economic and social factors in transportation decision-making. Environmental impacts from transportation include air, water and noise pollution, greenhouse gas (GHG) emissions, and the loss of agricultural land and wildlife habitat. A range of transportation activities contributes to these pressures, including: constructing and financing infrastructure; operating airports and ports; operating and maintaining the road system; producing, operating, maintaining and disposing of vehicles; and supplying of energy and fuel.

The different sectors that make up Canada's transportation system are under the jurisdiction of all three levels of government. The federal government has jurisdiction over most international and interprovincial transportation, while provincial governments are responsible for intraprovincial transportation. Municipalities largely govern urban transportation systems. Coordination of these different levels is conducted by the Council of Ministers Responsible for Transportation and Highway Safety.

TRANSPORT CANADA'S ROLE

Transport Canada's mandate is to provide the best transportation system for Canada and Canadians — one that is safe and secure, efficient, affordable, integrated and environmentally friendly. The authority of the Minister of Transport Canada to affect environmental issues is through various Acts, including the Navigable Waters Protection Act, Arctic Waters Pollution Prevention Act, Canada Shipping Act, Motor Vehicle Fuel Consumption Standards Act and Transportation of Dangerous Goods Act. In carrying out its mandate, Transport Canada works with other federal departments to promote sustainable transportation. Significantly, it collaborates with Natural Resources Canada to promote the production and use of alternative fuels and to introduce fuel efficiency technologies. Air emissions from the on-road and off-road sectors are regulated by Environment Canada.

In order to set a positive example and to reduce its own environmental impacts, Transport Canada has increasingly been integrating environmental considerations into daily planning and decision-making. To achieve this objective, Transport Canada has adopted an Environmental Management System, or EMS, an approach that has been used by governments and private companies around the world to ensure environmentally sound practices and to minimize liability.

ENVIRONMENTAL TRENDS IN TRANSPORTATION

Transportation is an important contributor to Canada's economy. The benefits of transportation systems should be weighed against their impacts on the environment. An obvious impact, for example, results from using energy to propel our vehicles, whether on land, on water or in the air. The challenge is to reduce the transportation-related impacts on the environment while still achieving the objectives of mobility and access that transportation systems afford.

This section will illustrate the most recent trends in both GHG and criteria air contaminants (CAC) emissions related to transportation. It will show that despite growth in transportation services, improvements have been made in particular areas while challenges remain in others.

CLIMATE CHANGE AND GREENHOUSE GAS EMISSIONS

Climate change is a major challenge for transportation, as it is for all other sectors of the Canadian economy. Climate change is caused by increases in GHG emissions, which may significantly alter weather and climate patterns around the world, thus increasing the frequency of severe weather events and enhancing the risk of weather-related disasters. However, attempts to reduce GHG emissions in the transportation sector must recognize that transportation is a derived demand and that mobility makes an important contribution to the Canadian economy.

Total Canadian GHG emissions in 2002 were 731 megatonnes (Mt), a 2.1 per cent increase from 2001. Figure 5-1 shows that the transportation component of total emissions was 26 per cent, or 190 Mt. This is up slightly from the 2001 level of 187 Mt (also 26 per cent of total emissions). On-road emissions accounted for 72 per cent of total transportation emissions, domestic air-related emissions accounted for seven per cent, and rail and domestic marine both accounted for three per cent. The remaining transportation-related emissions, off-road and pipelines, accounted for a combined 15 per cent of total GHG emissions in 2002.

Figure 5-2 shows the trends from 1990 to 2002 in on-road GHG emissions and activity levels from the passenger and freight sectors (1990 levels indexed to 100). Emissions from on-road passenger travel increased by roughly 12 per cent over this period, from 69 to 77 Mt. Activity levels measured by passenger-kilometres increased by the same amount as tracked GHG emission levels throughout this period.

FIGURE 5-1: TOTAL GHG EMISSIONS BY SECTOR, 2002

Source: Canada's Greenhouse Gas Inventory, 1990-2002, Environment Canada

By contrast, Figure 5-2 also shows that GHG emission levels for on-road freight increased by 53 per cent, from 33 to 51 Mt, from 1990 to 2002. While this represents a significant increase in GHG emissions compared with passenger emissions, it should be viewed within the context of the large increase in freight activity levels over this period, when freight activity, measured in tonne-kilometres, more than doubled (103 per cent). This indicates that while freight is accounting for increasing levels of GHG compared with passenger travel, it is also becoming more efficient by decoupling GHG emissions from activity to a greater extent than on-road passenger travel.

