metro vancouver regional district climate action committee · regulation in metro vancouver....

October 23, 2017

METRO VANCOUVER REGIONAL DISTRICT CLIMATE ACTION COMMITTEE

REGULAR MEETING

Wednesday, November 1, 2017 1:00 pm

2nd Floor Boardroom, 4330 Kingsway, Burnaby, British Columbia

A G E N D A1

1. ADOPTION OF THE AGENDA

1.1 November 1, 2017 Regular Meeting AgendaThat the Climate Action Committee adopt the agenda for its regular meeting scheduled for November 1, 2017 as circulated.

2. ADOPTION OF THE MINUTES

2.1 October 4, 2017 Regular Meeting MinutesThat the Climate Action Committee adopt the minutes of its regular meeting held October 4, 2017 as circulated.

3. DELEGATIONS

4. INVITED PRESENTATIONS

4.1 Charlotte Argue, Program Manager, Fraser Basin Council and Eve Hou, Air QualityPlanner, Metro Vancouver Subject: Working Together to Electrify the Region: A Brief History of Metro Vancouver and Fraser Basin Council Initiatives on Electric Vehicles

5. REPORTS FROM COMMITTEE OR STAFF

Note: the following report was deferred from the July 5, 2017, and September 20, 2017Climate Action Committee Meeting.5.1 Renewable Cities – Global Learning Forum 2017

Verbal Update Designated Speakers: Maria Harris, Director, Climate Action Committee, Jason Emmert, Air Quality Planner, Parks, Planning and Environment Department

1 Note: Recommendation is shown under each item, where applicable.

Climate Action Committee -

Climate Action Committee Regular Agenda November 1, 2017

Agenda of 3

5.2 Consultation on the Development of an Expanded Regulatory Approach to Managing Odour in Metro Vancouver Designated Speakers: Mia Edbrooke, Senior Policy Analyst, Julie Saxton, Acting Program Manager, Bylaw and Regulation Development, Parks, Planning and Environment Department That the MVRD Board: a) receive for information the report titled “Consultation on the Development of an

Expanded Regulatory Approach to Managing Odour in Metro Vancouver” dated October 25, 2017; and

b) direct staff to initiate consultation on potential options to enhance themanagement of emissions of odorous air contaminants, based on the discussion paper attached to the report titled “Consultation on the Development of an Expanded Regulatory Approach to Managing Odour in Metro Vancouver” dated October 25, 2017.

5.3 Ambient Air Quality Objectives for Sulphur Dioxide Designated Speakers: John Lindner, Air Quality Planner, Derek Jennejohn, Lead Senior Engineer, Parks, Planning and Environment Department That the MVRD Board: a) adopt an ambient air quality objective for sulphur dioxide of 5 parts per billion for

an annual average to be used for air quality reporting, and to be considered in air management decisions; and

b) adopt an ambient air quality objective for sulphur dioxide of 70 parts per billionfor a 1-hour average to be used for air quality reporting and episode management, to be considered in air management decisions, and to replace the ambient air quality objective for sulphur dioxide of 48 parts per billion for a 24-hour average.

5.4 2015 Lower Fraser Valley Air Emissions: Regional Trends and Policy Implications Designated Speakers: Francis Ries, Senior Project Engineer, Derek Jennejohn, Lead Senior Engineer, Parks, Planning and Environment Department That the MVRD Board receive for information the report, dated October 10, 2017, titled “2015 Lower Fraser Valley Air Emissions: Regional Trends and Policy Implications”.

5.5 Burns Bog Ecological Conservancy Area: Update on Bog Restoration and Carbon Sequestration Research Designated Speaker: Robyn Worcester, Natural Resource Management Specialist, Regional Parks-West, Conor Reynolds, Program Manager, Air Quality and Climate Change Policy, Parks, Planning and Environment Department That the MVRD Board receive for information the report titled “Burns Bog Ecological Conservancy Area: Update on Bog Restoration and Carbon Sequestration Research” dated September 25, 2017.

Climate Action Committee - Page 2

Climate Action Committee Regular Agenda November 1, 2017

Agenda of 3

5.6 2017 Emotive Electric Vehicle Campaign Designated Speakers: Eve Hou, Air Quality Planner, Brendon James, Special Events Assistant, Parks, Planning and Environment Department That the MVRD Board receive for information the report titled “2017 Emotive Electric Vehicle Campaign” dated October 13, 2017.

5.7 Manager’s Report Designated Speaker: Roger Quan, Director, Air Quality and Climate Change Parks, Planning and Environment Department That the Climate Action Committee receive for information the report dated October 5, 2017, titled “Manager’s Report”.

6. INFORMATION ITEMS

6.1 Zero-Emission Vehicle (ZEV) Strategy – Correspondence dated October 3, 2017 fromThe Honourable Marc Garneau, Minister of Transport, addressed to His Worship Greg Moore, Chair, Metro Vancouver Board.

7. OTHER BUSINESS

8. BUSINESS ARISING FROM DELEGATIONS

9. RESOLUTION TO CLOSE MEETINGNote: The Committee must state by resolution the basis under section 90 of the CommunityCharter on which the meeting is being closed. If a member wishes to add an item, the basismust be included below.

That the Climate Action Committee close its regular meeting scheduled for November 1, 2017pursuant to the Community Charter provisions, Section 90 (1) <(i)> as follows:

90 (1) A part of the meeting may be closed to the public if the subject matter being considered relates to or is one or more of the following: (i) the receipt of advice that is subject to solicitor-client privilege,

including communications necessary for that purpose;

10. ADJOURNMENT/CONCLUSIONThat the Climate Action Committee adjourn/conclude its regular meeting of November 1,2017.

Membership: Corrigan, Derek (C) – Burnaby Reimer, Andrea (VC) – Vancouver Buhr, Karl – Lions Bay Dupont, Laura – Port Coquitlam

Gill, Tom – Surrey Harris, Maria – Electoral Area A Jackson, Lois – Delta Masse, Robert – Maple Ridge

Steves, Harold – Richmond Storteboom, Rudy – Langley City Villeneuve, Judy – Surrey Williams, Bryce – Tsawwassen

Climate Action Committee - Page 3

Minutes of the Regular Meeting of the MVRD Climate Action Committee held on Wednesday, October 4, 2017 Page 1 of 6

METRO VANCOUVER REGIONAL DISTRICT CLIMATE ACTION COMMITTEE

Minutes of the Regular Meeting of the Metro Vancouver Regional District (MVRD) Climate Action Committee held at 1:04 p.m. on Wednesday, October 4, 2017 in the 2nd Floor Boardroom, 4330 Kingsway, Burnaby, British Columbia. MEMBERS PRESENT: Chair, Mayor Derek Corrigan, Burnaby Vice Chair, Councillor Andrea Reimer, Vancouver Mayor Karl Buhr, Lions Bay Councillor Laura Dupont, Port Coquitlam Councillor Tom Gill, Surrey Director Maria Harris, Electoral Area A Councillor Robert Masse, Maple Ridge (arrived at 1:21 p.m.; departed at 3:25 p.m.) Councillor Harold Steves, Richmond Councillor Rudy Storteboom, Langley City Councillor Judy Villeneuve, Surrey Chief Bryce Williams, Tsawwassen (arrived at 1:15 p.m.; departed at 3:30 p.m.) MEMBERS ABSENT: Mayor Lois Jackson, Delta STAFF PRESENT: Roger Quan, Air Quality and Climate Change Director, Parks, Planning and Environment Carol Mason, Chief Administrative Officer Genevieve Lanz, Assistant to Regional Committees, Board and Information Services 1. ADOPTION OF THE AGENDA

1.1 October 4, 2017 Regular Meeting Agenda It was MOVED and SECONDED That the Climate Action Committee: a) amend the agenda for its regular meeting scheduled for October 4, 2017 by

adding the following on-table replacement pages: i) Item 5.1 pages 4 of 6 through 6 of 6 of the report; ii) Item 5.1 attachment 1 “Climate Action Committee – Page 17”; iii) Item 5.2 attachment 2 “Climate Action Committee – Page 31”; and

b) adopt the agenda as amended. CARRIED

2.1



2. ADOPTION OF THE MINUTES

2.1 September 20, 2017 Regular Meeting Minutes It was MOVED and SECONDED That the Climate Action Committee adopt the minutes of its regular meeting held September 20, 2017 as circulated.

CARRIED 3. DELEGATIONS

3.1 Dale Littlejohn, Executive Director, Community Energy Association (CEA) Dale Littlejohn, Executive Director, Community Energy Association (CEA) provided a presentation on expected trends across local governments in British Columbia for climate action plans, Community Energy Association public and private sector members, and potential opportunities for green initiative funding by the federal and provincial governments.

1:15 p.m. Chief Williams arrived at the meeting. Presentation material titled “CEA Member Presentation 2017” is retained with the October 4, 2017 Climate Action Committee agenda.

4. INVITED PRESENTATIONS

4.1 Michael Brauer, Professor, Faculty of Medicine, School of Population and Public Health, UBC Michael Brauer, Professor, Faculty of Medicine, School of Population and Public Health, University of British Columbia (UBC), provided members with a presentation on the health impacts, methodology and measurement of residential wood smoke within the region.

1:21 p.m. Councillor Masse arrived at the meeting. In response to questions, Committee members were informed about the differentiation between wood smoke from residential wood burning devices and forest fires and the chemical composition of wood smoke pollution. Presentation material titled “Health Impacts of Residential Wood Smoke” is retained with the October 4, 2017 Climate Action Committee agenda.



5. REPORTS FROM COMMITTEE OR STAFF

5.1 2018 Budget and Annual Work Plans – Air Quality Report dated September 28, 2017 from Roger Quan, Director, Air Quality and Climate Change, Parks, Planning and Environment and Ray Robb, Division Manager, Environmental Regulation and Enforcement, Legal and Legislative Services, presenting the 2018 Air Quality Budget and Annual Work Plans for consideration by the Climate Action Committee. Members were provided with a presentation on Metro Vancouver’s Centralized Support Program. In response to questions, members were informed of cost allocation methodology. Members were also provided with a presentation on the 2018 Budget and Annual Work Plan related to Item 5.1, and the 2018-2022 Budget and Financial Plan related to Item 5.2. Members inquired on the following: • additions to the reserve and whether there was a Board Policy on the use of

reserve funds • odour management and air quality permitting process • public consultation coordinated by External Relations staff • implications of declining revenue from decreased emissions by permitted and

regulated sources

The following material is retained with the October 4, 2017 Climate Action Committee agenda: • on table replacement pages for Item 5.1 report pages 4 of 6 through 6 of 6,

Attachment 1 “Climate Action Committee - Page 17” and Item 5.2 Attachment 2 “Climate Action Committee – page 31.

• on table material titled “Metro Vancouver Districts Centralized Support Program Summary 2018 Budget Review 2018-2022 Financial Plan”.

• presentation material titled “Centralized Support”. • presentation material titled “2018-2022 Budget and Financial Plan – Metro

Vancouver Regional District – Air Quality”.

It was MOVED and SECONDED That the Climate Action Committee endorse the 2018 Budget and Annual Work Plans associated with the Air Quality function as presented in the report “2018 Budget and Annual Work Plans – Air Quality” dated September 28, 2017 and forward them to the Board Budget Workshop on October 20, 2017 for consideration.

CARRIED



5.2 2018 - 2022 Financial Plan – Air Quality Report dated September 28, 2017 from Roger Quan, Director, Air Quality and Climate Change, Parks, Planning and Environment and Ray Robb, Division Manager, Environmental Regulation and Enforcement, Legal and Legislative Services, presenting the 2018-2022 Air Quality Financial Plan for consideration by the Climate Action Committee. It was MOVED and SECONDED That the Climate Action Committee endorse the 2018 - 2022 Air Quality Financial Plan as presented in the report “2018 - 2022 Financial Plan – Air Quality” dated September 28, 2017 and forward it to the Board Budget Workshop on October 20, 2017 for consideration.

CARRIED

5.3 Consultation on a Residential Wood Smoke Regulation for Metro Vancouver Report dated September 6, 2017 from Julie Saxton, Acting Program Manager, Bylaw and Regulation Development, Parks, Planning and Environment, providing the Climate Action Committee with information on residential wood smoke regulation in Metro Vancouver. Members were provided with a presentation on consultation on Metro Vancouver’s residential wood smoke regulation. Members offered comments on the cost associated with wood burning device registration and the impact this could have on household affordability. In response to questions, members were informed on potential timelines of device registration implementation, associated fees, and impact on households that rely on wood burning devices for heating.

3:25 p.m. Councillor Masse departed the meeting. Presentation material titled “Managing Residential Wood Smoke – Consultation on a Residential Wood Smoke Regulation” is retained with the October 4, 2017 Climate Action Committee agenda. It was MOVED and SECONDED That the MVRD Board: a) Receive for information the report titled “Consultation on a Residential Wood

Smoke Regulation for Metro Vancouver”, dated September 6, 2017; and b) Direct staff to proceed with consultation on the proposed approach to

regulating indoor residential wood burning, based on the bylaw development consultation paper attached to the report titled “Consultation on a Residential Wood Smoke Regulation for Metro Vancouver”, dated September 6, 2017.

CARRIED



Discussion ensued on the feasibility of an amendment to the provincial Building Code to eliminate wood burning devices in new building construction.

It was MOVED and SECONDED That the Climate Action Committee direct staff to report back on the advisability and feasibility of a provincial building code amendment to eliminate wood burning appliances from new building construction.

CARRIED

3:30 p.m. Chief Williams departed the meeting. 5.4 Regional Land Cover Classification

Josephine Clark, Regional Planner, Parks, Planning and Environment updated members on regional land cover classification, GIS LiDAR and hybrid technology, and landscape indicators of ecosystem health, focussing on riparian zones and watersheds. Presentation material titled “Land Cover Classification – New Regional High-Resolution Land Cover Classification” is retained with the October 4, 2017 Climate Action Committee agenda. It was MOVED and SECONDED That the Climate Action Committee receive for information the October 4, 2017 presentation from Josephine Clark regarding Land Cover Classification – New Regional High-Resolution Land Cover Classification, as presented at its October 4, 2017 meeting.

CARRIED

5.5 Manager’s Report Report dated September 29, 2017 from Roger Quan, Director, Air Quality and Climate Change, Parks, Planning and Environment, providing information on the Climate Action Committee 2017 Work Plan, Local Government Electric Vehicle Forum, and UBCM Electric Vehicle (EV) Study Tour. It was MOVED and SECONDED That the Climate Action Committee receive for information the report dated September 29, 2017, titled “Manager’s Report”.

CARRIED 6. INFORMATION ITEMS

No items presented. 7. OTHER BUSINESS

No items presented.



8. BUSINESS ARISING FROM DELEGATIONSNo items presented.

9. RESOLUTION TO CLOSE MEETINGNo items presented.

10. ADJOURNMENT/CONCLUSION

It was MOVED and SECONDEDThat the Climate Action Committee conclude its regular meeting of October 4, 2017.

CARRIED (Time: 3:45 p.m.)

____________________________ ____________________________ Genevieve Lanz, Derek Corrigan, Chair Assistant to Regional Committees

23456698 FINAL


To: Climate Action Committee

From: Mia Edbrooke, Senior Policy Analyst Julie Saxton, Acting Program Manager, Bylaw and Regulation Development Parks, Planning and Environment Department

Date: October 25, 2017 Meeting Date: November 1, 2017

Subject: Consultation on the Development of an Expanded Regulatory Approach to Managing Odour in Metro Vancouver

RECOMMENDATION That the MVRD Board: a) receive for information the report titled “Consultation on the Development of an Expanded

Regulatory Approach to Managing Odour in Metro Vancouver” dated October 25, 2017; and b) direct staff to initiate consultation on potential options to enhance the management of emissions

of odorous air contaminants, based on the discussion paper attached to the report titled “Consultation on the Development of an Expanded Regulatory Approach to Managing Odour in Metro Vancouver” dated October 25, 2017.

PURPOSE This report seeks Metro Vancouver Regional District (MVRD) Board approval to initiate consultation with key stakeholders about potential options to enhance the management of emissions of odorous air contaminants in Metro Vancouver.

BACKGROUND In recent years, Metro Vancouver has received a growing number of complaints from the public about the impacts of emissions of odorous air contaminants from a variety of sources. The potential impacts of odorous air contaminants range from nuisance and disturbance in residential neighbourhoods to health concerns when present at elevated concentrations. The MVRD Board adopted the Integrated Air Quality and Greenhouse Gas Management Plan (IAQGGMP) in October 2011. Action 1.2.4 in the IAQGGMP directs staff to “Develop and implement an odour management program including an odour management regulation that addresses key sources of odorous emissions, and effective complaint management and communications processes”. The Climate Action Committee’s work plan for 2017 directs staff to initiate consultation on proposed regulatory mechanisms to reduce the discharge of odorous air contaminants.

This report seeks Board approval to initiate consultation with key stakeholders about enhancing Metro Vancouver’s existing framework for managing the discharge of odorous air contaminants.

EMISSIONS OF ODOROUS AIR CONTAMINANTS Impacts of Odorous Air Contaminants Odour is a property of a substance or mixture of substances. The human nose can detect odorous air contaminants even when present at very low concentrations. Emissions of odorous air contaminants can interfere with many aspects of daily life, especially if the odour is frequent or persistent.

5.2


Consultation on the Development of an Expanded Regulatory Approach to Managing Odour in Metro Vancouver Climate Action Committee Regular Meeting Date: November 1, 2017

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Metro Vancouver receives more complaints about odour than any other type of air emission. Between 2011 and 2015, Metro Vancouver received up to 1,700 odour complaints per year, which accounted for approximately 80% of all air quality complaints. This figure rose to 3,800 odour complaints in 2016 and at present 2,800 odour complaints have been received between January 1 and October 1, 2017, accounting for 94% of all air quality complaints.

In a letter sent by Vancouver Coastal Health Authority to the City of Richmond in November 2016 about odour concerns related to a compost processing facility in that municipality, it was noted that health symptoms such as nausea, coughing or difficulty breathing, and burning eyes, headache and vomiting are consistent with the impacts of unpleasant odours from composting reported in the published environmental health literature. The letter goes on to indicate that although exposure to levels of some odorous air contaminants, from composting, that give rise to detectable odour may not result in long term harm, offensive odour affected the quality of life and well-being, and caused physical discomfort for residents in Richmond, a situation that was considered unacceptable.

