4
Transportation and Safety
1998 Contributions to Transportation Safety
Federal Safety Initiatives
The following section provides an overview of federal transportation
safety initiatives undertaken in all modes in 1998. These activities
are primarily focused on safety inspection and monitoring of compliance
with safety legislation and regulations; safety enforcement; research
and development; and public safety awareness education programs.
While initiatives related to transportation infrastructure
improvements, such as widening of roads, also contribute to safety,
they are excluded in this report.
Provincial and municipal governments and non-governmental organizations,
also play a key role in contributing to the safety of the transportation
system. Given the prevailing trend toward partnerships and alternative
service delivery, their role has become increasingly important.
This report recognizes the important role these organizations
play in transportation safety; however, it gives only an overview
of provincial and municipal governments' safety initiatives and
does not address contributions by industry and
non-governmental organizations.
Rail
The Railway Safety Act gives the federal government
authority to regulate rail safety. Through a regulatory framework,
it gives railway companies greater flexibility to manage their
operations safely and efficiently and provides for protection
of public safety at railway crossings. The Act also covers the
enforcement of regulations, standards and procedures for safe
railway operations for inter-provincial and cross-border railways,
and specific intra-provincial rail lines.
Amendments to the Railway Safety Act were tabled in
Parliament in November 1998, and are expected to be proclaimed
in early 1999. The product of extensive consultations with stakeholders
in the rail sector - railway companies and provinces these amendments
will allow Transport Canada to make more use of the overall safety
management systems of railways and to audit them to ensure full
compliance with regulations.
In addition, these amendments will enhance the department's
compliance activities and ensure national consistency through
a comprehensive railway safety monitoring program, which will
replace the current inspection-based approach. The department
is also reviewing operations, equipment and engineering programs
to reflect proposed legislative and regulatory requirements, and
safety performance standards.
In 1997/98, Transport Canada continued work on a number of
safety initiatives, including increasing safety at railway crossings
through more stringent visibility standards; reducing trespassing
on railway tracks through a variety of measures, such as fencing
and educational awareness activities; and enhancing passenger
safety requirements on trains through on-board safety announcements.
The department is also establishing a permanent consultative committee
of departmental officials and rail safety stakeholders and developing
a national rail safety training program for railway safety inspectors.
The department rigorously monitored rail safety, reviewed industry
safety performance data, and systematically identified and resolved
railway safety issues during the year. The department's compliance
monitoring activities also included ensuring safe construction
and maintenance standards were met by railway companies, municipalities
and land owners for railway equipment, grade crossings and right-of-way
access control.
Transport Canada contributed approximately $7.5 million in
1997/98 toward safety improvements at grade crossings, including
the installation of automatic warning devices at railway grade
crossings.
The Minister of Transport announced a $250,000 contribution
in 1998 to the Railway Association of Canada to support the rail
safety program Direction 2006. Begun in 1995, this 10-year
program is a partnership between all levels of government, law
enforcement agencies, safety organizations, and railway companies
and unions. The program's objective is to reduce grade crossing
collisions and trespassing incidents by 50 per cent
by 2006. The federal contribution to this program will support
a variety of immediate activities that will help attain this goal.
In addition, the department also continued to support Operation
Lifesaver, a joint education program with the Railway Association
of Canada, to educate and promote public awareness of safety programs
and the dangers of railway crossings and trespassing. The department
contributes $200,000 annually to this program.
Road
Transport Canada carries out federal responsibility for road
safety under the Motor Vehicle Safety Act by developing
national standards for motor vehicle safety, fuel emissions, and
enforcing these standards. In addition, the Motor Vehicle Transport
Act gives the department responsibility for regulating the
safe operation of extra-provincial motor carriers.The department
maintains a national oversight role while delegating implementation
responsibilities to the provinces and territories.
Federal programs to improve overall road safety are focused
on regulatory standards development and compliance, public awareness
and education, research and accident investigation. Transport
Canada will continue to play a leadership role in supporting Road
Safety Vision 2001, a comprehensive road safety program developed
to make Canada's roads the safest in the world.