FIGURE 5-2: TRENDS IN GHG EMISSIONS AND TRANSPORTATION ACTIVITY, 1990 – 2002

Source: Energy Use Handbook: June 2004; NRCan, OEE

Figure 5-3 shows the trends in GHG emissions from the rail, aviation and marine sectors for the 1990 – 2002 period. After the on-road sectors, the aviation sector had the largest share of transportation sector GHG emissions, with 16 Mt in 2002. Since 1990, aviation GHG emissions have increased by 18 per cent. This increase occurred while airlines were employing more fuel-efficient aircraft as well as larger aircraft with increased load factors. At eight Mt, the marine sector was the next largest contributor to GHG emissions; overall, marine emissions have been relatively constant over this period, with only a three per cent increase. The rail sector was responsible for six Mt in 2002, and unlike the other sectors, has had declining GHG emissions since 1990 (16 per cent reduction). This is especially impressive considering that rail freight activity levels have increased by 28 per cent since 1990. As reported in last year's Annual Report, this could be due to a combination of factors, such as technological improvements to locomotives during the late 1990s, the adoption of new operating practices, and the rationalization of Canadian National and Canadian Pacific's fleets.

FIGURE 5-3: RAIL, AVIATION, MARINE GHG EMISSIONS, 1990 – 2002

Source: Energy Use Handbook: June 2004; NRCan, OEE

AIR POLLUTION EMISSIONS

Roughly eight out of ten Canadians live in urban areas. This, along with the associated concentrations of economic activity in urban areas, is putting pressure on the air, land and water. This section examines trends in transportation-related air emissions.

Air pollution emissions represent a significant environmental and health issue for Canadians. These emissions include pollutants such as nitrogen oxides (NOx) and sulphur oxides (SOx); volatile organic compounds (VOC) such as gasoline fumes and solvents; and particulate matter (PM₁₀ or PM_2.5). They are emitted from a wide range of sources, including the transportation system. Perhaps the most visible impact is urban smog, which has been linked to several thousand premature deaths in Canada each year, as well as to numerous health-related problems. Smog is composed of two main ingredients: ground-level ozone and particulate matter. Ground-level ozone is created when NOx and VOC react together under specific conditions, such as calm, sunny days. NOx, along with SOx, are also the components of acid precipitation. Particulate matter is produced during the combustion of fossil fuels, including motor vehicles, industrial processes and power plants. Dust from paved and unpaved roads and road construction as well as forest fires are also major sources of particulate matter.

The transportation sector as a whole accounts for roughly 60 per cent of total Canadian NOx emissions, 26 per cent of VOC emissions, seven per cent of fine PM emissions and four per cent of SOx emissions. It should be noted that fuels vary considerably in terms of the emissions to which they give rise. For example, on-road and off-road diesel engines account for roughly 75 per cent of PM_2.5 emissions (off-road diesel use alone accounts for 53 per cent) and 58 per cent of NOx emissions. Gasoline engines, on the other hand, account for 86 per cent of transportation-related VOC emissions. Figure 5-4 illustrates the trends in transportation-related PM_2.5, SOx, NOx and VOC emissions (1990 trends indexed to 100). Since 1990, the trend in all of these emissions has been downward, thanks largely to regulatory changes introduced by the federal government to reduce the health impacts of smog and the impacts of acid rain.

FIGURE 5-4: AIR POLLUTION EMISSIONS FROM THE TRANSPORTATION SECTOR, 1990 – 2002

Source: Environment Canada: 2000 Criteria Air Contaminant Inventory

Congestion affects the environment through the additional time required for commuting or for goods movement and the increased time spent by vehicles idling in heavily congested areas. The consequences include increased environmental, social and economic costs, such as foregone paid work, lost time and productivity, wasted fuel, increased GHG emissions, air and noise pollution, and increased stress. Canada relies heavily on exports and imports, especially to and from the United States. This movement of goods and people requires reliable and timely traffic flows at border points, as well as the efficient movement on our highways, rail yards, airports and ports. The costs of congestion have been estimated to be in the billions of dollars annually for the Canadian economy.

The design of low-density urban areas can have an impact on the environment through increased infrastructure needs, including investment in roads. The benefits to Canadians of such development can include lower housing costs and greater access to green space. However, so-called "urban sprawl" also means longer commuting times with the associated increase in harmful emissions.

FEDERAL INITIATIVES

Federal government departments introduced a number of new initiatives in 2004, many focussed on Canada's urban transportation areas. These initiatives targetted passenger and freight transportation as well as other transportation modes such as air and water transportation. These initiatives are highlighted below.