In February 2017, Alberta Health released a report summarizing over 500 peer-reviewed epidemiology and experimental studies assessing odour and health outcomes in humans. The physiological responses reported in scientific papers include watering eyes, headaches, nausea, vomiting, loss of appetite, upset stomach, and throat irritation. Sleeplessness, stress and anxiety are also reported effects and if experienced for prolonged periods, can result in chronic health impacts.

In addition to these effects, residents are sometimes unable to enjoy their own property and outdoor activities, such as gardening and barbeques, and report having to close their windows and doors during hot weather.

Metro Vancouver’s Odour Management Program Managing odour resulting from emissions of odorous air contaminants is a high priority air quality issue. Concerns about odour issues have been raised during permit application and amendment processes, emission regulation and bylaw development, in the course of site inspections, and through public complaints.

Emissions of odorous air contaminants vary with the type of facility. For example, the main odorous substance from a fiberglass operation is likely to be styrene. In contrast, some facilities have more variable feedstocks and processes and generate more complex mixtures of odorous substances. Organics processing facilities emit a wide range of odorous air contaminants that can be detected by the human nose at very low concentrations.

MVRD uses substantial regulatory resources to respond and attempt to resolve complaints about odour. Metro Vancouver staff undertake assessments to determine the probable source of emissions of odorous air contaminants based on descriptions from complainants, meteorological data, and on-site observations. Officers also work with facilities identified as the probable source to determine and address the causes of impacts on communities. A diverse range of businesses and industries including food and animal feed processing facilities, organic waste management facilities, restaurants, petroleum refineries and processing facilities, and agricultural activities have been identified at various times as probable sources of emissions of odorous air contaminants. Metro Vancouver may issue air quality permits to facilities linked with recurring odour complaints. The permits can include more stringent operating standards and requirements for a progressive odour management plan. Facilities can also be required to conduct ongoing monitoring or analysis.



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Methods to Measure Odour Metro Vancouver regulates the discharge of all air contaminants, including odorous air contaminants, under Greater Vancouver Regional District (GVRD) Air Quality Management Bylaw No. 1082, 2008 (Bylaw 1082). Under the Bylaw, air pollution is defined as occurring when air contaminants are present in the environment in a way that substantially alters or impairs the usefulness of the environment. Bylaw 1082 prohibits any person from discharging, or allowing or causing the discharge of any air contaminant so as to cause pollution.

It can be a challenge to measure odorous air contaminants to determine air quality impacts since significant negative effects from odour can be associated with very low levels of odorous air contaminants; however, effective measurement techniques have been developed and are applied in other jurisdictions. Methods widely employed for determining levels of odorous air contaminants include:

• Dynamic olfactometry, a sensory technique which employs a standardized method to analyzeodour samples using an odour panel consisting of a group of trained odour assessors to produce results expressed in odour units; and

• Chemical analysis conducted in the field or in the laboratory on samples collected in the fieldto measure concentrations of individual odorous air contaminants.

Techniques used to measure odorous air contaminants were described at the Climate Action Committee meeting on June 7, 2017 in a report titled “Odour Management and Measurement in Metro Vancouver”, dated May 25, 2017, and by invited speaker Mr. Anton Philip van Harreveld, international odour expert and founder of Odournet, in a presentation about the science and process of regulating odorous emissions in other jurisdictions. The regional context, including Metro Vancouver’s authority to regulate the discharge of all air contaminants and the challenges of odour control through permitting in Metro Vancouver were also described at this meeting.

Metro Vancouver’s approach to managing “conventional” air contaminants within permits and regulations is predicated on setting emission limits (e.g., mass concentration, mass emission, flow rate) and establishing monitoring and reporting requirements to demonstrate compliance with these limits. Staff are of the view that the same approach should be applied to regulating emissions of odorous air contaminants, a view supported in the information presented by Mr. van Harreveld, who emphasized that odour behaves like any other air contaminant and can be regulated in the same way.

PROPOSED ODOUR MANAGEMENT STRATEGY Odour Management Framework The current tools applied for managing and regulating emissions of odorous air contaminants in Metro Vancouver are described in an Odour Management Framework (Attachment 1), which outlines regulatory and non-regulatory approaches to odour management. Discussion between staff from Metro Vancouver and the BC Ministry of Environment and Climate Change Strategy, led to the development of the attached Framework. Both Metro Vancouver and BC Ministry of Environment and Climate Change Strategy recognize that although different approaches may be required within Metro Vancouver compared to the rest of BC, a common set of guiding principles promotes consistency in the approach to managing odorous air contaminants and reducing impacts on communities.



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The key principles that underpin the proposed odour management framework are: • Promote sustainability by addressing economic, environmental and social considerations;• Emphasize prevention and control through best management practices and continuous

improvement;• Ensure accountability by seeking input from communities, business and government; and• Ensure that the costs associated with minimizing the impacts of emissions of odorous air

contaminants are covered by those parties responsible for the emissions, while recognizingeffective emissions reductions measures through incentive-based regulation.

The framework takes an approach that is consistent with and draws upon successful elements in Metro Vancouver’s approach to managing other conventional air contaminants. The mechanisms that are described in the odour management framework encompass regulatory and non-regulatory tools including:

• Limiting discharges of odorous air contaminants from sources through permits andregulations;

• Methods for assessing and measuring emissions of odorous air contaminants;• Methods for defining the quantity and nature of odorous air contaminants in the ambient air

(fence line, community), based on the results of emissions assessments;• Systematic complaint response mechanisms;• Using guidelines documents, developed by Metro Vancouver or adapted from other

jurisdictions; and• Community relations and outreach activities.

The framework describes regional processes for maintaining and improving ambient air quality from the perspective of odour management, however, these current odour management approaches have not fully addressed odour issues experienced in some parts of the region.

Potential Options for Improving Odour Management A review of current odour management practices has identified opportunities to enhance the suite of tools available to comprehensively address the diverse range of sources of odorous air contaminants that occur in the Metro Vancouver region. A discussion paper (Attachment 2) has been developed in which potential options are presented for consideration and feedback by stakeholders. These options fall into several categories:

• Outcome-based criteria, that specify conditions that must be achieved to remain incompliance with a permit or regulation;

• Performance-based criteria, that specify emissions limits required to remain in compliancewith a permit or regulation;

• Technology requirements, that specify required levels of odour treatment controls or bestmanagement practices for new or existing facilities;

• Economic instruments, that provide incentives for reducing emissions and allowadministrative costs to be recovered from sources of odorous air contaminants; and

• Bylaw changes that would clarify existing regulatory provisions for managing emissions ofodorous air contaminants.

PROPOSED CONSULTATION PROGRAM Metro Vancouver staff seek to initiate discussions with key stakeholders to refine odour management options in the Metro Vancouver region. Staff propose to conduct targeted consultation between



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December 2017 and February 2018 with the objective of receiving feedback on the proposed odour management options that could be integrated into an expanded Odour Management Framework.

During the proposed consultation, small group meetings are planned to be held with local municipalities and representatives from key stakeholder groups including permitted facilities and facilities conducting business activities that can result in the discharge of odorous air contaminants, as well as other interested parties. The proposed consultation process will include an informational webinar and presentations to business associations and the public. Metro Vancouver staff will also continue discussions with staff from BC Ministry of Environment and Climate Change Strategy.

Staff intend to present a summary of the feedback from this phase of consultation in mid-2018, along with an updated Odour Management Framework and any necessary proposed amendments to existing bylaws for the MVRD Board’s consideration. Further development of sector-specific regulations for Metro Vancouver arising as a result of updates to the Odour Management Framework would be presented through subsequent bylaw development processes.

ALTERNATIVES 1. That the MVRD Board:

a) receive for information the report titled “Consultation on the Development of an ExpandedRegulatory Approach to Managing Odour in Metro Vancouver” dated October 25, 2017; and

b) direct staff to initiate consultation on potential options to enhance the management ofemissions of odorous air contaminants, based on the discussion paper attached to the reporttitled “Consultation on the Development of an Expanded Regulatory Approach to ManagingOdour in Metro Vancouver” dated October 25, 2017.

2. That the MVRD Board receive for information the report titled “Consultation on the Developmentof an Expanded Regulatory Approach to Managing Odour in Metro Vancouver” dated October 25, 2017; and provide alternate direction to staff.

FINANCIAL IMPLICATIONS The resources needed for the proposed consultation program have been approved in the program budget for 2017 and requested for 2018. As noted in the 2018 Budget and Annual Work Plan, and 2018 – 2022 Financial Plan considered by the Committee at its October 4, 2017 meeting, new regulatory mechanisms will be designed to include recovery of the costs of developing and administering the regulations, as well as to provide incentives to improve emissions and impacts.

SUMMARY / CONCLUSION An expanded regulatory approach to the management of odorous air contaminants would offer mechanisms to achieve continuous improvement in air quality even as sources of odorous air contaminants such as the organic waste management facilities needed in response to the region’s successful food waste recycling programs, increase in number and size, and as the proximity of facilities discharging odorous air contaminants to residential areas increases due to growth and population densification in the region.

Staff are seeking approval to consult on the proposed expanded approach to odour management through a targeted consultation program with member jurisdictions and key stakeholders. Staff recommend Alternative 1, to initiate consultation on potential options to enhance the management of emissions of odorous air contaminants.



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Attachments (Orbit # 23617201) 1. Odour Management Framework: A Guide to Odour Management in Metro Vancouver.2. “Discussion Paper - Regulating Emissions of Odorous Air Contaminants”.

23394569


5.2 ATTACHMENT 1

October 25, 2017

Odour Management Framework: A Guide to Odour Management in

Metro Vancouver


Odour Management Framework A Guide to Odour Management in Metro Vancouver

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INTRODUCTION Metro Vancouver Regional District (Metro Vancouver) is responsible for managing air quality and regulating the discharge of air contaminants, including odorous air contaminants, in the region under authority delegated from the provincial government under the British Columbia (BC) Environmental Management Act. This document outlines an approach to managing odorous air contaminants that is consistent with and draws upon successful elements in Metro Vancouver’s existing approach to managing conventional air contaminants.

The purpose of the Odour Management Framework is to describe regional processes for maintaining and improving ambient air quality from the perspective of odour management, taking into consideration the unique conditions and requirements of the Metro Vancouver region. Information about different sources of odorous air contaminants, the potential impacts of odour on surrounding communities and the suite of tools Metro Vancouver uses to regulate and manage odorous air contaminants are included in this document. A range of approaches are used and no one approach will apply to all activities or industries.

MANAGING AIR QUALITY IN THE REGION Metro Vancouver develops and implements air quality plans, policies and regulations to protect public health and the environment. Key features of air quality management in Metro Vancouver are:

• Pollution prevention;• Continuous improvement;• Developing innovative solutions to address emerging issues;• Coordinating with other agencies to ensure effective approaches are implemented; and• Outreach and education about issues.

Actions are developed based on: emerging public health information; data from the comprehensive ambient air quality monitoring network; an inventory of emissions in the airshed which quantifies emission sources and trends; and ongoing review of practices implemented in other jurisdictions and an assessment of their effectiveness.

REGULATORY APPROACH Metro Vancouver has enacted bylaws and regulations which control air emissions and are designed to protect the environment and human health. Facilities and businesses may be authorized to discharge air contaminants through either site-specific permits or regulations that apply to groups of emission sources.

Metro Vancouver authorizes air emissions from various facilities through a permitting system. Permits may be issued to the largest sources of air contaminants, those with the potential for significant impacts, operations that are unique, or other facilities where authorizations are best handled in a site-specific manner. Currently, there are over 150 facilities in Metro Vancouver that operate under the requirements of an air quality permit.

In addition, the Metro Vancouver Board can adopt regulations to manage and control air emissions. Regulations can specify allowable emission levels, as well as monitoring and reporting requirements, and are generally applicable to groups of similar emission sources. This approach allows efficient and



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equitable regulation of a large number of sources of small to medium-sized facilities. Currently, thousands of lighter industrial facilities and businesses are dealt with through emission regulations; these sources facilities and businesses are authorized through an emission regulation if they comply with the requirements of the regulation, including registering with Metro Vancouver.

Metro Vancouver’s approach to regulating emissions of conventional air contaminants through permits is predicated on stipulating conditions related to air discharges including setting emission limits (e.g., contaminant concentration, mass emission, discharge flow rate) and establishing monitoring and reporting requirements to demonstrate compliance with these limits. Test results are available to the public through www.metrovancouver.org (search ‘permit test reports’). Results can be searched by company or municipality.

Metro Vancouver has established ambient air quality objectives1 for a number of conventional air contaminants, such as nitrogen dioxide and fine particulate matter, which are routinely measured in the region. Ambient air quality objectives establish acceptable levels of air quality in the community, and may be considered in setting emission limits in permits.

A similar approach, using some combination of emission limits at the source and ambient criteria at the receptor, can be applied to managing emissions of odorous air contaminants since these contaminants behave like any other air contaminant and can be regulated in the same way.

ODOUR IN METRO VANCOUVER Effects of Odour Emissions of odorous air contaminants can interfere with many aspects of daily life and may have adverse effects on the lives and well-being of people exposed to odorous air contaminants, particularly if the resulting smell is unpleasant, strong and detected often.

Emissions of odorous air contaminants can be complex mixtures of many different chemicals that the human nose can detect at very low concentrations. Even at low levels, at which an odour causes a nuisance, a number of physiological responses have been reported in scientific papers, including nausea, eye irritation, headaches, sleep problems and respiratory symptoms2. If an offensive odour is persistent, it can affect a person’s mood, anxiety and stress levels. In addition, residents are sometimes unable to enjoy their own property and outdoor activities, such as gardening, barbeques and use of outdoor playgrounds. Residents also report having to close their windows and doors during hot weather or being embarrassed when unpleasant odours occur when they are entertaining guests.

Sources of Odorous Air Contaminants Common sources of odorous air contaminants include solid and liquid waste management facilities, rendering plants, food and animal feed processing facilities, restaurants, petroleum refineries, manufacturing facilities, and agricultural activities. Odorous air contaminants can travel long distances, and the frequency and duration of the odour detected is influenced by weather conditions in the same way that weather influences the dispersion of conventional air contaminants.

1 http://www.metrovancouver.org/services/air-quality/AirQualityPublications/CurrentAmbientAirQualityObjectives.pdf 2 Government of Alberta. (2017). Odours and Human Health. Environmental Public Health Science Unit, Health Protection Branch, Public Health and Compliance Division, Alberta Health. Edmonton, Alberta.



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GUIDING PRINCIPLES To be effective, odour management must protect air quality while achieving a balance between community and business interests. The Odour Management Framework is built on the following guiding principles, which were developed through discussions between staff from Metro Vancouver and the BC Ministry of Environment and Climate Change Strategy.

• Promote livability and sustainabilityo Consider regional economic prosperity, social well-being, and environmental

stewardship.o Ensure policy and regulations support essential services, such as waste management

and disposal, and the diversion of organic waste and other recyclable materials.

• Emphasize prevention and controlo Minimize or mitigate impacts through best management practices and continuous

improvement.

• Encourage accountabilityo Involve communities, business and government representatives in exchanging

information about odour management practices.o Provide clarity for industry about requirements for managing emissions of odorous

air contaminants.o Encourage regular sharing of information with the public who live and work in the

Metro Vancouver region.

• Recover the costs of managing odour issueso Principles have been developed which guide the development of a system of fees in

connection with Metro Vancouver’s service of air quality management and airpollution control.

o A discharger pay approach is applied such that the costs associated with minimizingthe impacts of emissions of odorous air contaminants should be covered by theparties responsible for the emissions.

o Fees should be based on the quantity of contaminants discharged to provide anincentive to reduce discharges.

The following sections outline regulatory and non-regulatory approaches that can be combined to reduce emissions of odorous air contaminants in Metro Vancouver. Non-regulatory approaches, sometimes referred to as voluntary initiatives, are most effective if implemented proactively, and with participation by key stakeholders.

REGULATORY APPROACHES FOR ODOROUS AIR CONTAMINANTS Regulations As described above, emission regulations allow efficient and equitable regulation of a large number of sources of small to medium-sized facilities.

Emission regulations are currently in place for a number of sectors, such as gasoline distribution, automotive refinishing, boilers and heaters, and concrete batch plants. Metro Vancouver can develop new air quality emission regulations for industrial, commercial and institutional sources of emissions of odorous air contaminants.



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Permits Also described above, Metro Vancouver authorizes air emissions from various facilities through a permitting system.

Facilities with high odour potential may be issued a permit with stringent operating standards to manage emissions of odorous air contaminants, and requirements for a progressive odour management plan. Facilities with more complex emissions sources may be required to monitor odorous air emissions periodically or conduct dispersion modelling.

Assessment and Measurement Odour assessments are conducted to follow up on odour complaints, verify compliance with conditions outlined in a permit and to determine the potential impact from new and existing operations. Commonly applied methods for assessing odorous air contaminants include: field observations, chemical analysis, dynamic olfactometry, and dispersion modelling.

Substances with odorous properties each have unique odour detection threshold values3,4. The detection threshold value is the concentration (expressed as µg/m3 or parts per billion) of an odorous air contaminant when it is first detectable by the human nose. For example, hydrogen sulphide has a relatively low odour detection threshold value (0.4 ppb) compared to formaldehyde (500 ppb), and hence can be detected at lower concentrations. The odour threshold value for a mixture of various odorous air contaminants cannot be predicted accurately based on individual odour threshold values, since odorous air contaminants can react with each other, and in combination may be additive, unrecognizable, or mask other odorous air contaminants. In addition, odour detection thresholds are not available for all odorous air contaminants.

Odorous air contaminants can be detected by the human nose at very low concentrations, and sometimes at concentrations lower than the detection limit of analytical instruments. Odours are occasionally the result of emissions of a single odorous air contaminant, but more commonly are due to a unique combination of hundreds of different odorous substances. Sources that emit only a limited number of odorous air contaminants (e.g., styrene from a fiberglass manufacturing facility), can use chemical analysis as an effective assessment tool. However for some emission sources (e.g., organics processing facilities) it can be difficult to identify all of the individual odorous air contaminants in the complex mixture. As the complexity of a mixture increases and concentrations of individual odorous air contaminants within the mixture decrease, it becomes more difficult to fully characterize the mixture based on the concentration of specific odorous air contaminants.

A number of tools are available to determine the presence of odorous air contaminants. Metro Vancouver can require the use of any of the techniques described below.