Launched in 1997, Road Safety Vision 2001 commits federal,
provincial and territorial governments, through the Canadian Council
of Motor Transport Administrators (CCMTA) to work on a number
of safety priorities to help Canada achieve the best road safety
record among industrialized countries. These priorities include:
raising public awareness of road safety issues; improving communication,
coordination and collaboration among road safety agencies; developing
more efficient enforcement to deal with problem areas, such as
impaired driving, repeat offenders and high-risk drivers; and
improving the collection and quality of data to ensure road-safety
programs are practical and cost effective.
Transport Canada is taking the lead to coordinate this initiative
and is also participating in several program-specific initiatives
with the provinces, industry and other stakeholders.
Improving and broadening the level of protection afforded to
all vehicle occupants by air bag systems remains a high priority
for Transport Canada. As part of the effort, Transport Canada
and the U.S. National Highway Traffic Safety Administration initiated
a major co-operative research program to develop testing procedures
to promote the development of advanced air bag technology. Priority
is currently being given to children and people of small stature
to ensure their protection requirements are addressed in safety
regulations.
The department is also continuing to ensure that vehicles comply
with applicable Canada Motor Vehicle Safety Standards and that
manufacturers and importers take the proper remedial action when
they become aware of safety-related defects or non-compliance
situations in their products. The number of Transport Canada investigations
have increased significantly over the past few years, as have
safety-related recalls by vehicle manufacturers and importers.
The department also monitors the safety performance of new motor
vehicle tires and child restraint systems by conducting compliance
testing, audit inspections and defect investigations. These activities
contribute significantly to reducing the number of unsafe vehicles
on Canadian roads.
In response to safety concerns, Transport Canada is continuing
to monitor air bag performance. Transport Canada successfully
launched an air bag deactivation program in 1998 for motorists
who, despite taking all available precautions, deemed themselves
to be at risk with air bags in their vehicles. The program, which
was developed in close consultation with the provinces, vehicle
manufacturers, importers, dealers and the US government, continues
to serve Canadians well.
By the end of 1998, Transport Canada had processed 1,738 requests
for deactivation or air bag on/off switch installations. Follow-up
from dealers and repair facilities indicate that during the year,
137 on/off switches were installed and 86 air bag systems were
deactivated in Canadian vehicles.
Transport Canada is also actively engaged in research to improve
the level of protection for passengers during side impact crashes.
The department has initiated a major crash testing program to
identify the most appropriate combination of crash test dummy
and moving barrier design for assessing side impact protection.
As part of this program, the department reconstructs actual collisions,
which were originally investigated by its Collision Investigation
Teams, to compare the responses of different dummy designs with
the actual injury experience of occupants.
In 1998, the department reviewed police collision reports and
photographs of approximately 200 fatal collisions involving heavy
vehicles to gain a better understanding of their cause. In addition,
it initiated a crash test program to determine the level of performance
required by rear under-ride guards to prevent passenger vehicles
from sliding under the rear of large trailers (Figure 4-8).
Results of a 1998 departmental survey indicate that 89 per
cent of light duty vehicle occupants wear seat-belts. Since 1989,
increased seat-belt use in Canada has saved an estimated 3,400
lives, avoided 77,000 injuries and saved over $6 billion in social
and health costs.
Under the Motor Vehicle Transport Act (MVTA), the federal
government has authority over the safety of buses and trucks operating
across provincial and national borders. Since 1988, the federal
government, provinces and industry have cooperated in the development
of motor carrier safety standards, called the National Safety
Code (NSC), to ensure safe operation of commercial vehicles. NSC
standards are administered and enforced by the provinces and territories.
Since 1989, the federal government has contributed about $4 million
annually toward implementing the Code. By 1999/2000, the federal
contribution will have totaled approximately $44 million.
Starting in 1999, the provinces and territories will begin
implementing a new performance-based NSC Standard 14, which will
determine a safety rating for every carrier. Success of this new
standard will depend on current and accurate data sharing amongst
provinces as well as the US and Mexico, to support proper carrier
safety management. The federal government is proposing to amend
the MVTA to incorporate the new standard, as well as to encourage
consistent standards application.