THE ONE-TONNE CHALLENGE

Launched on March 26, 2004, the One-Tonne Challenge is a three-year, $45 million social marketing campaign that provides Canadians with information and tools to help them take action to reduce their own GHG emissions by one tonne — at home, at the office and when travelling. Complementary initiatives under the program include partnerships with various groups and communities such as educators and youth to raise awareness of the Challenge and engage Canadians to take action. An $8 million print and television advertising campaign was launched in December 2004.

ANNOUNCEMENT OF HYDROGEN HIGHWAY

As an important part of the $215-million initiative to stimulate the development and commercialization of hydrogen and fuel cell technologies, the federal government announced the development of the first Canadian Hydrogen Highway on April 1, 2004. Targetted for full implementation by the Whistler 2010 Olympics, the Hydrogen Highway will attract international attention and be a showcase of sustainable transportation, creating a highway with hydrogen fuelling infrastructure that will allow visitors to travel via fuel cell vehicles between the Vancouver Airport and Whistler for the 2010 Olympics.

SUSTAINABLE DEVELOPMENT STRATEGY

URBAN INITIATIVES

The Urban Transportation Showcase Program

The Urban Transportation Showcase Program (UTSP) is a $40 million initiative to demonstrate and evaluate the impacts of integrated strategies for reducing GHG emissions from urban transportation. The program evaluates the effects of these strategies on GHG emissions, as well as on other urban challenges such as air pollution, congestion, urban form and land use, operating costs and increased active transportation (e.g. cycling, walking). Information on sustainable urban transportation from the showcase demonstrations and other sources is disseminated via learning events, Internet communications, publication of case studies, and transportation awards to encourage the replication of successful strategies across Canada.

In 2004, five municipalities began implementation: Halifax, Waterloo, Toronto/Hamilton, Whitehorse and Vancouver. For more information, visit www.tc.gc.ca/programs/environment/utsp/menu.htm.

THE MOVING ON SUSTAINABLE TRANSPORTATION (MOST) PROGRAM

Public Transit

Over the course of 2004, the federal and provincial governments announced a number of investments in public transit. Funding for these projects came from the Canada Strategic Infrastructure Fund to support increased transit ridership that encourages a more environmentally sustainable transportation system.

The October 2004 Speech from the Throne affirmed the Government of Canada's commitment to bring forward a New Deal for Cities and Communities. A component of the New Deal includes allocating federal gasoline tax revenue for environmentally sustainable municipal infrastructure such as public transit and rehabilitation of roads and bridges. For more information, please see the Chapter 7 — Road Transportation.

Also in 2004, Environment Canada partnered with the Canadian Urban Transit Association (CUTA) to deliver a national urban transit bus retrofit program. This program will enable up to 240 older, higher-polluting urban busses to be retrofitted with diesel oxidation catalysts. This will reduce emissions of PM by 20 per cent, carbon monoxide by 40 per cent and hydrocarbons by 50 per cent.

In December 2004, Transport Canada invited employees of all federal government departments and agencies in the National Capital Regional to enroll in the Transit Pass Program. Enrollment is being phased across departments over the coming year. The Transit Pass Program enables employees to purchase a transit pass through a monthly payroll deduction (with OC Transpo) at a reduced price or through a pre-authorized payment (with the Société de transport de l'Outaouais). Participating employees save 10 to 15 per cent (10% for STO and 15% for OC Transpo) and gain the convenience of an annual transit pass.

RELEASE OF SUSTAINABLE TRANSPORTATION PLANNING TOOL

Advanced Technology Vehicles Program

The goal of the Advanced Technology Vehicles Program (ATVP) is to support Transport Canada's efforts to reduce GHG emissions in the transportation system. As of December 2004, the ATVP has assessed 94 vehicles for their fuel efficiency, emissions and safety performance. This includes the Mercedes-Benz Smart Car, which was introduced to the Canadian market on October 4, 2004. This fuel-efficient car gets 3.8 litres/100km on the highway and 4.6 litres/100km in the city. In addition, 4.8 million Canadians have been reached through a program of 105 special events undertaken to showcase advanced technology vehicles and to raise public awareness of advanced technology vehicles.