3 Nagata Y. Odor measurement review. Tokyo (Japan): Office of Odor, Noise and Vibration, Environmental Management Bureau, Ministry of Environment; 2003. Measurement of odor threshold by triangle odor bag method; pp. 118–127. 4 Devos et al. 2010. Standardized Human Olfactory Thresholds



Page 5 of 8

Chemical Analysis: Gas chromatography coupled with mass spectrometry (GC-MS) is an example of a laboratory method commonly used to analyse organic chemicals, including those found in air emissions. This approach is appropriate for quantifying individual odorous air contaminants and uses standard protocols that are widely accepted. For mixtures with a high number of individual odorous air contaminants, GC-MS analysis can be expensive. In addition, the results do not give information about human perception.

Dynamic Olfactometry: Olfactometry is a sensory measurement that uses the human nose to measure the concentration of a mixture of compounds. Metro Vancouver uses the standard method EN 137255, which involves at least four trained panel members. An odour unit is the number of times that an odour sample must be diluted with odour-free air so that 50% of the panel can just detect the presence of the odour. For example, a sample of odorous air would be presented to a panel member at progressively decreasing dilution (increasing concentration); an odour concentration of 10 ou indicates that the sample was diluted 10 times before only 50% of the panel could detect the odour. An odour concentration of 1 ou indicates that the sample was at the threshold of detection6. This approach evaluates the mixture causing the odour, which is difficult to predict based on individual odorous air contaminants. One drawback with this method is that there are no commercial labs in BC currently offering this service; the nearest labs are in Ontario or the United States.

Field Observations: Metro Vancouver officers are sometimes able to respond immediately to complaints by conducting on-site observations. In this case, a sensory field test following an established protocol is the most appropriate approach. Field observations typically begin at the complainant’s location and odours are traced back to the source. If a specific facility is named, observations will usually be made upwind and downwind of the facility and other potential sources, and at the fence line of the suspect facility. Field observations provide immediate feedback to assess the relative level of odour present beyond the fence line, but the information is obtained in a relatively informal way. An additional limitation arises when complaints are made after the fact. It is also more difficult to evaluate the level of offensiveness using the collected information.

Dispersion Modelling: Dispersion modelling can be used to estimate concentrations of air contaminants or odour based on input data including emission rates (expressed in mass concentration or odour units), source characteristics, land use, topography and meteorological data. Ambient air contaminant concentrations at sensitive receptors can be predicted. Metro Vancouver requires air dispersion modelling for new and amended permits for facilities with a high potential to generate odorous air emissions. Dispersion models predict ambient odour concentrations for locations, typically maximum one-hour average concentrations. Although dispersion modelling provides useful information about the operation of a facility at the design stage and it can help assess the dispersion of emissions during operation, results of dispersion modelling may not fully represent the short-lived odour episodes associated with complex odours or account for unexpected localized events.

5 European Committee for Standardization (CEN) formed a technical committee which developed a testing standard entitled EN 13725: “Air Quality-Determination of Odour Concentration by Dynamic Olfactometry”. 6 Nicell J.A. (2009). Assessment and regulation of odour impacts. Atmospheric Environment. 43, 196-206.



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The selection of the most appropriate tool(s) depends on the purpose of the assessment. In many jurisdictions, odour impacts are measured using odour concentration or through the measurement of specific odorous air contaminants7. Some jurisdictions, such as the Bay Area Air Quality Management District in California, Japan and South Korea, assess odour by using both approaches, odour concentration and specific substances.

Complaint Response An effective mechanism through which emerging problems are identified is complaint analysis. Metro Vancouver has a complaint response system in place to help resolve issues. The public can record outdoor air quality and odour complaints with Metro Vancouver using the complaint line or an online web form. In dealing with odour complaints, officers follow a complaint response procedure, including a set of questions to describe the odour using the ‘FIDOL’ characteristics (frequency, intensity, duration, offensiveness (unpleasantness), and location) and the weather conditions. Generally, officers are not able to independently verify each odour complaint. Metro Vancouver may proceed with an on-site investigation depending on the number of complaints received, wind direction, staff availability, and whether the complaint is received while the issue is still occurring.

Metro Vancouver receives complaints that can help identify emerging issues or areas where additional tools are needed to address a problem. Metro Vancouver also shares anonymized complaint data with facilities linked to odour complaints, and works to determine how facilities can implement appropriate corrective measures.

NON-REGULATORY APPROACHES Guidance Documents Guidelines and Best Management Practices use evidence-based approaches to help reduce air emissions and achieve compliance with regulatory requirements. Guideline documents can address facility design, construction, operation, maintenance and cleaning, as well as emissions monitoring and assessment. For example, Metro Vancouver uses the BC Air Quality Dispersion Modelling Guideline (2015) to ensure that dispersion modelling is done appropriately and is consistent with accepted practices. Where appropriate, Metro Vancouver could develop guideline documents for a specific activity, or adopt guidelines from other jurisdictions.

Community Relations and Outreach Activities Community relations and outreach can include a wide variety of activities, such as ongoing communication and information exchange, which should be used proactively. Metro Vancouver has a public notification process through which information for new permit and major permit amendment applications is available to the public. Early communication by facilities discharging odorous air contaminants with nearby residents, as well as making results of ongoing monitoring data, inspections and test results available may be helpful in developing a shared understanding with residents.

Metro Vancouver works with local and provincial governments to ensure the approach to odour management is consistent with the principles applied in other jurisdictions.

7 RWDI Air Inc. (2015). Report to the Clean Air Strategic Alliance Odour Management Team Enforcement/Role of Regulation Task Group. Final Report. March 11, 2015.



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THE FUTURE FOR MANAGING ODOUR Considerations in managing odour include a number of factors such as the nature and complexity of the odorous air contaminants being emitted from a source, additional potential sources of odorous air contaminants in the vicinity, the feasibility of applying technology to reduce emissions, and the regulatory mechanism being used to control emissions. Several tools and approaches have been identified in this framework document, which can be applied individually or in combination to reduce the impacts of odour. It is anticipated that as new actions, solutions, tools and techniques are developed and become available to Metro Vancouver, their potential effectiveness will be assessed and they will be integrated into this framework.



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GLOSSARY This glossary provides explanations of terminology used in the Odour Management Framework and is not intended to reflect legal definitions.

Ambient Air: Outdoor air that is not confined and is public.

Dispersion Modelling: A modelled simulation of how air pollutants disperse in the ambient atmosphere, based on mathematical descriptions of atmospheric conditions, terrain, emissions, and other input data.

Gas chromatography mass spectrometry (GC-MS): An analytical method by which complex mixtures of chemicals may be separated, identified and quantified.

FIDOL: A basic methodology for assessing the effects of exposure to emissions of odorous air contaminants through describing the following characteristics: Frequency, Intensity, Duration, Offensive and Location.

Odour: The property, characteristics or the quality of a substance that stimulates the olfactory organ and the sense of smell.

Odour detection threshold: The concentration at which half of an odour panel can identify the presence of an odour or odorous air contaminant without characterizing the stimulus. This is usually assessed as an average for populations, because individual people have different sensitivities.

Odour recognition threshold: The concentration at which half of an odour panel can recognize the odour, such as the smell of ammonia or peppermint.

Odour unit: A unit that refers to the number of times a sample of an odorous air contaminant or mixture of odorous air contaminants must be diluted with fresh (uncontaminated) air, in order to reach the point where it is just detectable.

Olfactometry: The measurement of odour by using the human sense of smell.

Odour Panel: A team of panel members who participate in a series of scientifically controlled sensory tests.

Panel member: Assessor qualified to participate in scientifically controlled sensory tests.

Sensitive receptor: Any location at which routine or normal activities occurring at reasonably expected times could result in people experiencing adverse effects due to the discharge of air contaminants, including odorous air contaminants. Sensitive receptors with respect to odorous air contaminants could include but are not limited to schools, hospitals, residences and public parks.

Source emissions: Emission source to the atmosphere. Emissions from a point source (e.g. at the point of discharge such as a stack or vent) or a non-point source (e.g., agriculture, forestry, construction, city streets).


Discussion PaperRegulating Emissions of

Odorous Air Contaminants

5.2 ATTACHMENT 2


2 Discussion Paper on Regulating Emissions of Odorous Air Contaminants

PURPOSEMetro Vancouver receives more complaints about odorous air contaminants than any other type of air emission. The sources of the odours can be industrial, commercial, agricultural, residential or natural. Identifying industrial or commercial sources of emissions of odorous air contaminants and minimizing impacts on the public are priorities for Metro Vancouver.

This discussion paper provides information about different sources of odorous air contaminants, the potential impacts on surrounding communities, and proposed changes and additional tools that could be used to regulate discharges of air emissions which are odorous air contaminants.

This discussion paper may be of interest to:

• Businesses that discharge odorous air contaminants to theair in Metro Vancouver, as well as associations representingthese parties;

• Metro Vancouver air quality permit holders;

• Consultants that provide services related to ambientmonitoring, stack testing, air emission dispersion modellingand emission control; and

• Other interested parties affected by the regulatory proposalor by air quality in the Metro Vancouver region.

INTRODUCTION Metro Vancouver Regional District (Metro Vancouver) is responsible for managing air quality and regulating the discharge of air contaminants in the region under authority delegated from the provincial government under the British Columbia (BC) Environmental Management Act. Metro Vancouver is committed to protecting the environment and managing the discharge of air contaminants, including odorous air contaminants.

In recent years, Metro Vancouver has received a growing number of odour complaints from the public. The potential impacts of emissions of odorous air contaminants range from nuisance and disturbance in residential neighbourhoods, to a health concern or hazard when present at elevated concentrations. For this reason, Metro Vancouver is considering enhancing its strategy for managing the discharge of odorous air contaminants. This discussion paper describes potential options for regulating emissions of odorous air contaminants to support discussions with key stakeholders.


Discussion Paper on Regulating Emissions of Odorous Air Contaminants 3

IDENTIFYING THE PROBLEM

1 Government of Alberta. (2017). Odours and Human Health. Environmental Public Health Science Unit, Health Protection Branch, Public Health and Compliance Division, Alberta Health. Edmonton, Alberta.

Effects of Odour

Emissions of odorous air contaminants can interfere with many aspects of daily life, particularly if an unpleasant smell is strong and detected often. The characteristics that are considered when assessing the potential impact of an odour are frequency, intensity, duration, offensiveness (unpleasantness), and location, sometimes described by the acronym FIDOL. Different combinations of these factors may have adverse effects on the lives and well-being of people exposed to odorous air contaminants.

Emissions of odorous air contaminants can be complex mixtures of many different chemicals that the human nose can detect at very low concentrations. Even at low levels at which an odour causes a nuisance, a number of physiological responses have been reported in scientific papers, including nausea, eye irritation, headaches, sleep problems and respiratory symptoms1. If an offensive odour is persistent, it can affect a person’s mood, anxiety and stress levels. In addition, residents are sometimes unable to enjoy their own property and outdoor activities, such as gardening, barbeques and use of outdoor playgrounds. Residents also report having to close their windows and doors during hot weather or being embarrassed when unpleasant odours occur when they are entertaining guests.

Sources of Odorous Air Contaminants

Odours contribute to air quality concerns in the Metro Vancouver region. Common sources of odorous air contaminants include solid and liquid waste management facilities, rendering plants, food and animal feed processing facilities, restaurants, petroleum refineries, manufacturing facilities, and agricultural activities. Emissions of odorous air contaminants can travel long distances, with the frequency and duration of odour detection affected by weather conditions.

In recent years, the prioritization of the diversion of organic waste away from landfills to organics processing facilities has led to increased concerns about odour management. Materials being diverted include waste from landscaping and food waste. The processing of organic waste can provide beneficial results, by breaking down waste into renewable products through composting, or using waste for bioenergy production through anaerobic digestion. However, there are many steps in composting processes that can potentially release odorous air contaminants. Best management practices, emission control works, enclosures and proactive strategies may all be implemented during the design and construction of composting facilities to reduce the generation of odorous air contaminants. For existing facilities, improvements to operating procedures, and/or the introduction of pollution prevention and control works, may all assist in reducing the impacts of emissions of odorous air contaminants.

Terminology

Odour management is a complex issue. It is important to have a common understanding of the tools and approaches that can be used to assess, mitigate and manage odours in the region. To support a common understanding of the terminology used in this document in relation to odour measurement, the following descriptions are provided:

Olfactometry is the measurement of odour by using the human sense of smell.

Odour unit is a unit that refers to the number of times a sample of odorous air contaminant or mixture of odorous air contaminants must be diluted with fresh (uncontaminated) air, in order to reach the point where it is just detectable.

Sensitive receptor is any location at which routine or normal activities occurring at reasonably expected times could result in people experiencing adverse effects due to the discharge of air contaminants, including odorous air contaminants. Sensitive receptors with respect to odorous air contaminants could include but are not limited to schools, hospitals, residences and public parks.



WORKING WITHIN THE LEGISLATION

How does Metro Vancouver Regulate Odour?

The Greater Vancouver Regional District (GVRD) Air Quality Management Bylaw No. 1082, 2008, as amended (Bylaw 1082) prohibits the discharge of air contaminants by an industry, trade or business unless the discharge is conducted in accordance with a Metro Vancouver emission regulation or air quality permit. The definition of an air contaminant includes a substance that may cause material physical discomfort, injure a person’s health or interfere with the normal conduct of business. The release of air contaminants, including odorous air contaminants, has the potential to cause air pollution if present in a way that substantially alters or impairs the usefulness of the environment. Bylaw 1082 prohibits any person from discharging, or allowing or causing the discharge of any air contaminant so as to cause pollution.

Facilities operated by Metro Vancouver and member jurisdictions, including wastewater treatment plants and solid waste facilities, are authorized to emit odorous and other air contaminants under solid waste and liquid waste management plans approved and administered by the province. Metro Vancouver has exempted these facilities from the requirement to obtain an air permit but not from the prohibition against causing pollution. While Metro Vancouver does not regulate these facilities directly, staff work with other orders of government to develop approaches to managing odour responsibly within the region.

Metro Vancouver works proactively with individual industries, trades or business, through the air permitting process, to set limits on the discharge of air contaminants, establish required emissions control works, technologies or best practices, set performance measures, and/or establish monitoring, reporting or modelling requirements. Permits may also address operating procedures.

Currently, Metro Vancouver has only one air quality regulation, the GVRD Automotive Refinishing Emission Regulation Bylaw No. 1086, 2008, made under Bylaw 1082, which directly addresses odorous air contaminants. That regulation provides that operators “…must not discharge air contaminants that....cause odour beyond the premises on which the automotive refinishing is carried out so as to cause a nuisance.” Beyond this, Metro Vancouver has not yet established regulations to address specific odorous air contaminants that are used across various businesses or trades, nor to address specific odorous air contaminants common to particular business sectors. Metro Vancouver’s efforts have been focused on securing permits to address the emissions of the most significant emitters.

Metro Vancouver also expends substantial resources with officers responding to odour complaints by trying to identify the probable source of emissions based on the complainant’s description, meteorological data and on-site observations when appropriate. Officers work with the facilities determined as being the probable source to identify and address the cause of impacts on the community. The tools used by Metro Vancouver to manage odour are described in Metro Vancouver’s Odour Management Framework.

Finally, in cases where it is clear that the odorous properties of a facility’s air emissions are causing air pollution, or health or other material adverse effects, Metro Vancouver is authorized to take action, whether the facility is currently permitted or not. Possible enforcement alternatives may include the issuance of pollution prevention or abatement orders, or prosecution in respect of breaches of bylaws, including a release of air contaminants causing pollution.

Other Jurisdictions

BC does not have a province-wide regulation specific to odour management. Rather, odorous air contaminants may be regulated under various regulations and codes, or under site-specific authorizations such as permits. The province manages odours from composting facilities outside Metro Vancouver’s boundaries under the BC Organic Matter Recycling Regulation (OMRR). Guideline documents supplement the regulation and are specific to the siting and operation of composting facilities, including the development of odour management plans. The BC Ministry of Environment and Climate Change Strategy is currently reviewing the OMRR to examine opportunities to strengthen the regulation, with consideration to continued protection of human health and the environment.

In different jurisdictions across Canada and internationally, odour issues are addressed through a range of mechanisms, including odour regulations, policies, and guidance documents. Ontario and the cities of Montreal and Boucherville in Quebec use odour concentration guidelines measured in odour units. Manitoba and Saskatchewan use odour units to assess potential impacts from new facilities during the design phase, but not as an enforcement tool to verify compliance when the facility is operating. Most provinces define air contaminant in their legislation, and some provinces explicitly include odour within the definition (Ontario, Quebec, Prince Edward Island, Newfoundland and Labrador). In addition, some BC local governments have odour nuisance laws in place (e.g. City of Courtenay, District of Mission, and West Vancouver).

Other odour management frameworks from across the United States, Europe, Australia, New Zealand, Japan and South Korea describe the approaches taken to address odour management in those jurisdictions.



GUIDING PRINCIPLESThe key objective of Metro Vancouver’s Odour Management Framework is to provide an overarching policy structure for managing odorous air contaminants to address pollution or other injurious effects identified through public complaints, site inspections and compliance assessments.

This discussion paper draws upon the guiding principles from the Odour Management Framework:

• Promote sustainability by addressing economic,environmental and social considerations.

• Emphasize prevention and control through bestmanagement practices and continuous improvement.

• Encourage accountability by seeking input fromcommunities, business and government.

• Ensure that the costs associated with minimizing the impactsof emissions of odorous air contaminants are coveredby those parties responsible for the emissions, whilerecognizing effective emissions reductions measures throughincentive-based regulation.

Metro Vancouver’s Odour Management Framework

The Odour Management Framework outlines tools that are available for reducing impacts of odorous air contaminants in the Metro Vancouver region. It takes an approach that is consistent with and draws upon successful elements of Metro Vancouver’s approach to managing other air contaminants.

A number of regulatory and non-regulatory approaches are identified in the framework:

• Methods for assessing and measuring emissions of odorousair contaminants;

• Limits on the quantity and nature of odorous aircontaminants discharged and in the ambient air (fence line,community), based on the results of emissions assessments;

• Systematic complaint response mechanisms;

• Use of guidelines, developed by Metro Vancouver oradapted from other jurisdictions; and

• Continued community relations and outreach activities.

In the framework, regulatory measures are supported by non-regulatory approaches, sometimes referred to as voluntary initiatives, to help achieve effective reductions of emissions of odorous air contaminants. Having a suite of tools and a range of approaches maximizes flexibility for both Metro Vancouver and permitted facilities in managing emissions of odorous air contaminants.