Transport Canada's regulation, research, compliance, information
and accident investigation programs have collectively contributed
to a significant reduction in Canada's fatality rate over the
past 20 years. In 1997, the fatality rate per 10,000 registered
motor vehicles was 1.74, down from 2.65 in 1986, and 4.2 in 1977.
Marine
The Canada Shipping Act (CSA) governs marine safety
in Canada and provides Transport Canada with the authority to
establish and administer marine regulations. The department also
holds the primary responsibility for all issues related to ship
safety, protection of the marine environment, and marine pilotage
to ensure the safety of life at sea, prevention of injury or loss
of life, and avoidance of damage to property and the environment.
Transport Canada also shares responsibility for marine safety
and environmental protection with the Department of Fisheries
and Oceans (DFO), which regulates pleasure craft, promotes boating
safety, and coordinates search-and-rescue operations and national
emergency preparedness and response.
Transport Canada is in the midst of modernizing the Canada
Shipping Act. The first set of reforms were completed in 1998.
The second track of reforms are currently being drafted in a Bill
that is expected to be introduced in Parliament in 1999. These
amendments will complete the overhaul of the Act to promote a
safe, technologically advanced and efficient marine industry.
The modernized Act provides a statutory framework for the shipping
industry, which covers the registration of ships, certification
of officers, provision of safety equipment, regulation of working
conditions for ship crew, and construction and navigation safety.
It also incorporates several important provisions that relate
to compliance of domestic and foreign ships with international
maritime conventions to enhance the safety of life at sea and
protect the marine environment. The Port State Control program,
for example, enables Transport Canada to inspect foreign ships
entering Canadian ports to determine compliance with these conventions.
In addition, the International Safety Management Code, as part
of the Safety of Life at Sea (SOLAS) convention, became compulsory
in 1998 for certain Canadian-registered ships engaged in international
voyages and foreign-registered ships entering Canadian ports.
It deals with safety and pollution prevention management by marine
companies for both vessel and shore-side operations.
The new Act also incorporates amendments to regulate small
passenger and fishing vessels, and special purpose ships. These
vessels have been identified as high risk for accidents or incidents
by the Transportation Safety Board. In the future, more inspections
will be required to ensure compliance with regulations to achieve
the highest possible level of safety.
In 1997/98, the department introduced marine security regulations
that cover pre-board screening of persons and goods to ensure
the security of passengers and crew aboard cruise ships boarding
in Canada.
Aviation
Under the authority of the Aeronautics Act, the federal
government is responsible for establishing and administering regulations
for the safe conduct of civil aviation within Canada.
Canada's civil aviation transportation system is operated by
NAV Canada and local airport authorities. The federal government's
role, however, is to monitor and regulate the safety and security
of aerodromes and airports, the licensing and training of personnel,
the airworthiness of aircraft, the safety and security of commercial
air services, and the air navigation system, including operating
and flight rules.
The safety of air taxi operations, (helicopters and airplanes
in commercial air service, excluding jets, which carry nine or
fewer passengers) is monitored by a joint industry/government
task force on an ad hoc basis. Its role is to determine where
safety deficiencies exist and recommend ways to reduce accidents.
The task force released a report in 1998 containing 71 recommendations
to improve the safety of the air taxi operations. The recommendations
were accepted and an implementation plan developed.
Transport Canada's ability to monitor the lease, charter and
interchange of aircraft to ensure their safe operation was improved
through a 1997 amendment to the Convention on International
Civil Aviation. It allows the department to better address
any potential liability or safety problems that might arise from
the significant increase in these activities due to globalization
of air transportation services.
The department promoted safety within the aviation community
by conducting safety awareness seminars; developing videos and
publications; supporting research and development initiatives
related to aviation safety; working proactively with the recreational
aviation community through the Canadian Sport Aviation Council;
improving collection and analysis of aviation safety data; and
developing safety indicators to identify and respond to system
deficiencies.
To promote safety in commercial aviation operations, Transport
Canada focused on improving regulations and monitoring compliance.
NAV Canada's air navigation operations, for example, are closely
inspected and audited by the department to ensure compliance with
technical safety standards and regulations in the Canadian
Aviation Regulations.