FREIGHT TRANSPORTATION

Freight Efficiency and Technology Initiative

The Freight Efficiency and Technology Initiative (FETI) is led by Transport Canada in collaboration with Natural Resources Canada and is designed to reduce the growth of GHG emissions from freight transportation. It has three components: the Freight Sustainability Demonstration Program (FSDP); voluntary performance agreements between the federal government and modal associations to improve fuel efficiency and reduce GHG emissions; and information-sharing initiatives with the freight industry. In 2004, the FSDP allocated approximately $1.2 million for eight new demonstration projects, bringing the total to $2.7 million for 23 projects. Two demonstration projects were completed, and 11 began implementation following the signature of contribution agreements during the summer and fall months. FETI co-funded and/or organized two industry events to promote understanding and actions in support of sustainable freight transportation.

An agreement in principle was reached with the Air Transport Association of Canada (ATAC) to voluntarily reduce GHG emissions in the aviation sector. This will be accomplished through a 24 per cent improvement in energy efficiency by 2012 compared with a base year of 1990. This target will be confirmed in a memorandum of understanding (MOU) in 2005.

Freight Incentives Program

Launched as part of the Climate Change Plan for Canada, the Freight Incentives Program (FIP) provides financial incentives to purchase and install efficiencyenhancing technologies and equipment in the air, rail and marine modes. In 2004, the FIP had its first annual submission deadline, and approximately $1.5 million was allocated toward four projects. Other work under this program includes the examination of marine shore power to reduce ship idling at terminals and an awareness program for shippers and freight forwarders.

AIR QUALITY

Proposed amendments to the Sulphur in Diesel Fuel Regulations were published on October 2, 2004. They introduce limits for sulphur in off-road, rail and marine diesel fuels and are aligned with the levels and timing requirements passed by the U.S. Environmental Protection Agency in June 2004. The interim limit of 150 mg/kg of sulphur set under the Sulphur in Gasoline Regulations ended December 31, 2004. The final average limit of 30 mg/kg came into effect on January 1, 2005. Between 2002 and 2003, the national average sulphur content in gasoline has declined 55 per cent.

In May 2004, the federal government proposed the Off-Road Compression-Ignition Engine Emission Regulations, which will introduce emission standards for diesel engines, such as those used in construction and agricultural machines, starting in 2006. It is estimated that there are more than 12 million engines in off-road vehicles and equipment in Canada. Environment Canada also initiated consultations on its planned Marine Spark-Ignition Engine and Off-Road Recreational Vehicle Emission Regulations, which will introduce emission standards for recreational marine engines and vehicles. For more information, visit Environment Canada's CEPA Registry Web site at www.ec.gc.ca/CEPARegistry/default.cfm.

WATER ISSUES

In December 2003, a decision was made to transfer responsibility for the Navigable Waters Protection Act (NWPA) from Fisheries and Oceans Canada (DFO) to Transport Canada. The transfer took effect on March 29, 2004. With the transfer, TC is now responsible for conducting environmental assessments (EA) pursuant to the Canadian Environmental Assessment Act for projects triggered by the NWPA. The number of EAs TC now conducts on an annual basis has increased significantly and includes a number of major assessments, hydroelectric projects, liquefied natural gas projects and mines.

The Canadian and United States governments are conducting a joint study to evaluate the infrastructure needs of the Great Lakes / St. Lawrence Seaway system, and the engineering, economic and environmental implications of those needs. The study will focus on the optimization of the existing infrastructure based on the system's current configuration and environmental footprint. Seven partners are involved including five Canadian and U.S. federal departments and the Canadian and U.S. Seaway corporations. The study is scheduled to continue until 2006.

NOISE AND AIR TRANSPORTATION

Air traffic around the world continues to increase rapidly, as does the number of extra hours aircraft spend in the air and waiting on the ground. This raises issues related not only to water and air quality but also to the noise associated with air travel. In the spring of 2004, Transport Canada joined the U.S. Federal Aviation Administration (FAA) and the National Aeronautics and Space Administration (NASA) as a sponsor of the Center of Excellence (COE) for Aircraft Noise and Aviation Emissions Mitigation. This partnership provides Transport Canada with access to a wide range of resources and expertise from academic institutions as well as manufacturers.

In February 2004, Transport Canada officials participated in the activities of the Committee on Aviation Environmental Protection of the International Civil Aviation Organization (ICAO) to develop recommendations to reduce the environmental impact of aircraft noise and engine exhaust emissions (including more stringent standards for nitrogen oxides); to make progress on market-based measures to limit or to reduce emissions; and to provide guidance on implementing a "balanced approach" to noise management.

CONTAMINATED SITES

The 2003 Federal Budget includes a commitment of $175 million over two years to establish a centrally managed fund to make ongoing resources available to federal contaminated sites. Transport Canada received $10 million for three remediation projects and $334,000 for seven site assessment projects in 2004/05 through the Federal Contaminated Sites Accelerated Action Plan.