The policy tools described in the Odour Management Framework represent current practices for managing odorous air contaminants in the Metro Vancouver region. However, gaps have been identified in current odour management practices. Additional tools are needed to enhance Metro Vancouver’s existing odorous air contaminant management program and to ensure that these contaminants are managed responsibly and in a way that respects community values and recognizes the value business provides in the region.



POTENTIAL CHANGESMetro Vancouver is seeking preliminary input from stakeholders representing different perspectives on potential regulatory options to improve the management of odorous air contaminants. These options are not mutually exclusive, meaning one or more could be implemented. The options include the establishment of:

• Outcome-based criteria, that specify outcomes or conditionsin the receiving environment that must be achieved to remainin compliance with a permit or regulation;

• Performance-based criteria, that stipulate specific aircontaminant emissions limits at the source required to remainin compliance with a permit or regulation;

• Technology requirements, that specify required equipmentor control works for odour treatment, or best managementpractices for new or existing facilities;

• Economic instruments, that provide incentives for reducingemissions and allow administrative costs to be recoveredfrom sources of odorous air contaminants; and

• Bylaw amendments, to enhance and support the regulatoryframework for managing emissions of odorous aircontaminants so as to avoid air pollution.

Outcome-based Criteria

An outcome-based approach specifies what overall outcome, e.g. what ambient odour concentration limit must be achieved, measured at a specific location, for the total emissions to remain in compliance with a permit or regulation. This approach is not prescriptive about how outcomes should be realized and does not specify technology or equipment that could be used. It offers flexibility for facilities to choose the mitigation method or management practice that will achieve the outcome required.

Outcome-based Criteria in Practice

Facilities in Metro Vancouver that are linked to recurring odour complaints are often required to conduct dispersion modelling to estimate ambient odour concentrations at the facility’s fence line and in the community. Dispersion modelling predicts ambient odour concentrations, based on emissions levels, thereby allowing emission limits at the source to be set at a level that minimizes impacts.

Stipulating ambient concentration limits at the fence line could be a permit requirement, based on the results of dispersion modelling. For new facilities, source emission estimates would provide input data for dispersion modelling. On an ongoing basis, periodic source testing would be required, and additional modelling could be required if odour impacts in the community are observed.

This approach is used in Ontario, where the ambient odour concentration limit, generally 1 odour unit based on a 10-minute average concentration at the nearest sensitive receptor, is set through site-specific permits.

Potential changes under consideration include:

Metro Vancouver could establish measurable outcomes as a means of predicting and assessing the impacts of emissions of odorous air contaminants by setting:

• Ambient air quality criteria for odorous air contaminants,used to assess the effects of emissions based on eitherpredictive dispersion modelling during the design phase,odour monitoring during operation, or both. These criteriacould help evaluate different control technology options, andassist Metro Vancouver when dealing with complaints.

• Complaint criteria triggered by the number of publiccomplaints linked to facilities determined as the probablesource, using standard field observation protocols that definehow complaints are verified.

• Criteria for on-site field observations for facilities withhigh odour potential that have been linked to recurringcomplaints. Field observations could be triggered bymeteorological conditions or form part of routine inspectionactivities. Officers would assess facilities using standard fieldobservation protocols.



Performance-based Criteria

Odour impacts can be assessed by quantifying air emissions at the source. Metro Vancouver can set limits on the quantity and type of emissions, and establish the means to determine compliance with those limits, including monitoring and reporting. Emission limits may be included as conditions of a permit or in regulations for point sources (e.g. at the point of discharge, such as a stack or vent) to control the release of odorous air contaminants. Similar to outcome-based criteria, this approach is not prescriptive about how emission performance levels should be achieved, and offers flexibility for facilities to choose the control technology, mitigation method, management practice, or process modification that will achieve the performance level required.

Approaches used to set emissions performance levels include specifying a level that would be equivalent to the use of best available control technology, or as noted above, through an approach using ambient air quality outcomes and dispersion modelling. Compliance with performance criteria is normally determined through direct measurement of emissions levels using standard sampling methods, at defined intervals. A similar approach could be applied for odorous air contaminants.


• Set quantitative emission limits in air quality emissionspermits or new regulations, to minimize the impacts ofemissions of odorous air contaminants. Emission limits,applied in a permit or regulation, would inform the design ofnew facilities and be enforced during the operational phaseof the facility.

• Set quantitative emission limits on individual odorousair contaminants. Emission characterization studies maybe necessary to identify the types and concentrations ofodorous air contaminants present.

• When it is not practical or possible to characterize ormeasure emissions of individual odorous air contaminants,such as when an odorous air contaminant mixture is complex(i.e., arising from unique combinations of often hundreds ofdifferent odorous air contaminants), a feasible alternativeis to establish limits on odour concentration levels of thecombination of odorous air contaminant discharges (byreferencing a stated “odour unit” limit for the emissions) andto assess compliance with that quantitative limit using the“dynamic olfactometry” methodology.

The methodology outlined in European Standard EN 13725:2003 (“Determination of odour concentration by dynamic olfactometry”) is used by other jurisdictions including Ontario, the United Kingdom, the Netherlands and many other countries in the European Union. Odour units, as a unit of measure, are well suited for odorous air contaminants that present in combinations, where it may be difficult or expensive for industry to measure each component air contaminant. Regulating the resulting combination also recognizes the reality that synergistic interactions often occur among the individual component contaminants. Employing this methodology uses panels of at least four trained panel members to detect odour; a benefit of this method is that the human nose is sensitive and able to detect odours at very low concentrations, but the individual component contaminants may not be able to be detected by an analytical instrument, at the same levels. What is measured using this recognized methodology is the concentration of the resulting odorous combination, as opposed to the performance or measure of each contributing air contaminant in isolation.



Technology Requirements

Metro Vancouver has requirements for using control technology and similar approaches that specify the levels of odour treatment control or best management practices required for new or existing facilities. Technology requirements are generally used in both air permits and regulations, however, there are currently no regulations specific to emissions of odorous air contaminants.

Imposing technology requirements is a more prescriptive approach to controlling emissions of odorous air contaminants than the outcome- or performance-based approaches. Technology requirements for odorous air contaminants may include specific conditions for the design, operation, maintenance and management of site infrastructure, or for systems to capture and collect odorous air contaminants (including point and fugitive sources), to direct them to control works or treatment, or equipment for adequate dispersion of emissions. The necessary or most appropriate measures will depend on the process and materials being processed.


• Incorporate best achievable technology requirementsinto new regulations addressing sector-specific sources ofodorous air contaminants.

Economic Instruments

The majority of all air quality complaints received by Metro Vancouver are related to odour. Substantial resources are required to respond to and attempt to resolve complaints about odour. The cost of responding to complaints and verifying compliance with the regulatory requirements put in place to reduce the impacts of odorous air contaminants could follow Metro Vancouver’s existing polluter-pay approach. The use of economic instruments would also align with current regulatory practices to promote maximum benefits from reducing emissions by integrating incentives into regulatory mechanisms.

To recover the costs of developing, implementing, and enforcing the regulatory program, Metro Vancouver charges fees for the discharge of many air contaminants, including odorous air contaminants such as total reduced sulphur, ammonia, and volatile organic compounds. New economic instruments could be more broadly applied though charging emission fees for the discharge of odorous air contaminants to encourage emissions reductions.


• Introduce incentives for implementing control technology forfacilities that emit odorous air contaminants.

• Apply administrative fees for facilities that are requiredto conduct dispersion modelling and develop odourmanagement plans, to recover costs of staff time to review.

• Recover costs based on authorized discharge levels ofodorous air contaminants.

- Introduce fees for the discharge of odorous air contaminants, based on the quantity and nature of the odorous air contaminants; additional considerations could include the proximity to sensitive receptors in the receiving environment.

- Increase existing fees for emissions of total reduced sulphur compounds and ammonia.

Bylaw Definitions

In many other jurisdictions, including provinces across Canada, regulations and bylaws have a definition of air contaminant that includes odour. Metro Vancouver regulates a number of facilities that emit odorous air contaminants. To clarify existing provisions in Bylaw 1082 and GVRD Air Quality Management Fees Regulation Bylaw No. 1083, 2008 (Bylaw 1083) for managing the impacts of emissions of odorous air contaminants, Metro Vancouver is proposing to add definitions for terms related to odorous air contaminants and update terminology.


• Add definitions to Bylaw 1082 and Bylaw 1083 to clarifyprovisions for regulating odorous air contaminants.

• Update terminology in Bylaw 1082 and Bylaw 1083 to reflectMetro Vancouver’s authority to regulate emissions of odorousair contaminants.



PROVIDING COMMENTS ON THE POTENTIAL REGULATORY INITIATIVESMetro Vancouver welcomes feedback with respect to any or all of the proposed changes. Metro Vancouver will carefully consider all feedback when considering potential options to enhance the management of emissions of odorous air contaminants in Metro Vancouver.

Metro Vancouver staff and contractors will treat comments received with confidentiality; please note that comments you provide and information that identifies you as the source of those comments may be publicly available if a freedom of information (FOI) request is made under the Freedom of Information and Protection of Privacy Act. If you have any questions or comments regarding the consultation process, call 604-432-6200.

Metro Vancouver invites you to provide feedback by February 28, 2018 to [email protected]. Metro Vancouver will consider all feedback when developing further consultation papers, which would describe proposed expanded approaches for managing emissions of odorous air contaminants. Feedback will be considered until the MVRD Board adopts additional regulatory measures for managing emissions of odorous air contaminants.

Thank you for taking the time to consider and provide input on these potential changes to odour management in Metro Vancouver.

SERVICES AND SOLUTIONS FOR A LIVABLE REGION

23617201 Climate Action Committee -


From: John Lindner, Air Quality Planner Derek Jennejohn, Lead Senior Engineer Parks, Planning and Environment Department


Subject: Ambient Air Quality Objectives for Sulphur Dioxide

RECOMMENDATION That the MVRD Board: a) adopt an ambient air quality objective for sulphur dioxide of 5 parts per billion for an annual

average to be used for air quality reporting, and to be considered in air management decisions; and

b) adopt an ambient air quality objective for sulphur dioxide of 70 parts per billion for a 1-houraverage to be used for air quality reporting and episode management, to be considered in air management decisions, and to replace the ambient air quality objective for sulphur dioxide of 48 parts per billion for a 24-hour average.

PURPOSE This report seeks MVRD Board adoption of annual and 1-hour ambient air quality objectives for sulphur dioxide, which will replace the interim 1-hour objective adopted in 2015 and the existing 24-hour objective for sulphur dioxide.

BACKGROUND At its meeting of May 15, 2015, the MVRD Board directed staff to revisit Metro Vancouver’s sulphur dioxide (SO2) objectives after the Canadian Council of Ministers of the Environment (CCME) adopted a new Canadian Ambient Air Quality Standard (CAAQS) for SO2. This report responds to that direction.

During the spring of 2015, staff reported to the Climate Action Committee on the development of a new CAAQS for SO2 by the CCME. These new standards were expected to be more stringent than the air quality objectives in place in Metro Vancouver at that time, which were viewed to be outdated. On May 15, 2015, the Board adopted an interim SO2 objective of 75 parts per billion (ppb) for a 1-hour average for Metro Vancouver.

Following a national review process, the CCME adopted in October 2016 a new annual and 1-hour CAAQS for SO2, to take effect in 2020 and 2025. The provincial government subsequently adopted new annual and 1-hour SO2 objectives, to take effect between 2017 and 2020.

This report brings forward staff recommendations for new Metro Vancouver ambient air quality objectives for SO2 based on the following considerations:

• Consistency with SO2 objectives and standards adopted by the provincial government;• Protection of human health and the environment;• Current sources and ambient concentrations of SO2; and• Metro Vancouver’s principle of continuous improvement in air quality.

5.3


Ambient Air Quality Objectives for Sulphur Dioxide Climate Action Committee Regular Meeting Date: November 1, 2017

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SULPHUR DIOXIDE OBJECTIVES AND STANDARDS The major sources of SO2 emissions in Metro Vancouver are petroleum refining, marine vessels, cement production and aircraft. Marine vessels previously accounted for a significantly larger portion of SO2 emissions, but the implementation of the North American Emission Control Area (ECA) reduced the amount of sulphur allowed in marine fuels by more than 95% between 2012 and 2016. Decreased ambient concentrations of SO2 have been measured at monitoring stations in the region since the ECA was phased in, particularly in Burrard Inlet where marine vessels primarily operate.

Ambient air quality objectives and standards are non-statutory limits used to assess ambient air quality and guide air management decisions. Objectives and standards are defined using two components: a numerical value and a statistical form. The numerical value is the concentration (in ppb) that denotes if the standard or objective is achieved or exceeded. The statistical form is the calculation method used to convert measured monitoring data into a single value to compare against the numerical value of the objective or standard.

Annual SO2 Objective For the annual objectives and standards in the region, the statistical form is the same: the average of all hourly readings for a single year. The new provincial annual objective of 5 ppb for new air management decisions is more stringent than Metro Vancouver’s existing objective of 11 ppb (Attachment). Metro Vancouver objectives should be at least as stringent, if not more stringent, than objectives and standards established at the provincial and federal levels.

The selection of an annual SO2 objective depends on both recent ambient concentrations and known health and environmental impacts of SO2 exposure. Annual averages measured at the 13 SO2 monitoring stations in the region dropped from a high of 3.4 ppb in 2012, to a high of 1 ppb in 2015 and 2016 (Attachment). A Health Canada (HC) human health risk assessment was published in 2016, to support development of the CAAQS for SO2 (Attachment). The HC assessment indicated that, at present, there is inadequate evidence for a causal link between long-term SO2 exposure and adverse health effects. However, it is known that SO2 contributes to the formation of acid rain, which can adversely affect the health of a broad range of organisms. An annual SO2 objective would help protect against the long-term acidification of ecosystems.

Staff recommend that the annual objective for SO2 be lowered from 11 ppb to 5 ppb, to align with the provincial objective. This objective would be used for air quality reporting and be taken into consideration when making air management decisions.

1-Hour SO2 Objective The 1-hour objectives and standards use different numerical values and statistical forms:

• The current Metro Vancouver interim objective of 75 ppb uses a “1-hour average” form. Thisobjective is based on all hours in a given year, meaning that the value of 75 ppb is not to be exceeded for any hour. The Metro Vancouver interim objective replaced the previous regional objective of 174 ppb.

• The provincial objective and CAAQS of 70 ppb uses a “99th percentile daily 1-hour maximum(D1HM), averaged over 3 years” form. This form considers 99% of measurements taken but excludes the remaining 1%, i.e., the three days per year with the highest SO2 concentrations. Therefore, concentrations could exceed the 70-ppb level for three days (i.e., potentially up to 72 hours) and still achieve the objective if the other two years are similar (Attachment).



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Metro Vancouver considers both long-term trends and short-term exposure and impacts in its air quality management programs. Annual objectives and 1-hour objectives using the percentile D1HM statistical form are better suited for managing long-term trends, and in fact cannot be evaluated until after the collection of a full year or three years of data, respectively. These statistical forms do not lend themselves to “real-time” air quality management such as the issuance of advisories, bulletins and warnings, or mitigating actions by emission sources. Real-time management of SO2 in Metro Vancouver is important because the Health Canada assessment indicates that there is evidence for a causal link between short-term SO2 exposure and adverse health effects (Attachment). As such, a 1-hour average, not to be exceeded, statistical form is more protective of human health in the region.

Although the Metro Vancouver interim objective uses a higher numerical value than the provincial objective (75 vs. 70 ppb), analysis shows that the Metro Vancouver interim objective is more stringent in most cases because its statistical form identifies more instances of high SO2 readings (Attachment). However, there could be periods where the provincial 70-ppb objective is exceeded without exceeding Metro Vancouver’s 75-ppb interim objective (e.g., 4 days per year with readings between 71 and 74 ppb, for 3 years).

To ensure that Metro Vancouver’s 1-hour objective meets or exceeds the provincial objective in all cases, and to better protect human health in the region, staff recommends that the 1-hour objective for SO2 be lowered to 70 ppb using the 1-hour average form. This objective would be used for air quality reporting, episode management and would be one of many factors taken into consideration by the district director when making an air management decision. When the measured SO2 concentration is above 70 ppb for any 1-hour average, this is considered an “exceedance” and could be used to inform air quality advisories, bulletins, or other actions.

24-hour SO2 Objective Metro Vancouver currently has a 24-hour objective for SO2 of 48 ppb. The provincial objectives and CAAQS for SO2 do not currently include a 24-hour standard (although both previously did) because health studies indicate that it does not provide additional health protection beyond a sufficiently stringent 1-hour objective or standard. The US Environmental Protection Agency also revoked their 24-hour standard, in 2010. Therefore, with adoption of a sufficiently stringent 1-hour objective, staff recommend revoking Metro Vancouver’s 24-hour objective for SO2.

CONSULTATION AND NEXT STEPS Extensive consultation was undertaken during the CCME’s development of the CAAQS for SO2 between 2014 and 2016, including with stakeholders in the Metro Vancouver region. The wide engagement was important because the numerical values in the CAAQS were significantly lower than the previous national standards, which were adopted in 1989.

Prior to Board adoption of Metro Vancouver’s interim 1-hour objective for SO2 in 2015, staff consulted with industry, health authorities and other government agencies over seven months, since a significant tightening of the 1-hour objective was proposed from 174 ppb to 75 ppb.

Additional consultation has not been undertaken by Metro Vancouver for the new annual and 1-hour objectives proposed in this report, because the primary purpose of the revision is to align the numerical values of Metro Vancouver’s objectives with the national and provincial objectives, while ensuring that the statistical form is consistent with Metro Vancouver’s other ambient air quality



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objectives. Despite the different statistical form, the application of the proposed 1-hour objective is the same as the provincial objective with respect to the 70 ppb concentration value. The proposed objective will be used as guidance for air management decisions and would not constrain permitting and regulatory decisions made by the district director. During short-term events of elevated SO2, the province is expected to use the same “not to exceed” approach as Metro Vancouver.

The federal CAAQS process is considering new objectives for ozone, fine particulate matter (PM2.5), and nitrogen dioxide. A broad review of all ambient air quality objectives in Metro Vancouver will be conducted as part of the development of a new regional air quality management plan, which is in the Committee’s work plan for 2018. If significant changes to Metro Vancouver’s air contaminant objectives are proposed, an appropriate level of consultation with stakeholders will be undertaken.

ALTERNATIVES 1. That the MVRD Board:

a) adopt an ambient air quality objective for sulphur dioxide of 5 parts per billion for an annualaverage to be used for air quality reporting, and to be considered in air managementdecisions; and

b) adopt an ambient air quality objective for sulphur dioxide of 70 parts per billion for a 1-houraverage to be used for air quality reporting and episode management, to be considered in airmanagement decisions, and to replace the ambient air quality objective for sulphur dioxideof 48 parts per billion for a 24-hour average.