A 1997/98 audit of 35 per cent of air traffic service facilities
confirmed close compliance with these standards and regulations.
A system-wide audit of instrument landing systems and facility
power systems at NAV Canada sites over the same period identified
some minor deviations from technical standards, which were immediately
addressed by the corporation.
Multimodal
In 1998, Transport Canada launched two multimodal safety initiatives,
the strategic safety plan and the performance measurement framework,
to increase the efficiency, effectiveness and accountability of
safety programs, service quality and client/public satisfaction.
The goal of the strategic safety plan, which applies to all
modes of transportation, is to protect life, health, property
and the environment; and to increase public confidence in the
safety and security of the transportation system. The goal of
the performance measurement framework is to measure results achieved
over the years by collecting, analyzing and evaluating relevant
multimodal safety data.
In response to public, industry and stakeholder requests, the
department has been reducing and simplifying its regulatory activities,
and completing research and development work that will contribute
to improved standards and regulations in all modes of transportation.
The department is committed to reform its regulations to simplify
regulatory activities; improve and modernize the regulatory structure;
and regulate smarter by pursuing regulatory alternatives, as well
as alternatives to regulations, wherever applicable, without compromising
safety.
As part of its regulatory reform initiative, the department
has initiated the application of additional or alternative compliance
tools specific to safety and security programs. In addition, the
department is planning to introduce legislation in 1999 that will
create a Canadian Transportation Tribunal to deal with transportation
safety contravention issues.
Research and Development
Transport Canada's 1998 research and development program focused
on safety and security issues, as well as broad federal priorities
such as energy efficiency, environmental protection, competitiveness
and accessibility. The research and development projects were
undertaken in partnership with industry.
The 1998 fiscal year was an especially active one for the research
program, with a number of safety-related improvements in all modes.
Some of the highlights of the year included improved safety standards
and guidelines for aircraft operations in winter, and improved
flight data monitoring worldwide; improved safety, regulation
and compliance for surface transportation operations; improved
safety standards for rail containment systems for transportation
of dangerous goods, and improved methods of inspection for railway
track and equipment; improved winter performance for electric
vehicles.
Transportation of Dangerous Goods
The Transport Dangerous Goods (TDG) Directorate is responsible
for the development of regulations, information and guidance on
the transportation of dangerous goods. The Directorate also coordinates
the Canadian TDG program, which is jointly administered by Transport
Canada and all provincial and territorial governments. The program
has two main objectives: preventing accidental releases of dangerous
goods during transportation (or related activities) and mitigating
the consequences of those accidents that do occur.
In 1998, TDG regulations were amended to provide new standards
to improve the integrity of means of containment for rail tank
cars. Similar TDG amendments for highway carriers will be completed
in 1999. These amendments are expected to help reduce accidental
releases through superior design and an increased ability to detect
critical defects, as well as through added protection against
punctures and fire impingement.
The TDG regulations were also rewritten in plain language and
submitted for legal review. They will be easier to understand
for the shippers, handlers, carriers and other industry personnel
who have to comply with them. The new version will also provide
even more harmonization between the modes of transport and between
the federal and provincial requirements.
The TDG Directorate operates the Canadian Transport Emergency
Centre or CANUTEC, which provides a 24-hour-a-day chemical and
regulatory information service. CANUTEC advisors are professional
chemists or chemical engineers experienced in interpreting scientific
and technical information in order to provide advice in emergency
situations involving dangerous goods during transportation.
The centre receives approximately 30,000 calls per year, the
majority being non-urgent requests for information. Approximately
10 per cent of the calls, however, are of an urgent nature. Many
are from people facing threats to public safety, such as police
and fire-fighters at the scene of a transportation accident, concerned
parents whose children have ingested cleaning compounds, or employers
whose staff have been exposed to chemicals.
Security and Emergency Preparedness
Transport Canada continued its phased withdrawal of RCMP services
from international airports in 1998 to shift the cost of policing
and aviation security services from government to aerodrome operators.
To ensure safety compliance, Transport Canada will continue to
set the regulatory requirements for policing and security services,
and monitor aerodrome operators.