PROVINCIAL/TERRITORIAL/MUNICIPAL INITIATIVES

ONTARIO

The Ontario Ministry of Transportation (MTO) has embarked on a process to develop a comprehensive, current and consistent approach to environmental compliance that will encompass all environmental factors for all highway activities from planning through to operation and maintenance. One of the first steps in developing a systematic approach to environmental management is the Environmental Standards Project (ESP). For more information, visit www.mto.gov.on.ca/english/engineering/envirostandards.

SASKATCHEWAN

In 2004, Saskatchewan continued to explore and implement new initiatives and technologies that reduce vehicle fuel consumption and vehicle emissions and that optimize transportation facilities. For example, the Saskatoon Transit Service and Saskatchewan Highways are continuing to test canola–oil blend "biodiesel" in portions of their fleets. Indications are that biodiesel reduces diesel fuel consumption and NOx and VOC emissions, and significantly reduces vehicle engine wear. In addition, private industry has developed a canola oil-based diesel fuel additive to enhance regular diesel fuel. The City of Regina and Saskatchewan Energy vehicle fleets are now using compressed natural gas, which reduces petroleum consumption and vehicle emissions.

ALBERTA

Alberta Infrastructure and Transportation (INFTRA), in partnership with the Clean Air Strategic Alliance (CASA),¹ completed successful cold-weather testing of diesel particulate filter technology with City of Edmonton Transit buses. After a year of normal operations, the buses showed decreases in total hydrocarbon emissions between 61 and 87 per cent, carbon monoxide between 83 and 89 per cent, and total PM between 73 and 75 per cent. All the reductions occurred without a change in fuel consumption levels.

In 2004, the CASA Board also made recommendations to help manage transportation demand. CASA stakeholders and member companies, particularly those in Edmonton and Calgary, will be asked to evaluate and assess their current use of transportation demand management (TDM) measures, to consider implementing or modifying their programs as appropriate, and to report back to CASA in three years. Urban municipalities will be encouraged to promote such programs in their regions, and CASA will develop communication tools to help with the implementation and reporting on employer-based TDM measures.

BRITISH COLUMBIA

In December 2004, the Government of British Columbia released "Weather, Climate and the Future: B.C.'s Plan." It includes the development of TDM, congestion-reduction measures, incentives for hybrid/alternative-fuelled vehicles and a driver information program. The provincial government has set a target of 16 per cent GHG reductions from 2000 to 2005 through changes to its vehicle fleet by purchasing hybrid/alternative fuel vehicles, using biodiesel and ethanol fuel blends, switching to more efficient vehicles, and reducing kilometres travelled. The provincial government, and BC Transit (a provincial Crown corporation), is also testing biodiesel in eight fleets in the province. It is also making available funding of up to $250,000 to construct new cycling infrastructure through the provincial Cycling Infrastructure Partnerships Program.

YUKON

The Northern Climate Exchange Centre (NCE) has partnered with the City of Whitehorse, Yukon Government, Energy Solutions Centre, Yukon Science Institute, Yukon Youth Conservation Corps and Yukon Conservation Society to develop and launch an Anti-Idle campaign in the Yukon. Environment Canada's 2004 EcoAction Community Funding Program has provided additional funds for this program. This project will use a variety of social marketing techniques to reduce idling in Whitehorse. Anti-idling signs will be designed, produced and placed in parking lots, drop-off zones and delivery areas throughout the city to encourage drivers not to idle. The anti-idle campaign complements the existing public education and outreach activities of NCE. The newest mascot, "Auntie Idle," was developed by a local artist and will join "Bob and Dog Mackenzie" to deliver the Climate Change: Are you doing your bit? message in the Yukon.

NORTHWEST TERRITORIES

The Northwest Territories Department of Transportation annually constructs and maintains the Mackenzie Valley Winter Road. This road has some 29 different stream crossings that until recently were made via natural or artificially thickened ice bridges. While best practices have been employed in their construction and location, warmer weather in recent years has made the construction and removal of these bridges more problematic. To properly mitigate the potential environmental impacts from these temporary ice bridges on fish habitat, the Department has been constructing new permanent bridges. Construction of these bridges at all stream crossings will ultimately remove any interference with natural stream flow and sediment issues caused by the temporary ice bridges.

¹ CASA was established in March 1994 as a new way to manage air quality issues in Alberta. It is a non-profit association composed of stakeholders from government, industry and non-governmental organizations. Back to text