2. That the MVRD Board receive for information the report, dated October 10, 2017, titled “Ambient Air Quality Objectives for Sulphur Dioxide” and provide alternate direction to staff.

FINANCIAL IMPLICATIONS Resources required for ongoing review of proposed national and provincial ambient air quality objectives and standards, and development of objectives for Metro Vancouver, are accommodated within existing program budgets.

SUMMARY / CONCLUSION SO2 is associated with adverse human health and environmental effects, and is released when fuels containing sulphur are combusted. Ambient air quality objectives and standards for SO2 establish thresholds for ambient concentrations to protect the health of residents, particularly those with cardiopulmonary conditions, and to protect the environment. The new objectives proposed in this report would align with the numerical values of the new annual and 1-hour provincial objective, but would be more stringent with respect to the statistical form for the 1-hour objective. A slightly more stringent 1-hour objective is appropriate for “real-time” air quality management in Metro Vancouver, such as the issuance of advisories, bulletins and warnings, or mitigating actions by emission sources.

Staff recommends Alternative 1, to adopt revised annual and 1-hour ambient air quality objectives for SO2, and revoke the 24-hour objective for SO2. For environmental protection, an annual average objective of 5 ppb is proposed, to align with the provincial objective. A 1-hour SO2 objective of 70 ppb, using a 1-hour average form, has been identified as most appropriate for the Metro Vancouver region, as it protects against human health risks associated with short-term exposure, and enables air quality management activities for short-term exceedances.



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Attachment Summary of SO2 Health Effects, Objectives and Standards, and Monitoring Data (Orbit # 23486734)

23359224


5.3 ATTACHMENT

SUMMARY OF SO2 HEALTH EFFECTS, OBJECTIVES AND STANDARDS, AND MONITORING DATA

This attachment provides additional information to support the recommendations on new ambient air quality objectives for sulphur dioxide (SO2).

Health Effects of SO2 A human health risk assessment prepared by Health Canada (HC) supports the development of new SO2 objectives (Reference 1). The HC assessment indicated that, at present, there is inadequate evidence for a causal link between long-term SO2 exposure (i.e., annual) and adverse health effects. However, the assessment cites strong evidence for a causal link between short-term SO2 exposure and respiratory morbidity in adults. The assessment also cites suggestive evidence of a causal link between short-term SO2 exposure and non-accidental and cardiopulmonary mortality risks.

These short-term health effects were seen from exposures as short as 5 minutes. Analysis of monitoring data by the federal government demonstrated a good correlation between 1-hour concentrations and sub-hourly peaks (e.g., 5 minutes). Therefore, reducing 1-hour concentrations using a 1-hour objective is expected to also reduce sub-hourly peak concentrations.

SO2 Objectives and Standards Table 1 summarizes annual objectives and standards for SO2 in the region, including those with effective dates in the future (References 2 and 3).

Table 1: Annual objectives and standards for sulphur dioxide. Objective/ standard

Numerical Value (ppb) Statistical form Effective

date Notes

MVRD 11 Annual average of 1-hour concentrations In effect Used for air quality reporting and

all air management decisions

BC 5 Annual average of 1-hour concentrations In effect Used for air quality reporting and

new air management decisions

BC 5 Annual average of 1-hour concentrations 2020 Used for air quality reporting and


CAAQS 5 Annual average of 1-hour concentrations 2020 Used for air quality reporting and


CAAQS 4 Annual average of 1-hour concentrations 2025 Used for air quality reporting and


Table 2 summarizes 1-hour objectives and standards for SO2 in the Metro Vancouver region, including those with effective dates in the future (References 2 and 3). The Metro Vancouver interim objective replaced the previous objective of 174 ppb. Two statistical forms are employed for the 1-hour objectives and standards: a “1-hour average” form and a “99th percentile daily 1-hour maximum (D1HM), averaged over 3 years” form.


Table 2: 1-hour objectives and standards for sulphur dioxide.

Objective/ standard

Numerical Value (ppb)

Statistical form Effective date Notes

MVRD interim 75 1-hour average In effect

Used for air quality reporting, episode management and assessing new and significantly modified facilities

BC 70 99th percentile D1HM, averaged over 3 years In effect Used for new air management

decisions

CAAQS 70 99th percentile D1HM, averaged over 3 years 2020 Used for all air management

decisions

CAAQS 65 99th percentile D1HM, averaged over 3 years 2025 Used for all air management

decisions

SO2 Monitoring Data Figure 1 shows the range of annual average SO2 concentrations measured in the region over the past five years. There was a measurable drop in annual average SO2 concentrations following implementation of the North American Emission Control Area in 2012. Annual averages have remained low across the region since then, with all annual averages at or below 1 ppb in 2015 and 2016.

Figure 1: Range of ambient sulphur dioxide readings from 2012 to 2016. The lines represent the lowest (blue diamond), average (orange circle) and highest (grey triangle) annual averages from SO2 monitoring stations in the region.

For the 1-hour objective, the two statistical forms listed in Table 2 are not directly comparable because the objectives have different purposes. The goal of the Metro Vancouver interim objective is to identify every 1-hour concentration that exceeds the objective’s numerical value, and provide

0.0

0.5

1.0

1.5

2.0

2.5

3.0

3.5

4.0

2012 2013 2014 2015 2016

Annu

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once

ntra

tion

(ppb

)

Year

Lowest

Average

Highest


counts of exceedances. In contrast, the 99th percentile D1HM statistical form is focused on managing long-term trends, not individual exceedances, and provides a binary result (i.e., objective achieved or exceeded) for each 3-year period.

Tables 3 and 4 summarize the exceedances identified by each statistical form, using Metro Vancouver monitoring data from 2012 to 2016. Table 3 summarizes the number of identified high SO2 periods using the 1-hour average objectives: the current Metro Vancouver interim objective, and the recommended Metro Vancouver objective of 70 ppb. Table 4 summarizes the exceedances identified by the 99th percentile D1HM form for the same 5-year span, which requires 7 years of data given the 3-year average of the form (e.g., 2010, 2011 and 2012 data used to calculate 2012 objective).

Table 3: Number of exceedances of 1-hour objectives using 1-hour average statistical form. Objective 2012 2013 2014 2015 2016

Metro Vancouver interim objective of 75 ppb using a 1-hour average form 4 17 4 2 0

Recommended objective of 70 ppb using a 1-hour average form 5 20 5 4 0

Table 4: Exceedance of 1-hour objective using 99th percentile daily 1-hour maximum, averaged over 3 years, statistical form.

Reporting period Objective exceeded? 3-year average of 99th percentile daily 1-hour maximum (ppb)

2010 – 2012 No 56 2011 – 2013 Yes 82 2012 – 2014 Yes 87 2013 – 2015 Yes 89 2014 – 2016 No 61

As can be seen, a 1-hour average form identified more periods of high SO2 concentrations than the percentile D1HM form. This result occurs for the following reasons:

1. High SO2 readings often occur at the same time (e.g., due to an unforeseen industrial processupset lasting hours or days);

2. Multiple high readings within a single day are ignored by the percentile D1HM form; and3. The three days per year with the highest 1-hour SO2 concentrations are ignored by the

percentile D1HM form.

This demonstrates that the 1-hour average statistical form is more appropriate for managing short-term air quality management in the region.

References 1. Health Canada, 2016, Human Health Risk Assessment for Sulphur Dioxide:

http://publications.gc.ca/collections/collection_2016/sc-hc/H144-29-2016-eng.pdf 2. Provincial air quality objectives: http://www2.gov.bc.ca/assets/gov/environment/air-land-

water/air/reports-pub/aqotable.pdf 3. CCME CAAQS for SO2: http://www.ccme.ca/en/resources/air/air/sulphur-dioxide.html


http://publications.gc.ca/collections/collection_2016/sc-hc/H144-29-2016-eng.pdf

http://publications.gc.ca/collections/collection_2016/sc-hc/H144-29-2016-eng.pdf

http://www2.gov.bc.ca/assets/gov/environment/air-land-water/air/reports-pub/aqotable.pdf

http://www2.gov.bc.ca/assets/gov/environment/air-land-water/air/reports-pub/aqotable.pdf

http://www.ccme.ca/en/resources/air/air/sulphur-dioxide.html


From: Francis Ries, Senior Project Engineer Derek Jennejohn, Lead Senior Engineer Parks, Planning and Environment Department


Subject: 2015 Lower Fraser Valley Air Emissions: Regional Trends and Policy Implications

RECOMMENDATION That the MVRD Board receive for information the report, dated October 10, 2017, titled “2015 Lower Fraser Valley Air Emissions: Regional Trends and Policy Implications”.

PURPOSE This report summarizes the 2015 air emissions inventory for the Lower Fraser Valley, and examines trends in emissions for key sources in Metro Vancouver, highlighting potential implications for the development of new plans, policies and programs related to air quality and climate change.

BACKGROUND Every five years, Metro Vancouver prepares an inventory of emissions of air pollutants and greenhouse gases (GHGs) in the Lower Fraser Valley airshed, which includes Metro Vancouver, the Fraser Valley Regional District, and Whatcom County in Washington State. The emissions inventory includes estimates for a broad range of emission sources, including:

• industrial facilities;• commercial, institutional, light industrial, residential, agricultural, and naturally occurring

sources; and• mobile sources, including vehicles and trucks, non-road engines and equipment, railways,

aircraft and marine vessels.

Inventory results are also summarized at the airshed, regional, and municipal levels.

Staff have recently completed the inventory for the year 2015, along with a “backcast” that shows past trends in emissions from 1995 to 2010. A summary report, “2015 Lower Fraser Valley Air Emissions Inventory”, is included as an Attachment.

The emissions inventory serves many purposes. Together with Metro Vancouver’s ambient air quality monitoring network, the inventory provides ongoing information to measure the performance of programs and actions contained within the Integrated Air Quality and Greenhouse Gas Management Plan (IAQGGMP) and the Board Strategic Plan. The inventory can help identify areas where additional management actions are needed, and provide support in the development of new regulatory programs. Finally, the inventory is an essential tool for the development of new climate action and air quality management plans for the region.

5.4


2015 Lower Fraser Valley Air Emissions: Regional Trends and Policy Implications Climate Action Committee Regular Meeting Date: November 1, 2017

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TRENDS IN EMISSIONS TO 2015 The inventory describes trends in emissions of greenhouse gases (GHG) and common air contaminants (CAC). Greenhouse gases contribute to climate change, and are primarily released when fossil fuels are burned. The inventory includes GHG emissions data for carbon dioxide (CO2), methane (CH4) and nitrous oxide (N2O). Common air contaminants are pollutants that can harm human health and the environment, and in most cases are monitored by Metro Vancouver’s ambient air quality monitoring network. The inventory includes emission data for carbon monoxide (CO), sulphur oxides (SOx), nitrogen oxides (NOx), three different sizes of particulate matter (PM), volatile organic compounds (VOC) and ammonia (NH3).

Modest Decrease in Overall Greenhouse Gas Emissions from 2010 to 2015 Historically, Metro Vancouver’s regional GHG emissions increased from 1995 to 2000, where emissions peaked at over 18 million tonnes, and then declined through the 2000-2010 period, dropping to slightly more than 15 million tonnes. The decrease was due, in part, to reductions in industrial activity and electric power generation, and to reduced fuel consumption (i.e., natural gas and gasoline) that resulted from higher fuel prices and the introduction of more fuel efficient engines in cars, trucks, and other vehicles.

Between 2010 and 2015, GHG emissions in the region decreased by about two percent to approximately 15.1 million tonnes. Major sources of GHG in 2015 include light-duty vehicles (31%), heating (26%), and industry (17%). Significant effort by all levels of government, businesses, and citizens was directed to reducing GHG emissions between 2010 and 2015, but the relatively modest decrease in regional GHG emissions over this time period appears to be an indicator of the region’s strong recovery from the economic downturn that occurred prior to 2010. Growth in the economy and the region’s population resulted in increases in overall vehicle travel. While improved vehicle emissions standards have continued to reduce emissions of smog-forming pollutants from motor vehicles, GHG emissions from both light and heavy vehicles have increased. Economic growth also drove increases in some industrial GHG sources, primarily the cement and petroleum products sectors in Metro Vancouver, where GHG emissions increased by approximately 26 and 15%, respectively.

In contrast to the modest 2% decrease in overall regional GHG emissions, a decrease of almost 10% was observed in GHG

Figure 1 – Metro Vancouver GHG Emissions Trends and % Distribution across Sectors



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emissions from heating between 2010 and 2015. This trend has continued from 2000 and is attributable to a reduction in natural gas consumption in both the residential and light industrial, commercial and institutional (ICI) sectors, likely due in part to improving efficiency in the regional stock of space heating appliances. Even with this decrease, heating sources contributed approximately 25% of regional GHG emissions in 2015.

The IAQGGMP includes a number of programs focused on reducing GHG emissions from transportation and heating sources within the region. Some examples include the Emotive campaign which promotes electric vehicle uptake, the Strata Energy Advisor Program focused on reducing energy use and GHG emissions within multi-unit residential buildings, and the National Industrial Symbiosis Program which connects businesses to ensure efficient use of energy and other resources. GHG mitigation actions will be discussed in more detail with the Committee as part of Climate 2050, the regional climate action strategy, which is under development.

Fine Particulate Matter Emissions Continued to Decrease, Except for Residential Wood Burning Fine particulate matter (PM2.5) emissions have decreased steadily from 1995, driven by past reductions in the wood products and petroleum refining sectors, as well as reduced vehicle emissions. From 2010 to 2015, emissions of PM2.5 continued to decrease in several sectors, while holding steady in many other areas. Transportation emissions continued to decrease, driven by increasingly stringent emission standards for new vehicles, as well as cleaner fuels. This impact on emissions was apparent in both the light and heavy-duty vehicle sectors, as well as from marine vessels and non-road engines.

In 2015, residential wood burning (32%), non-road engines (15%), industrial sources (14%) and marine vessels (6%) continue to be significant sources of PM2.5. Metro Vancouver actions in place or under development to reduce emissions in several of these sectors include: • Ongoing review of industrial permits to ensure continuous improvement in PM2.5 emissions;• The Non-Road Diesel Engine Emission Regulation, which aims to reduce emissions from diesel

engines and equipment, such as those used in the industrial and construction sectors; and• Consultation on a proposed regulatory approach to address residential wood burning emissions,

as reported to the Committee at its October 2017 meeting, in addition to the existing Wood StoveExchange Program to provide rebates for wood burners who exchange an old wood burningappliance for a cleaner-burning alternative.

Diesel particulate matter is a pollutant of particular concern from a public health perspective, and emissions continued to decrease from 2010 to 2015. These reductions can be attributed to the use of lower sulphur fuels by marine vessels, emission standards for new non-road engines, as well as Metro Vancouver’s Non-Road Diesel Engine Bylaw. In 2015, non-road engines were the largest source of diesel PM, followed by marine vessels, heavy-duty vehicles, and rail locomotives.

Sulphur Oxide Emissions Decreased Significantly Historically, trends in regional emissions of sulphur oxides (SOx) have been driven by changing emissions from marine vessels and industrial sources. In Metro Vancouver, SOx emissions decreased from 1995 to 2010, largely due to desulphurization of fuels used in onroad vehicles, as well as from closure of petroleum refineries and improved emission control technologies at cement plants. With these reductions, marine vessels became a more significant source of SOx emissions, contributing almost 80% to 2010 totals in Metro Vancouver. From a broader LFV airshed perspective, large industrial sources in Whatcom County (e.g., the primary metal industry, and petroleum refining) were responsible for more than half of total SOx emissions.



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The 2015 emissions inventory shows a substantial reduction in SOx emissions in Metro Vancouver, with a decrease of more than 70% since 2010. This reduction is largely attributable to the implementation of the North American Emission Control Area (ECA) in 2012, which brought requirements for cleaner marine fuels, resulting in a decrease in marine vessel SOx emissions of about 95%. Analysis of ambient air quality monitoring data indicates that sulphur dioxide (SO2) concentrations in the region have exhibited similar reductions. Marine vessels now contribute about 14% of regional SOx emissions, while the petroleum refining sector contributes about 32%. Metro Vancouver is proposing updated air quality objectives for SO2 (see Report 5.3 in this Climate Action Committee agenda) and investigating further reductions in SO2 emissions from permitted sources.

Smog and Ozone-Forming Pollutant Emissions Continued to Decrease Regional emissions of key smog and ozone precursor pollutants such as NOX and VOC have shown a strong decreasing trend from 1995 through to 2010. This is due improved engine emissions standards for NOX and VOC, the impact of the former AirCare program, improved fuel and product formulation, and regulation of evaporative sources of VOC. This decreasing trend has continued to 2015, but VOC emissions showed more modest reductions from 2010 to 2015 than during previous periods.

Because internal combustion engines are the primary sources of NOX emissions in the region (77%), the increase in transportation activity from 2010 to 2015 partially offset the NOX reductions (per litre of fuel burned) that were expected due to improving engine emissions standards. Similarly, increases in VOC emissions associated with industrial sources (5% of regional total) and chemical products usage (43% regional total) partially offset decreases in VOC emissions associated with better emission standards and control technologies in transportation sources (28% of regional total).

With the growing regional population, further actions will be required to ensure that continued reductions in NOX and VOC emissions can be achieved. In May 2014, the MVRD Board endorsed a Regional Ground Level Ozone Strategy, developed collaboratively with the Fraser Valley Regional District and other orders of government, which provides direction for ozone management in our airshed. Staff are currently conducting a review of options to reduce emissions from light-duty vehicles, which in 2015 accounted for 20% of regional NOX emissions, with a disproportionately large amount of NOX emitted by older vehicles. Development of bylaws that focus

Figure 2 – Metro Vancouver Smog-Forming Pollutant EmissionsTrends and % Distribution Across Sectors



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on reducing chemical products use and VOC emissions in prioritized sectors is underway, e.g., with consultation on amendments to the Automotive Refinishing Bylaw beginning in November 2017.

REGIONAL CLIMATE ACTION STRATEGY AND AIR QUALITY MANAGEMENT PLAN The 2015 emissions inventory, together with an inventory forecast to 2035 that is currently being developed, will provide the basis by which future GHG and air pollutant emissions reduction initiatives will be planned and measured.