Another major milestone for the department was the transfer
of ownership and responsibility for acquisition and maintenance
of security screening equipment at Canadian airports to the Air
Transport Security Corporation, a not-for-profit company acting
on behalf of the air carriers. This initiative is consistent with
the department's efforts to shift its role from operator to regulator,
and to redirect costs to users. Mandatory equipment performance
standards, to ensure detection of threatening objects, were introduced
at the time of transfer to ensure the continuity of effective
screening.
The department started discussions with the Canadian aviation
industry concerning the acquisition and installation of leading-edge
explosives detection systems at Canada's international airports.
It is currently refining a phased implementation strategy for
the detection systems, based on threat and risk assessment. The
new systems, for which the aviation industry will be financially
and operationally responsible, will ensure that Canada is able
to counter changing criminal capabilities and maintain its status
as a world leader in aviation security.
In the event of year 2000 transportation contingencies, the
department has developed an extensive work plan to ensure that
the safety and security of the national transportation system
is maintained, and that mission-critical business functions and
employee safety are not compromised. The department has started
processes to ensure that contingency plans are tested and that
emergency response teams are ready to implement them if necessary.
Coordination of departmental contingency planning with the National
Contingency Planning Group (under the auspices of the Department
of National Defence) is ongoing.
The first full year of implementation of the department's marine
transportation security regulations for cruise ships and cruise
ship facilities was successfully completed in 1998. Security inspections
of major cruise ships and their operation facilities were conducted
in all regions to ensure that requirements for the protection
of passengers, crew, vessels and facilities were met. Co-operation
between Transport Canada and industry on the new security program
will continue to strengthen the security of the cruise industry
in Canada.
International Transport Safety Initiatives
Road
Transport Canada is also actively participating in international
crash worthiness research activities under the auspices of the
International Harmoned Research Activities (IHRA) and the International
Standards Organization (ISO). The department's areas of research,
include bio-mechanics, vehicle compatibility, side impact protection,
advanced offset frontal protection, and intelligent transportation
systems (ITS). The ITS research is intended to assess the safety
implications of such vehicle technologies as collision warning,
navigation and improved driver warning systems.
The department has also been a major contributor to North America-wide
research into the causes of fatique among commercial drivers.
In partnership with the United States Federal Highways Administration
and, with the Canadian and American trucking industry, the department
is participating in research that will lead to improved hour of
service regimes for truck and bus drivers.
Canada hosted the 16th International Technical Conference on
the Enhanced Safety of Vehicles in Windsor, Ontario, in 1998.
Approximately 750 delegates from 19 countries attended the conference
and exhibition. The event attracted 39 exhibitors, mostly from
the US, as well as from Europe and Japan, who presented the latest
advances in motor vehicle safety research. Transport Minister
David Collenette delivered the keynote address.
Aviation
Trade liberalization has increased the need for regulatory
harmonization and a strong commitment to partnership between the
department, the aviation community, other governments and the
public. During the year, Transport Canada continued negotiations
with other International Civil Aviation Organization member states
to develop bilateral air worthiness agreements/technical arrangements
to improve trade harmonization such as technical arrangements
on certification, maintenance and manufacturing with Japan; Memorandum
of Understanding of Cooperation to produce Bell 427 helicopters
in Korea; technical arrangements and certification with the joint
air worthiness European member states; a certification agreement
with Brazil to streamline importation of aircraft; and bilateral
technical arrangements on air worthiness with Israel.
Transport Canada is developing a tri-national (Canada, United
States and Mexico) aviation accident/incident reporting system
to improve the comparability of aviation safety information reported
by the three countries. Phase I of the study, which consisted
of data collection and analysis among the three civil aviation
authorities, was completed in early 1998. The department has adopted
tri-national definitions of concepts and has explored several
options to develop an automated accident and incident reporting
system.
Marine
Under Transport Canada's Port State Control program, the inspection
of foreign ships to ensure compliance with international maritime
conventions continues to be an effective vehicle for enhancing
the safety of life at sea and the protection of the marine environment.