Climate 2050, the regional climate action strategy, is under development and will be discussed at a workshop with the Climate Action Committee in 2018. Past trends and future projections in the emissions inventory will inform the goals, strategies and actions in Climate 2050 aimed at reducing GHG emissions from vehicles, buildings and other emission sources in the region. The inventory is an important tool for understanding progress and identifying future pathways for reaching the regional GHG reduction target of 80% by 2050 compared to 2007. Reaching this target locally and globally is necessary to avoid catastrophic change in the global climate.

Metro Vancouver will also begin development of a new Air Quality Management Plan in 2018, which will update management actions to focus on continued improvement in regional air quality. Together with the Regional Ground Level Ozone Strategy, this plan will need to focus on ensuring that historical emissions reduction trends can be continued in the face of population and economic growth in the region.

Recognizing the international nature of the Lower Fraser Valley airshed, management plans and actions will continue to be developed and implemented collaboratively with airshed partners.

ALTERNATIVES This is an information report. No alternatives are presented.

FINANCIAL IMPLICATIONS Costs associated with the emissions inventory were included in approved program budgets and work plans. Portions of the inventory were carried out collaboratively and funded in whole or in part by external organizations.

SUMMARY / CONCLUSION Metro Vancouver’s 2015 Emissions Inventory provides key insights into trends in common air contaminant and greenhouse gas emissions in the Lower Fraser Valley airshed. Emissions of PM2.5, diesel PM, and SOx all decreased from 2010 to 2015, highlighting the impact of existing regulatory programs such as federal fuel and engine emission standards, the North American Emission Control Area requirements for marine fuels, and Metro Vancouver’s Non-Road Diesel Engine Bylaw. Ozone precursor pollutants NOX and VOC also decreased from 2010 to 2015, demonstrating the positive impact of existing regulatory programs in the face of increasing population and transportation activity, but emphasizing the importance of future actions focused on transportation and chemical products use. GHG emissions decreased modestly from 2010 to 2015, emphasizing the difficulty of achieving regional emissions goals in light of the growing regional population and economy. Together with the forecast of the emissions inventory to 2035, which is to be completed in early 2018, this inventory will provide the cornerstone for development of both the regional climate action strategy and air quality management plan in 2018.



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Attachment 2015 Lower Fraser Valley Air Emissions Inventory (Orbit # 23537160)

23522509


November 2017

2015 Lower Fraser Valley Air Emissions Inventory

Final Report and Summarized Results

5.4 ATTACHMENT


2015 Lower Fraser Valley Air Emissions Inventory 2

The 2015 emissions inventory for the Canadian portion of the Lower Fraser Valley airshed was prepared by Metro Vancouver, with the exception of the marine vessels and biogenic emissions inventories provided by Environment and Climate Change Canada, and the railway and locomotive emissions inventories provided by the Vancouver Fraser Port Authority. Emissions data for Whatcom County was obtained from US EPA’s National Emissions Inventory Database, Northwest Clean Air Agency and Washington Department of Ecology.

We would like to acknowledge the contributions of the following agencies in developing this emissions inventory:

• Abbotsford International Airport Authority• Agriculture Canada• BC Ministry of Agriculture• BC Ministry of Environment and Climate Change Strategy• BC Ministry of Forests, Lands and Natural Resource Operations• BC Stats• Environment and Climate Change Canada• Fortis BC

• Fraser Valley Regional District• Insurance Corporation of British Columbia• Municipal Fire Departments• Northwest Clean Air Agency• Statistics Canada• TransLink• Vancouver Airport Authority• Vancouver Fraser Port Authority• Washington Department of Ecology

Questions on the report should be directed to:

Metro Vancouver Air Quality and Climate Change Division 4730 Kingsway, Burnaby, BC V5H 0G6

(604) 432-6200; [email protected] www.metrovancouver.org

Disclaimer and Conditions:

1. Permission is granted to produce or reproduce these data, or any substantial part of them, for personal, non-commercial, educational and informational purposes only, provided that the data are not modified oraltered and provided that this disclaimer notice is included in any such production or reproduction.

2. While the information in these data is believed to be accurate, these data and all of the informationcontained therein are provided “as is” without warranty of any kind, whether express or implied. All impliedwarranties, including, without limitation, implied warranties of merchantability and fitness for a particularpurpose, are expressly disclaimed by Metro Vancouver. Metro Vancouver reserves the right to update datafiles from time to time and will not be held responsible for the validity of the archives maintained by otherparties. It is the user’s responsibility to ensure that the data is up-to-date and to follow-up with MetroVancouver should any questions related to the data arise.

3. The information provided in these data is intended for educational and informational purposes only. Thesedata are not intended to endorse or recommend any particular product, material or service provider nor isit intended as a substitute for engineering, legal or other professional advice. Such advice should be soughtfrom qualified professionals.


mailto:[email protected]

http://www.metrovancouver.org/


Section A – Introduction

This report provides the results of the 2015 Lower Fraser Valley airshed emissions inventory, including information on the types of air emission sources in the Lower Fraser Valley, their location and the amount of air contaminants emitted. It also reports on trends in emissions by including inventories for 1995, 2000, 2005 and 2010.

The emissions inventory for 2015 and previous years serves many purposes. Together with Metro Vancouver’s ambient air quality monitoring network, the inventory provides ongoing information to measure the performance of programs and actions contained within the Integrated Air Quality and Greenhouse Gas Management Plan (IAQGGMP) for Metro Vancouver.

The inventory can also identify areas where additional management actions are needed, and provide support in the development of new regulatory programs as well as inform development of new climate action and air quality management plans for the region.

A separate report will present a forecast of emissions to the year 2035, in five-year increments. The emissions forecast will report on estimated future emissions that account for changes in activity (growth or decline) combined with changes in emission rates or controls. These changes could be influenced by technological advances, environmental regulations, process and control equipment deterioration, fuel formulations or other factors. The forecast will allow for an assessment of future air emissions and potential impacts of emission reduction measures.

Together, the 2015 emissions inventory and forecast can be used to identify where significant progress has been made in reducing emissions and where additional action is warranted.



Figure 1: Study area for the Lower Fraser Valley airshed emissions inventory.

What is the Study Area? The 2015 emissions inventory has been compiled for the Lower Fraser Valley airshed in British Columbia (BC), including the Metro Vancouver region, the south-western portion of the Fraser Valley Regional District (FVRD) and Whatcom County in the State of Washington, which is representative of the United States portion of the Lower Fraser Valley airshed (Figure 1).

In 2015, the study area had a combined population of approximately 3.03 million.

What Emissions Are Inventoried? Greenhouse Gases Greenhouse gases contribute to global climate change, a shifting of the world’s climate systems to wider variability and more intense extremes. Greenhouse gases included are:

• Carbon dioxide (CO2)• Methane (CH4)• Nitrous oxide (N2O)

Common Air Contaminants The common air contaminants addressed in this inventory include:

• Nitrogen oxides (NOx)• Total particulate matter (PM)• Inhalable particulate matter (PM10)• Fine particulate matter (PM2.5)• Sulphur oxides (SOx)• Volatile organic compounds (VOC)• Ammonia (NH3)• Carbon monoxide (CO)



Sources of Emissions The emissions inventory includes three main categories of emissions: industrial sources, area sources, and mobile sources. Table 1 defines these sources.

Table 1: Emissions source categories, definitions and sub-categories

Source Category Sub-Categories

Industrial Sources

Industrial sources are facilities or utilities operating under an air discharge permit, or in some cases a regulation issued by Metro Vancouver or the BC Ministry of Environment and Climate Change Strategy (BC MOE), or under a Solid Waste Management Plan authorized by BC MOE, or under the jurisdiction of the Washington State Department of Ecology or Northwest Clean Air Agency. In general, these sources are large, stationary sources that release pollutants into the atmosphere.

•Bulk Shipping Terminals•Chemical Manufacturing•Concrete Batch Plants•Electric PowerGeneration •Heating / Cogeneration Utilities •Metal Foundries and Metal Fabrication •Non-metallic MineralProcessing Industries (e.g., cement plants) •Paper and Allied Products •Petroleum Products•Primary Metal Industries•Wood Products •Miscellaneous IndustrialSources

Area Sources

Area sources are smaller, broadly distributed light industrial, commercial, institutional, residential, agricultural and naturally occurring sources that normally do not require an air discharge permit. In some cases, they may be regulated by other mechanisms, such as Metro Vancouver bylaws.

•Agricultural Sources•Chemical Products Use(Industrial, Commercial, and Consumer) (e.g., paints, solvents) •Fuel Distribution•Fugitive Dust (e.g., road,coal and construction) •Heating (e.g., homes and commercial space) •Natural Sources•Vegetative Burning•Waste (e.g., landfills,sewage and waste-to-energy) •Miscellaneous sources

Mobile Sources

Mobile sources have no fixed geographic location, and are typically vehicles or equipment (operating on roads or off road), marine vessels, locomotives and aircraft involved in transportation of people and goods.

•Aircraft•Heavy-Duty Vehicles•Light-Duty Vehicles•Marine Vessels•Non-Road Engines and Equipment (e.g., construction, lawn and garden) •Rail Locomotives



Section B – Results by Pollutant

This section provides summaries of emissions information by pollutant for 2015 and previous years.

Greenhouse Gases (GHG) Some greenhouse gases (GHG) arise from natural sources, while others result from human activities. GHG emissions from human activity have already warmed the earth’s average temperature by more than 1oC, and are shifting the world’s climate systems to wider variability and more intense extremes. Climate change will have multiple impacts in our region in the coming decades.

The principal greenhouse gases for which emissions have been estimated are carbon dioxide (CO2), methane (CH4) and nitrous oxide (N2O). Other greenhouse gases, such as hydrofluorocarbons, perfluorocarbons, and sulphur hexafluorides, have not been included in this report, as they are believed to be insignificant in the region, compared to CO2, CH4 and N2O. GHG are expressed as CO2-equivalent (CO2e), which aggregates all GHG emissions based on the relative heat-trapping power (or global warming potential, GWP) of each pollutant compared against CO2. For example, methane is 25 times as potent as CO2 and therefore the GWP of CH4 is expressed as 25 CO2e, while the GWP for N2O is 298 CO2e.

The main contributors to total GHG emissions in the LFV in 2015 are cars and light trucks, heating (e.g., buildings), the petroleum products sector (mainly refineries), the non-metallic mineral sector (mainly cement plants), non-road engines and heavy trucks and buses (Figure 2).

GHG emissions were highest in 2000, due in part to emissions from an electric power generation plant in Metro Vancouver. GHG emissions in the airshed decreased significantly in 2005, then increased slightly in 2010. In Metro Vancouver, GHG emissions decreased from 2005 to 2010. From 2010 to 2015, GHG emissions decreased about 3% in the LFV airshed, about 2% in Metro Vancouver and

were mostly unchanged in the FVRD. Per capita GHG emissions also decreased from 2010 to 2015 in all regions because of population increases.

Figure 2: Greenhouse Gas Emissions Trends and Percentage Distribution across Sectors



Carbon Dioxide (CO2) Carbon dioxide (CO2) is released to the atmosphere when fuels (e.g., gasoline, diesel, natural gas, oil, coal) are burned. In Metro Vancouver and FVRD, the main contributors of CO2 are cars and light trucks and heating (e.g., buildings). CO2 is also released from certain industrial processes through chemical reactions that do not involve combustion, for example, the production of mineral products such as cement, the production of metals such as iron and steel, and the production of chemicals. Metro Vancouver also has significant emissions from cement plants and petroleum refining. In Whatcom County, the main contributors are petroleum refining, electric power generation and aluminum smelting.

In 2015, light-duty vehicles, heating and industry were the major sources of CO2 emissions in the LFV. CO2 emissions in the airshed decreased from 2010 to 2015, despite a growing population and increased economic activity. Population increases translated into more vehicle travel, resulting in increased emissions from cars and light trucks, while non-road engines also saw a slight increase in emissions from increased activity. However, even with an increase in population, CO2 emissions from heating were significantly reduced, dropping approximately 10%.

Historically, emissions of CO2 were highest in 1995 and 2000, due in part to significant emissions from an electric power generation plant in Metro Vancouver. CO2 emissions from this facility were significantly lower in 2010 and have remained low due to decreased operations.

Methane (CH4) Methane (CH4) is emitted during the production and transport of natural gas, as well as from the decomposition of organic wastes in municipal solid waste landfills, and from the raising of livestock. Mobile and industrial sources make minor contributions.

In 2015, the two dominant sources of CH4 were landfills and cattle. Historically, emissions from landfills had been the leading contributor of CH4 emissions. As landfill emissions have decreased

(largely due to improved landfill gas collection at the City of Vancouver’s landfill in Delta, and decreased anaerobic activity at decommissioned landfills), agricultural sources in the FVRD, Whatcom County and Metro Vancouver now play a more significant role.

Nitrous Oxide (N2O) Nitrous oxide (N2O) is mostly emitted from combustion of fossil fuels in motor vehicles and non-road equipment, and agricultural activities.

N2O emissions decreased from 2000 to 2010, and were relatively unchanged to 2015. During that time, emission reductions were achieved from more stringent emission standards for light-duty cars and trucks, while emissions from non-road engines have increased.



Common Air Contaminants The following sections provide emission summaries for the common air contaminants for 2015 and previous years.

Nitrogen Oxides (NOx)

Nitrogen oxides (NOx) are formed when fuel is burned at high temperatures, for example, in an engine or boiler. Under certain weather conditions, NOx can react with other chemicals to form ground-level ozone, secondary particulate matter and acid rain. NOx can irritate the lungs and lower resistance to respiratory infections. Nitrogen oxides, which include nitric oxide (NO) and nitrogen dioxide (NO2), are reported by convention as NOx on the basis of the molecular weight of NO2.

In 2015, NOx emissions were dominated by mobile sources, including cars and trucks (onroad), marine vessels and non-road engines and equipment (Figure 3). Industrial sources and natural gas use in homes and offices also contribute to NOx emissions.

NOx emissions decreased from 1995 to 2010, and continued to decrease further to 2015. Although emissions from light and heavy-duty vehicles have decreased over time, largely due to improved vehicle emission standards and the AirCare vehicle inspection and maintenance program, on-road vehicles are still the leading source of NOx. The relative portion of marine vessel emissions increased from 2010 to 2015, and marine vessels are the second-largest source of NOx in the airshed, due to growth in shipping activities. Emissions growth has been suppressed over time with the implementation of the North American Emission Control Area (ECA), which is expected to result in steady improvements in NOx emissions from marine vessels.

Figure 3: NOx Emissions Trends and Percentage Distribution across Sectors



Particulate Matter (PM) Particulate matter (PM) like dust, soot, smoke, pollen and sea salt is a mixture of solid particles and liquid droplets. PM is emitted from sources like windblown dust, fuel combustion, industries such as coal and grain handling, and vehicle movement on roads. PM is characterized by its size, as different size fractions have different impacts and sources. The most common size fractions are total PM, inhalable PM and fine PM.

Total Particulate Matter Total particulate matter (PM) is made up of particles of all sizes. Important sources of total PM include construction and demolition dust, residential wood heating, wind erosion of agricultural land, tilling and industrial activities.

Inhalable Particulate Matter, PM10 PM10 refers to particles smaller than 10 microns. In comparison, a human hair is about 50 to 100 microns in diameter. PM10 can be breathed into the lungs and is associated with health impacts, although to a lesser degree than those associated with PM2.5. Significant sources of PM10 include construction and demolition dust, residential wood heating, industrial activities, wind erosion of agricultural land, and non-road engines.

Fine Particulate Matter, PM2.5 PM2.5 refers to particles smaller than 2.5 microns. They can be breathed deep into the lungs and contain substances that are particularly harmful to human health. Scientific studies have linked these small particles to premature death, aggravated asthma, acute respiratory symptoms, and chronic bronchitis. PM2.5 also scatters light in the atmosphere and reduces visual air quality.

At this size fraction, residential wood heating is the most significant source, with industry and mobile sources (e.g., non-road engines, onroad vehicles, marine vessels) as other large sources (Figure 4).

PM2.5 emissions have decreased steadily since 1995. Reductions from light and heavy-duty vehicles, marine vessels, non-road engines and industrial sources have driven the decreasing trend, while

emissions from residential wood heating have remained relatively steady.

Figure 4: PM2.5 Emissions Trends and Percentage Distribution across Sectors

Diesel Particulate Matter (DPM) Diesel engines emit a mixture of air pollutants, mainly composed of gaseous exhaust and particulate matter. Diesel particulate matter is a toxic air contaminant, and is classified as carcinogenic to humans by the International Agency for Research on Cancer. Emissions from diesel engines also include many other cancer-causing substances.

DPM emissions show a decreasing trend from 1995 to 2015 (Figure 5). Non-road engines and marine



vessels are the primary sources of DPM emissions. The decrease in emissions is a result of more stringent engine emission standards for light and heavy-duty vehicles and non-road engines, cleaner marine diesel fuels, as well as reductions due to Metro Vancouver’s bylaw for non-road diesel engines.

Figure 5: DPM Emissions Trends and Percentage Distribution across Sectors



Sulphur Oxides (SOx)

Sulphur oxides (SOx) are a group of sulphur compounds which, similar to NOx, are formed when fuel is burned. Health effects associated with exposure to high levels of SOx include effects on breathing, aggravation of existing respiratory and cardiovascular disease, and mortality. SOx can also interact with other compounds in the air to form secondary particulate matter and can lead to acid rain formation. SOx emissions include sulphur dioxide (SO2) and sulphate (SO4), and are reported on the basis of the molecular weight of SO2.

SOx emissions decreased from 1995 to 2015, largely as a result of desulphurization of fuels, the shutdown of several refineries in Metro Vancouver and reduced emissions from cement plants (Figure 6).

Historically, marine vessels, mainly ocean-going vessels in Metro Vancouver waters, were the largest contributor of SOx emissions in the airshed, followed by the primary metal industry operating in Whatcom County. The decrease in marine vessel SOx emissions from the implementation of the North American Emission Control Area (ECA), which took effect in two stages in August 2012 and January 2015, has resulted in the primary metal industry in Whatcom County becoming the major contributor of SOx emissions. The petroleum products industry, which includes refineries operating on both sides of the Canada-US border, is now the second-largest source of SOx emissions.

Figure 6: SOx Emissions Trends and Percentage Distribution across Sectors



Volatile Organic Compounds (VOC)

Volatile organic compounds (VOC) can react with NOx in the atmosphere to form ground-level ozone, a key constituent of smog. Some VOC also have a potential carcinogenic or toxic effect.

The major sources of VOC in the airshed include natural sources (vegetation), chemical products use, light-duty cars and trucks, and non-road engines (Figure 7). Historically, light-duty vehicles were the primary source of VOC, but their emissions have steadily decreased due to improved new vehicle emission regulations as well as the AirCare program in Metro Vancouver and the FVRD from 1992 to 2014.

In 2015, the chemical products use sector (e.g., industrial, commercial, and consumer products such as paints, stains, varnishes, solvents, and thinners) was the main source of VOC emissions (other than natural sources). Emissions from cars and light trucks were the second most prominent source. Federal regulations for VOC use in consumer and commercial products, as well as federal and regional regulations for industrial activities, are expected to help reduce VOC emissions.

Figure 7: VOC Emissions Trends and Percentage Distribution across Sectors



Ammonia (NH3)

Ammonia is a colourless gas with a very sharp odour. It is produced by animals, wastes, and fertilizer application. NH3, along with SOx, NOx and some VOC, can react in the atmosphere to form secondary PM2.5, thus contributing to visual air quality impairment and health effects associated with PM2.5.

Emissions of ammonia peaked in 2000, although 2015 saw an increase in emissions from 2010 (Figure 8). Almost all of the ammonia in the region comes from the agricultural sector (e.g., poultry and cattle, fertilizer application). Other sources such as cars and light trucks play smaller roles.

Figure 8: NH3 Emissions Trends and Percentage Distribution across Sectors



Smog-Forming Pollutants

The key components of smog are small particles (including secondary particulate matter formed in the atmosphere in the presence of NOx, SOx and NH3) and ground-level ozone. Ozone is a colourless and highly irritating gas that forms in the air when precursor pollutants (i.e. NOx and VOC) react in the atmosphere especially on hot summer days.

In order to provide a simplified, aggregate indicator of trends in smog-forming emissions, the principal “smog-forming pollutant” emissions, namely NOx, VOC, PM2.5, SOx and NH3, have been summed. These are the major contributors to the formation of ground-level ozone and fine particulate matter, and to the degradation of visual air quality.

The trend in smog-forming pollutant emissions decreased until 2010, and continued to decrease to 2015 (Figure 9). In 2015 and previously, aside from natural sources, the main contributors to smog-forming pollutants were chemical products, followed by cars and light trucks, industry, and non-road engines and marine vessels (shown under “other mobile” in Figure 9). Emissions were reduced as a result of engine and fuel regulations for motor vehicles, marine vessels and non-road engines.

Figure 9: Smog-Forming Pollutant Emissions Trends and Percentage Distribution across Sectors



Carbon Monoxide (CO)

Carbon monoxide (CO), a colourless and odourless gas, is formed when carbon-containing materials such as fossil fuels do not burn completely. The main source is transportation, particularly motor vehicles and non-road engines and equipment. CO is a health concern because exposure to elevated levels can reduce the ability of the blood to carry oxygen to the heart, brain, and other tissues, resulting in impaired performance, respiratory failure, and ultimately death.

Total CO emissions decreased steadily from 1995 to 2015 (Figure 10). This decrease resulted largely from improved vehicle emission standards and the AirCare program. Cars and light trucks are still the primary source of CO emissions, followed by non-road engines.

Figure 10: CO Emissions Trends and Percentage Distribution across Sectors



Section C – Emission Trends for Key Sectors

Findings from a review of the emissions inventory provides insight into a few key emission sectors.

Vehicles: GHG Emissions Have Levelled Off, While Pollutant Emissions Are Down Vehicles are significant contributors of both greenhouse gas and smog-forming pollutant emissions in the Metro Vancouver region, and in the broader LFV airshed. In 2015, light-duty vehicles were the largest source of greenhouse gas emissions and the second-largest source of smog-forming pollutants in the airshed.

Improved vehicle and fuel standards have continued to reduce emissions of smog-forming pollutants from motor vehicles, while GHG emissions have held steady at 2010 levels. Vehicle GHG emissions had decreased from 2005 to 2010; the change in that trend to 2015 appears to be an indicator of the region’s recovery from the economic downturn that occurred prior to 2010. Growth in the economy and the region’s population resulted in increases in overall vehicle travel; however, improved vehicle fuel efficiency and the increase in lower-carbon fuels resulted in the flat trend in GHG emissions from 2010 to 2015.

NOx, VOC and PM2.5 emissions continue to decrease due to strict vehicle emission standards, and SOx emissions have decreased substantially due to desulphurization of fuels for motor vehicles.

Heating: GHG Decreased Significantly, while Wood Burning PM2.5 Still Significant GHG emissions from heating decreased approximately 10% in the LFV airshed between 2010 and 2015, due to reduced natural gas usage. However, in 2015, heating still contributes more than a quarter of all GHG emissions. The reduction in GHG is attributable to reduced natural gas consumption in both the residential and light industrial, commercial and institutional (ICI) sectors, and is likely due in part to improving

efficiency in the regional stock of space heating appliances.

Residential wood heating continues to be the leading source of PM2.5 emissions, contributing about 28% of PM2.5 in the LFV airshed and over 30% of the PM2.5 in Metro Vancouver.

Industrial Sources: GHG Decreased Emissions of smog-forming pollutants from industry were trending down for the 1995 to 2010 period, but with recent increases in economic activity, smog-forming emissions (primarily, NOx from the non-metallic mineral processing industry) increased during the 2010 to 2015 period. However, SOx emissions have decreased substantially due to improved emissions control at refineries in Metro Vancouver and Whatcom County, and reduced production at the smelter in Whatcom County.

GHG emissions in the airshed decreased slightly from 2010 to 2015. In Metro Vancouver, GHG emissions from the non-metallic mineral processing industry (i.e., cement plants) increased, contributing over 60% of regional industrial GHG emissions. Industrial sources in Whatcom County such as refineries, the aluminum smelter and power plants are the most significant sources of GHG emissions. The petroleum products sector contributes nearly half of the 6.4 million tonnes of industrial GHG emissions in the LFV airshed.

Non-Road Mobile Sources: Diesel PM Reduced Diesel PM emissions show a decreasing trend from 1995 to 2015. The decrease in emissions is due to cleaner diesel fuels, more stringent engine emission standards for both light and heavy-duty vehicles and non-road engines, and reductions due to Metro Vancouver’s bylaw for non-road diesel engines. Diesel PM emissions from marine vessels have also been reduced due to cleaner marine fuels.



From: Robyn Worcester, Natural Resource Management Specialist, Regional Parks-West Parks, Planning and Environment Department

Date: September 25, 2017 Meeting Date: November 1, 2017

Subject: Burns Bog Ecological Conservancy Area: Update on Bog Restoration and Carbon Sequestration Research

RECOMMENDATION That the MVRD Board receive for information the report titled “Burns Bog Ecological Conservancy Area: Update on Bog Restoration and Carbon Sequestration Research” dated September 25, 2017.

PURPOSE This report provides the Climate Action Committee and MVRD Board with an update on Burns Bog Ecological Conservancy Area (BBECA) research initiatives completed and underway during 2016-2017, in particular the initiatives that are funded by the Sustainability Innovation Fund, related to improving the ecological health of the bog with a resulting increase in long term carbon sequestration.

BACKGROUND Per the Climate Action Committee’s 2017 work plan, this report provides an update on the project “Improving Ecological Health and Carbon Sequestration Potential at Burns Bog”, which was approved for funding under the Sustainability Innovation Fund (SIF) in 2015. This project intends to identify practices – including propagation of different sphagnum moss species – that can lead to accelerated ecological recovery in coastal bogs that have been damaged by previous vegetation stripping.

At its meeting on May 3, 2017, the Climate Action Committee received an update on the Regional District SIF projects, including a brief summary of progress to date on the project in Burns Bog. In addition to the research funded by SIF, there are a number of other projects underway in the Burns Bog Ecological Conservancy Area (BBECA). This report provides an overview of all research initiatives in Burns Bog, for context, with more specific information on activities related to ecological health and carbon sequestration potential. A staff report on resource management and research activities in the BBECA was received by the Regional Parks Committee and MVRD Board in September 2017.

RESEARCH INITIATIVES IN BURNS BOG Burns Bog is a raised bog wetland ecosystem of global ecological significance with unique hydrology, flora and fauna. In 2004 approximately 2,041 hectares of Burns Bog was purchased by the Government of Canada, Province of British Columbia, Metro Vancouver, and the Corporation of Delta to form the BBECA (see map in Attachment 1). Sections of Burns Bog including all of the Ecological Conservancy Area, along with other wetland areas in the Fraser River Delta, were designated as a Ramsar Wetland of International Importance in September 2012. The four purchasing partners are committed to managing the bog as an ecological conservancy. The 2007 Burns Bog Ecological Conservancy Area Management Plan (BBECAMP), developed by Metro Vancouver in collaboration with the purchasing partners, guides restoration and ongoing management of the Conservancy Area. The scientific objectives of the (BBECAMP) are:

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Burns Bog Ecological Conservancy Area: Update on Bog Restoration and Carbon Sequestration Research Climate Action Committee Regular Meeting Date: November 1, 2017

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“to return Burns Bog to an ecological condition shaped by raised bog processes, buffered from disruptive or disturbing processes on the adjacent landscape, over a timeframe of 100 years. Achieve this ecological condition by maintaining characteristic ecological processes, structure and biota interacting over time, while recognizing the directional forces of urbanization, adjacent land uses and climate change”.

Metro Vancouver Regional Parks is responsible for overall management of the Conservancy Area and the Corporation of Delta is responsible for hydrology and wildfire management. An expert Scientific Advisory Panel (SAP) provides advice on research and technical expertise. At a SAP meeting held in May 2017, the focus was to seek guidance from the SAP on current research projects and the ongoing 2016 fire area monitoring and recovery. Active collaboration with the SAP ensures the Conservancy Area is managed to support the long-term objectives established in the management plan.

The following sections outline research initiatives completed and underway in in 2016-2017, in particular those related to carbon sequestration.

Ecological Monitoring In 2014, Metro Vancouver staff collaborated with the UBC’s Department of Geography Micrometeorology Group to install a flux tower to study gas and moisture exchange at a “rewetted” study site within the BBECA. The flux tower originally measured the exchanges of carbon dioxide, water vapor, and energy between terrestrial ecosystems and the atmosphere. In 2015, the tower data collection was expanded to include methane emissions and spectral reflectance. Interim results published in 2016 showed that although summertime methane emissions are significant, on a 100-year time scale, the rewetted area was a slight net sink of carbon. A team of UBC researchers continues to maintain and operate the flux tower and will compile the data for a final report.

A water balance model is being developed for the BBECA, with completion targeted for 2018. The model will provide a scientific accounting of the inputs, outputs and storage of water within the bog. A number of experimental studies are also underway to improve understanding of the hydrological system. Hydrology data are an import input to methodologies to quantify carbon sequestration potential of the BBECA.

Vegetation monitoring at the bog has been underway since 2005 to track vegetation responses to stabilization of the water table, as well as monitoring tree growth, and changes at the 2005 fire site. Trends in species composition are beginning to emerge and will become clearer over time.

Bog Restoration and Carbon Sequestration SIF Project This SIF project was initiated in 2016, and is being undertaken in partnership with the University of Victoria. The aim is to identify practices that can lead to accelerated ecological recovery in coastal bogs that have been damaged by previous vegetation stripping and determine methods of assessing the regeneration of sphagnum in the bog. The research aims to develop methods to assess bog health and recovery resulting from our restoration efforts, which will be used to track the trajectory of the bog’s ecological recovery. This project is described in detail in Attachment 2.

This information will not only allow for the broader assessment of the condition and recovery of the BBECA, but it will also help expand our understanding of the relationship between accelerated peat formation and the carbon sequestering potential of peat biomass derived from sphagnum. By using novel and innovative means this project will ultimately enhance our collective understanding of the



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role that regional peatlands play in Metro Vancouver's carbon balance, and will aid MVRD in exploring the feasibility of maximizing carbon stored at the BBECA.

Building on the monitoring studies and bog restoration projects described above, a project is underway to develop a “Carbon Emission Reduction Credit Project Plan” for the ecosystem restoration activities in the BBECA. When that project is complete, staff will report back on the results to the Committee.

2016 Fire Monitoring and Future Fire Response Planning Water chemistry monitoring in the 2016 burn area was conducted by Corporation of Delta staff. The results showed a temporary spike in sulphate, but no increase in phosphorous. The Fraser River water used to fight fire resulted in some impacts to the water chemistry, but they appeared to flush out during the winter. Long-term vegetation sample plots and time-lapse cameras are being used to monitor changes.

Throughout the year ground and aerial patrols are conducted to monitor ecological health, fire risk and encroachments. In 2017 Metro Vancouver held a collaborative fire response exercise with Corporation of Delta fire department and other partners. Regional Parks staff are currently updating mapping of all fire suppression access routes to prepare for future fire response.

BBECA Database An integrated geo-referenced database for the BBECA is being developed to ensure all bog research and information is accessible and searchable over the long term. Staff are working to gather data and ensure the database is complete and up to date.


FINANCIAL IMPLICATIONS All operational/research projects are funded through operating budgets, grants and dedicated funds. The project “Improving Ecological Health and Carbon Sequestration Potential at Burns Bog” was awarded $115,000 from the Sustainability Innovation Fund in 2015, of which $65,000 was spent in 2016, and $50,000 is projected to be spent by end of 2017.

SUMMARY / CONCLUSION Metro Vancouver has overall management responsibility for the BBECA. Regional Parks staff work collaboratively with the Corporation of Delta to protect and enhance the natural resources of the bog. Ongoing research initiatives increase scientific understanding of bog ecology, and inform management and ecological enhancement of the Conservation Area. A number of research projects currently underway at Burns Bog are exploring the relationship between ecological health and long term carbon sequestration. An experimental SIF project aims to develop methods to assess bog health and recovery resulting from our restoration efforts, which will be used to track the trajectory of the bog’s ecological recovery and implications for long term carbon sequestration. A project is underway to develop a “Carbon Emission Reduction Credit Project Plan” for the ecosystem restoration activities in the BBECA. When that project is complete, staff will report back on the results to the Committee.



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Attachments (Orbit # 23536007) 1. Burns Bog Ecological Conservancy Area Map2. Sustainability Innovation Fund: Detailed Project Description


0 640 1,280 1,920 2,560

Meters

Burns Bog Ecological Conservancy Area

Burns Bog Ecological Conservancy Area

Highway 99

Highway 17

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5.5 ATTACHMENT 2

SUSTAINABILITY INNOVATION FUND: DETAILED PROJECT DESCRIPTION

Assisted Sphagnum spp. regeneration in cutover cranberry fields, and repeat multi-spectral imaging survey at the Burns Bog Ecological Conservancy Area (BBECA)

This project currently underway was initiated in 2016, funded by the Metro Vancouver Sustainability Innovation Fund, and is in partnership with the University of Victoria. The purpose was to identify practices that can lead to accelerated ecological recovery in coastal bogs that have been damaged by previous vegetation stripping and determine methods of assessing the regeneration of sphagnum in the bog. The research aims to develop methods to assess bog health and recovery resulting from our restoration efforts, which will be used to track the trajectory of the bog’s ecological recovery. The research proposed in the Sustainability Innovation Fund proposal was for pilot restoration approaches for assisted peat regeneration, with subsequent use of repeat multi-spectral imaging surveys to establish species specific spectral reflectance signatures at the BBECA.

Four candidate sphagnum spp. were chosen for the restoration based on their status as indicator species, and 39 randomly assigned permanent test plots were assigned to the three fields through a detailed methodology report prepared in 2016 (see figure 1). Inclement weather and adverse conditions during the winter of 2016-17, pushed the first phase of installation of the sample plots back until spring 2017. At each site, long-term vegetation monitoring plots were established and wells were installed for testing depth to water table. Each site was supposed to be evaluated for its potential to accelerate the recovery process over the coming year, but the preliminary work uncovered that the fields had undergone much faster natural regeneration than anticipated. Drought conditions and extreme fire danger rating in the summer of 2017 resulted in the bog being closed to access for much of the prime field season.

Figure 1: Example of the placement of the sample plots established over the 3 cutover cranberry fields.

The concurrent restoration assessment study, using a specially fabricated six lens multi-spectral camera array, then became the focus of the research. Equipment and instruments for the reflectance monitoring studies were chosen based on their ability to derive accurate and precise measurements of micro-meteorological and hydrological conditions at the plot scale. Spectral indices are being developed for four sphagnum species which are emblematic of hummock/hollow gradient in the bog (see figure 2). Monospecific stands of sphagnum were selected for test sites and baseline ecohydrological parameters for each permanent plot have been underway.


Figure 2: The four sphagnum mosses chosen for multi-spectral analysis

This information will not only allow for the broader assessment of the condition and recovery of the BBECA, as the camera can be attached to a drone or helicopter for flyovers, but it will also help expand our understanding of the relationship between accelerated peat formation and the carbon sequestering potential of peat biomass derived from sphagnum. We will learn new information about the seasonal variations in the four species throughout the growing period and better understand the species differences in absorption, photosynthesis, and water content.

By using novel and innovative means this project will ultimately enhance our collective understanding of the role that regional peatlands play in Metro Vancouver's carbon balance, and will aid MVRD in exploring the feasibility of maximizing carbon stored at the BBECA.


Figure 3: Winter conditions in the bog make field work difficult.

Figure 4: Andrew Elves, the Msc. candidate conducting the research.


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From: Eve Hou, Air Quality Planner Brendon James, Special Events Assistant Parks, Planning and Environment Department


Subject: 2017 Emotive Electric Vehicle Campaign

RECOMMENDATION That the MVRD Board receive for information the report titled “2017 Emotive Electric Vehicle Campaign” dated October 13, 2017.

PURPOSE This report provides an update to the Climate Action Committee and the MVRD Board on the activities and outcomes of the Emotive campaign in the Metro Vancouver region in 2017.

BACKGROUND The Emotive: The Electric Vehicle Experience campaign has wrapped up for 2017, and this report provides an overview of the 2017 events. Emotive was launched in 2014 to raise awareness about plug-in electric vehicles (EVs) in BC. The initial conceptualization of the campaign was funded through partnership between the Province of BC, Metro Vancouver, City of Vancouver and City of Surrey, with the Fraser Basin Council acting as an agent of the Province of BC. The program has thrived and grown and the summer of 2017 marked Emotive’s fourth campaign season. Each campaign season has built on the previous year’s, with more events and more engagement.