Canada is one of the countries that has signed two Memoranda
of Understanding on Port State Control, namely the Paris and Tokyo
MOUs. In March 1998, based on Canada's Port State Control initiative,
ministers responsible for maritime safety in Europe, and the North
Atlantic and Asia-Pacific states signed the joint ministerial
declaration, "Tightening the Net" to eliminate substandard
shipping. This international action demonstrates a shared commitment
to safer ships and cleaner seas, as well as to acceptable living
and working conditions on-board ships.
Multimodal
The department is increasing industry's role in promoting safety
and security standards and working with them to identify and resolve
potential safety issues. In addition, a data exchange initiative
is being carried out jointly with the United States and Mexico
to evaluate transportation in Canada on an international level
and allow the department to set goals based on international standings.
Transportation of Dangerous Goods
The new TDG regulations will provide more harmonization between
the modes of transportation, between federal and provincial requirements,
and between domestic and international practices. Transport Canada
consults and co-operates with industry, emergency responders,
carriers, all provinces and territories, the United Sates and
Mexico, the United Nations Committee of Experts on TDG, the International
Maritime Organization, the International Civil Aviation Organization,
the International Atomic Energy Agency, the Organization for Economic
Co-operation and Development and other federal departments.
The Canadian Transport Emergency Centre and the US and Mexico
have developed the North American Emergency Response Guide Book,
which is now available in three languages - English,
French and Spanish. Transport Canada distributed free copies of
the guide to ensure there would be one in every fire-fighting
truck and highway patrol vehicle in Canada.
Research and Development
Under NAFTA, Transport Canada is working with the United States
Department of Transportation and the Mexican SCT on a five-year
plan for science and technology cooperation among the three countries.
The focus of the plan will be on advancements that contribute
to improving transportation safety and security, facilitating
trade and tourism, minimizing environmental impacts, enhancing
infrastructure renewal and management, and improving accessibility
and mobility.
Provincial/Municipal Transport Safety Initiatives
Rail
Provincial governments are responsible for the safety of intra-provincial
short-line rail transportation. Provincial and municipal governments
share jurisdiction over roadways approaching rail crossings and
enforcement of provincial legislation governing driver behavior.
In general, provincial railway safety provisions are consistent
with federal requirements to promote railway safety in Canada.
Provincial government initiatives deal mainly with reducing railway
and highway grade crossing and trespassing accidents by contributing
to improvements of approach roads, crossing signals and fencing.
Regional goals and priorities for railway safety are in line
with the national goals and priorities to establish and implement
policies and rules, awareness and education, monitoring and enforcement,
and safety programs.
Road
Provincial governments have significant road safety responsibilities,
including driver licensing, vehicle inspection, highway infrastructure
and the enforcement of highways regulations. Municipal governments
are responsible for the enforcement of provincial road safety
regulations and for the management of local road infrastructure
within their jurisdictions.
Transportation of Dangerous Goods
The Canadian TDG program is jointly administered by the federal,
provincial and territorial governments. Provinces have full jurisdiction
over the use of roads by vehicles, regardless of any other jurisdiction
over the activity being conducted at the time. Therefore, there
exists 13 (soon to be 14 with the creation of Nunavut in April
1999) legally binding sets of requirements for the transportation
of dangerous goods. The provinces and the federal government recognize
the potential for overlap and have agreed to participate jointly
in a National Task Force on the Transportation of Dangerous Goods.
This Task Force brings together federal, provincial and territorial
TDG representatives, who meet three times a year under the
co-chairmanship of a provincial representative and the federal
representative. The Task Force determines the priorities of the
TDG program and decides on a common set of requirements to increase
public safety. Thus, even though there exists, legally, thirteen
separate sets of requirements, the results are the same.
The Minister's Advisory Council addresses the needs, issues
and concerns of stakeholders. Representatives from various sectors
of the industry (production, transportation, manufacturing and
employee safety), and from providers of public safety (federal,
provincial and municipal governments, and police and fire-fighters)
meet three times a year to discuss the orientation of the program
and provide advice to the Minister of Transport.
Because of the harmonization, every provincial TDG inspector
who enforces a provincial TDG statute is increasing compliance
with the federal law; any federal TDG inspector who enforces a
federal TDG requirement is increasing compliance with provincial
laws.
1998 Contributions to Transportation Safety
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