EMOTIVE EVENTS IN 2017 Metro Vancouver hired two seasonal staff to work on Emotive events around the region. These staff, with help from staff at Fraser Basin Council, contractors and volunteers, delivered Emotive to 44 events in 17 different member jurisdictions, including for the first time, Bowen Island, Tsawwassen and Delta. Over nine thousand conversations were held under the Emotive tent in 2017, and over 1,700 test drives of EVs were facilitated.

Traditionally, Emotive participates at outdoor community events and farmers markets throughout the summer. This year, the delivery of Emotive was tested at several new types of indoor venues which could potentially allow for engagement year-round. These included: • Workplaces: Emotive was brought into large office complexes by invitation. Emotive set up a

lobby display and provided an EV101 lunchtime info session for staff. This method of delivery


2017 Emotive Electric Vehicle Campaign Climate Action Committee Regular Meeting Date: November 1, 2017

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was tested at 7 workplaces across the region and found to be a cost effective way to engage highly interested audiences. Since this trial, interest has been expressed from additional workplaces and a Board of Trade in hosting additional workplace info sessions.

• Community and Recreation Centres: Later this year, Emotive will be provided to severalmunicipal community centres as a static lobby display. These displays will allow assessment of whether this low-cost method of outreach is an effective way to reach public audiences year-round. Staff will report back at a future meeting on the outcome of these trials.

Emotive staff fielded many well-informed questions about EVs in 2017. The most frequently occurring questions were about vehicle models and availability, charging in condominiums, battery life span and degradation, ability to recycle battery components, range anxiety, and how to find public charging infrastructure. Where appropriate, Emotive staff direct the public to other Metro Vancouver campaigns and outreach, such as EVCondo.ca and Caring for the Air.

In 2017, new engagement materials were launched. A transit shelter ad was developed and displayed in front of Metro Vancouver’s head office for the month of June (Attachment 1). Five new banners were created, which highlight some of the key benefits of owning electric (Attachment 2). A children’s activity book was produced, which has been very useful at engaging kids at events, while allowing Emotive staff to have conversations with the parents.

Similar to previous years, Emotive relied on many dedicated electric vehicle owners to participate as volunteer “Emotive Ambassadors” at events, sharing their personal stories of going electric. This year, Province-wide, more than 50 volunteers contributed approximately 640 work hours over 160 separate shifts.

Emotive’s social media engagements showed a modest increase in 2017, with over 2,565 Facebook page “likes” (up from 2,200 this time last year) and a growing Instagram following of 373 at time of writing.

In 2018, staff aim to deliver the campaign year-round, using new indoor venues tested in 2017. The development of new materials to engage non-English speaking communities will also be explored.


FINANCIAL IMPLICATIONS The 2017 Emotive campaign in the Metro Vancouver region was delivered within the approved 2017 operating budget, including communications aspects. Resources to continue the program have been included in the 2018 Budget and Annual Work Plan and 2018-2022 Financial Plan.


http://evcondo.ca/

2017 Emotive Electric Vehicle Campaign Climate Action Committee Regular Meeting Date: November 1, 2017

Page 3 of 3

SUMMARY / CONCLUSION For 2017 the Emotive campaign was delivered to 44 events in 17 different member jurisdictions. Emotive has been in operation since 2014, with each year’s campaign building on the previous year’s. Based on performance metrics such as the number of events, attendees, test drives, ambassador hours, and social media interest, the 2017 campaign improved on the 2016 campaign. In addition, new approaches were applied in 2017 to reach more audiences and to extend the program to be delivered year round.

Attachments (Orbit # 23535280) 1. 2017 Emotive Transit Shelter Ad2. 2017 Emotive Banners

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2017 Emotive Transit Shelter Ad

5.6 ATTACHMENT 1


2017 New Emotive Banners

5.6 ATTACHMENT 2

23535280Climate Action Committee -


From: Roger Quan, Director, Air Quality and Climate Change Parks, Planning and Environment Department


Subject: Manager’s Report

RECOMMENDATION That the Climate Action Committee receive for information the report dated October 5, 2017, titled “Manager’s Report”.

Climate Action Committee 2017 Work Plan Attachment 1 to this report sets out the Committee’s Workplan for 2017. The status of work program elements is indicated as pending, in progress, or complete. The listing is updated as needed to include new issues that arise, items requested by the Committee, and changes to the schedule.

Update on UBCM Resolutions from Metro Vancouver (B116 and B132) At its June 2017 meeting, the Climate Action Committee considered a staff report on two resolutions related to electric vehicle charging in multi-family dwellings. The purpose of these resolutions (numbered B116 and B132 by the UBCM Resolutions Committee) was to remove institutional barriers to accessing electric vehicle charging in multi-family dwellings.

The MVRD Board approved the resolutions on June 23, 2017 and both resolutions were submitted to UBCM for consideration during the 2017 convention. Per Board direction, staff also forwarded the report and resolutions to all member jurisdictions and to more than 80 local governments in the rest of BC that were identified as having multi-family dwellings.

The resolutions were as follows: • B116 (Resale of Electricity for Electric Vehicle Charging) requested that the Province of British

Columbia amend the Utilities Commission Act, before the end of 2018, to specifically exclude from the definition of a ‘public utility’ a strata corporation providing services to its members, and exclude from the definition of a ‘public utility’ a small-scale reseller of electricity at profit for the purpose of electric vehicle charging in public and private settings; and, in both of the aforementioned cases, exempt the reporting requirements currently set out in Section 71 of the Act.

• B132 (Electric Vehicle Charging in Strata Buildings) requested that the Province amend the BCStrata Property Act, before the end of 2018, such that strata councils and strata corporations must accommodate reasonable requests from residents, for the purpose of electric vehicle charging, to access existing powered outlets or, where existing powered outlets are insufficient to meet charging needs, to install new powered outlets and/or electric vehicle charging infrastructure or install new powered outlets and/or electric vehicle charging infrastructure, where the assignment of associated costs are to be determined by the strata council and/or the strata corporation.

5.7


Manager’s Report Climate Action Committee Regular Meeting Date: November 1, 2017

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Both resolutions were endorsed, and will now be sent to the relevant Ministries for response. Provincial responses will be available in 2018.

Update on Workplace Electric Vehicle Charging Program The 2017 Climate Action Committee Work Plan contains an item to provide an update on the development of a new program to raise awareness of electric vehicles in workplaces across the region.

A key barrier to electric vehicle uptake is availability of charging infrastructure. Most charging (80-90%) takes place at home; however, for many Metro Vancouver residents, particularly those who live in multi-family dwellings or park overnight on the street (known as “garage orphans”), home-based charging may not be available. The second longest dwell time for many vehicles is at work and therefore, workplace charging plays an important role in the region’s EV infrastructure network.

In the U.S., from 2013–2017, the Department of Energy ran a Workplace Charging Challenge, which partnered with organizations to provide EV charging to their employees. This program was widely successful in raising employer awareness and in building the infrastructure network. As no such programs exist in BC, Metro Vancouver endeavoured to develop an outreach program targeting employers on this topic.

To better understand this region’s workplace charging efforts and interest, a survey was completed of 300 employers in Spring 2017, which found that:

• Awareness is very low among businesses. Most have not considered EV charging as an issue. Incontrast, awareness among consumers is growing. Simon Fraser University’s SustainableTransportation Action Research Team (SFU START) assisted with a survey that seeks tounderstand EV consumer behaviour and access to charging. This survey found that almost aquarter of the vehicle-buying public are potential EV buyers. More results from this study will beavailable by the end of the year, and staff will report back in early 2018.

• Employees have significant influence. The single biggest driver for considering putting inworkplace charging is requests from employees.

• Low willingness to pay. Almost half of respondents will not consider putting in EV charging unlessit is free or near-free. However, there is a small early adopter segment who would be willing tospend over $1000 per charger.

• Parking ownership is an issue for many respondents. About half of businesses are tenants.Negotiating with a landlord adds complexity to this issue.

• There is interest in learning more. In spite of low awareness and unwillingness to spend, 41% ofrespondents said they would be interested to be contacted if Metro Vancouver or othersdeveloped a Workplace Charging Program.

Staff are developing an online and in-person program to engage with the region’s employers on workplace charging. This program will be modeled in part after EVCondo.ca, with online information and case studies, and Emotive, with in-person engagement such as lunchtime info sessions and lobby display events to interested employers. This latter component is already being trialed through the Emotive program, but will likely transition to EVWorkplace.ca once that program is live. This initiative is being informed by a multi-stakeholder advisory group which meets monthly to provide input and guidance.



Page 3 of 5

Staff expect to launch this program in the New Year, and will return to the Climate Action Committee with an update at that time.

Direct Current Fast Charger for Electric Vehicles at Metrotower III In February 2017, the MVRD Board approved Sustainability Innovation Funding (SIF) for a project to install, operate and manage a DC Fast Charger to be located at Metro Vancouver’s new head office. An objective of the project is to test different pricing mechanisms for the use of the charger, which is intended to serve neighborhood residents (many living in multi-unit residential buildings), visitors to Metro Vancouver, staff and fleet. The funding amounts were $100,000 in 2017 and $50,000 in 2018.

Since that time, a site has been selected within the Metrotown Metropolis shopping complex public underground lot (P1 level), adjacent to one of the gates to Metro Vancouver’s access-controlled parking lot at Metrotower III. This location was selected because it is accessible to the public 24 hours a day, and it is also convenient for Metro Vancouver employees and visitors.

It is expected that this location will also have up to four Level 2 chargers adjacent to the DCFC, which are not included in the SIF project and will be paid for through pre-approved 2017 budget. Two of the Level 2 chargers have been designated for a proposed car share pilot project.

The design and specifications process for the DCFC project are underway, and a tender will be issued before the end of the year. Staff anticipate some cost efficiencies will be realized, as the work is being undertaken as part of a larger project to install electric vehicle charging equipment for fleet use at Metrotower III, as well as the four Level 2 chargers described earlier. Staff expect that the DCFC station will be operational by the second quarter of 2018.

Near-Road Monitoring Pilot Study Metro Vancouver has completed the data collection phase of the Near-Road Monitoring Pilot Study to examine the air quality effects of traffic close to major roads. Data was collected from two temporary air quality monitoring stations established by Metro Vancouver in the City of Vancouver to measure traffic-related pollutants adjacent to a major roadway and at a reference site located away from traffic. The near-road monitoring station was located on Clark Drive, a busy car and truck route, at East 11th Avenue. The reference, or background, station was located at the Sunny Hill Health Centre for Children on Slocan Street in East Vancouver. (See photographs of the two stations in Attachment 2). The two stations were operated concurrently for approximately 16 months from May 2015 to September 2016, after which time the Sunny Hill station was decommissioned. Operation of the Clark Drive near-road monitoring station has continued and conversion of the station into a permanent station in the regional air quality monitoring network is being planned.

Emissions from motor vehicles are one of the largest sources of air pollutants in Metro Vancouver. Many of the air contaminants related to traffic have been associated with adverse health effects. Living and spending time near a major roadway has been identified as a risk factor for a number of respiratory symptoms and cardiovascular problems. Approximately 4 million Canadians live within 100 m of a major road, about 13% of the total population. In Metro Vancouver, over 400,000 people or more than 20% of the population resides within 100 m of a major roadway.

The pilot study measured several air pollutants that are currently measured in the regional air quality monitoring network including: particulate matter, nitrogen oxides, black carbon, ground-level ozone,


http://www.metrovancouver.org/services/air-quality/AirQualityPublications/PMFactsheet.pdf


Page 4 of 5

volatile organic compounds, and carbon monoxide as well as meteorological measurements such as temperature, wind direction, and wind speed. The near road study also allowed an assessment of new monitoring technologies for ultrafine particulate matter.

The Near-Road Monitoring Pilot Study is a partnership between Metro Vancouver, Environment and Climate Change Canada, the Ontario Ministry of Environment and Climate Change, and the University of Toronto. It is one of two such studies being conducted in Canada, with the other taking place in Toronto. Environment and Climate Change Canada, through the National Air Pollution Surveillance program that supports air quality monitoring in provinces and regions in Canada, was the lead agency for the study and provided instruments, supplies and infrastructure, as well as funding for researchers at the University of Toronto. Metro Vancouver staff participated in planning and carrying out the study, and also provided equipment from the existing air quality program.

Analysis of data collected during the study is occurring now by study partners with a full report expected in 2018. Information from this study will be used to characterize air quality near major roadways and the spatial extent to which transportation-related emissions impact air quality. This study will also inform the development of a national near-road monitoring strategy that will provide recommendations for continued monitoring in the near-road environment in large urban centres, and improve understanding of the health effects associated with traffic-related air pollutants.

Attachments (Orbit # 23591492) 1. Climate Action Committee 2017 Work Plan2. Near-Road Monitoring Pilot Study: Clark Drive Station and Sunny Hill Background Station

23463856


Climate Action Committee 2017 Work Plan Report Date: October 5, 2017

Priorities 1st Quarter Status Consider draft Integrated Regional Climate Action Strategy and initiate consultation and outreach activities.

in progress

Review Sustainability Innovation Fund proposals and make recommendations to the Board.

complete

Initiate consultation on potential regulatory mechanisms to reduce emissions from indoor residential wood burning.

complete

Initiate consultation on proposed amendments to the Automotive Refinishing Facilities Regulation.

complete

Emotive preliminary events schedule for 2017. complete Participate in environmental assessment processes as requested. complete 2nd Quarter Prepare sixth annual Caring for the Air report and continue to expand outreach. complete Consider a draft policy on internal carbon pricing, to ensure greenhouse gas emissions are considered in Metro Vancouver business decisions.

complete

Status report on projects and progress on deliverables that the Committee and Board approved Sustainability Innovation funding for in 2016.

complete

Progress report on the “RateOurHome” Home Energy Labelling outreach campaign (Sustainability Innovation Fund project initiated in 2015).

complete

Report on the results of the Smart Drive Challenge (Sustainability Innovation Fund project initiated in 2015).

complete

Report on launch of Strata Energy Advisor Program (Sustainability Innovation Fund project initiated in 2015).

complete

Progress report on GrowGreen website (Sustainability Innovation Fund project initiated in 2015).

complete

Initiate consultation on development of new programs to address emissions from on-road light- and heavy-duty vehicles, in partnership with other levels of government.

in progress

Sustainable building guidelines review. in progress Participate in environmental assessment processes as requested. complete 3rd Quarter Report on Metro Vancouver’s climate actions and carbon neutral progress for 2016.

complete

Implement additional energy and greenhouse gas reduction offset projects that will achieve and maintain Metro Vancouver’s carbon neutral status.

complete

Initiate consultation on proposed regulatory mechanisms to reduce discharge of odorous air contaminants, including potential changes to the Air Quality Management Bylaw and Air Quality Management Fees Bylaw

in progress

Update on workplace electric vehicle charging program, including survey results from consumers and employers.

in progress

Initiate process to develop an update of the Integrated Air Quality and Greenhouse Gas Management Plan.

in progress

5.7 ATTACHMENT 1


Report on renewal of Ecological Health Action Plan in progress Report on results of the 2015 Lower Fraser Valley Emissions Inventory and Forecast.

in progress

Adopt new ambient air quality objective for sulphur dioxide. in progress Participate in environmental assessment processes as requested. complete 4th Quarter Report on Emotive electric vehicle campaign outcomes for 2017. in progress Report on consultation program initiated in 2016 regarding proposed amendments to the Non-Road Diesel Engine Emission Regulation Bylaw, and present proposed bylaw amendments for GVRD Board approval.

in progress

Engage with external agencies on potential regulatory mechanisms to reduce wood burning emissions from outdoor, commercial, and light industrial activities and operations.

in progress

Update on implementation of Fleet Planning and Acquisition Policy adopted by the Board in 2016.

in progress

Report on status of experimental restoration activities at Burns Bog for ecological health and carbon sequestration (Sustainability Innovation Fund project initiated in 2015).

in progress

Report on near-road air quality monitoring study and potential next steps. in progress Report on activities of Regional Invasive Species Task Force. complete Participate in environmental assessment processes as requested. in progress Consider proposed 2018 air quality and climate action programs and budget. complete


5.7 ATTACHMENT 2

Near-Road Monitoring Pilot Study: Clark Drive Station and Sunny Hill Background Station

Fig. 1. Clark Drive Near-Road Monitoring Station located on a busy truck route

Fig. 2. Sunny Hill Background Monitoring Station located away from traffic influences


6.1

Minister of Transport Ministre des Transports

OCT 3 2017

His Worship Greg Moore Chair Metro Vancouver Board 4330 Kingsway Burnaby BC V5H 408

Dear Mayor Moore:

Ottawa, Canada K 1 A ON5 G~_CM~

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Thank you for your recent correspondence regarding the development of the national Zero-Emission Vehicle (ZEV) Strategy.

Transportation is the second largest source of greenhouse gas emissions in Canada, and I am committed to taking steps that will put the sector on a low-carbon path.

The government takes seriously the Pan-Canadian Framework commitment to work with provincial and territorial governments, industry and other stakeholders to develop a Canada-wide strategy for ZEVs. As part of the process of developing the ZEV Strategy, the government has had very positive discussions with the Advisory Group and Expert Groups, and looks forward to these groups' input to government.

Local governments, including many representatives from within the Metro Vancouver region, have been contributing to the development of the ZEV Strategy through their participation in the Expert Groups. I would like to take this opportunity to thank you for Metro Vancouver's input into this process.

The Metro Vancouver region's efforts are a good example of what leading local governments can do to support increased deployment of ZEV s. You and your municipalities' hard work demonstrates the importance of action at all levels of government.

Canada Climate Action Committee -

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The federal government is working with all provinces and territories on this important initiative, through a federal- provincial-territorial steering group. Through this process, stakeholders will continue to be engaged on the development of the strategy.

The development of the ZEV Strategy will also be informed by the extensive input on ZEV s that was received through previous public consultations, including Environment and Climate Change Canada's "Let's Talk Climate" portal and the Transport Canada "Transportation 2030" website.

As you know, the Expert Groups focused on five key areas: vehicle supply, charging and refueling infrastructure readiness; costs and benefits of ownership; public awareness and education; and, technological advancement in clean growth and clean jobs. The policy measures that you have proposed (a nation-wide incentive program, increased funding for infrastructure and a ZEV requirement) are among the list of options currently being analyzed.

Should you wish to contribute new ideas or analysis for consideration in the development of the ZEV Strategy, please contact [email protected].

Thank you again for writing and for your efforts on this important topic.

Yours sincerely,

c.c. The Honourable Catherine McKenna, P.C., M.P. Minister of Environment and Climate Change
