CITY OF BURLINGTON

DEVELOPMENT & INFRASTRUCTURE DIVISION

For information not available through this medium, please contact the City Clerk's Department at (905) 335-7698.

Chairman and Members of the
Community Development Committee

THAT the City of Burlington develop and implement an education strategy to reduce idling of vehicles and vehicle usage within the City of Burlington. This strategy is to include, but not be limited to:

• An extensive community education program on the benefits of reducing vehicle usage and not idling vehicles
• A targeted education program aimed at fleet managers;
• Signage development and placement at sites such as Schools, and sports arenas, hotels, shopping centers and other areas where idling has traditionally taken place
• In conjunction with the Province and where appropriate, education programs along the QEW to discourage unnecessary idling

AND That the education program for reducing idling of vehicles link to the SMOG education campaign and be developed in consultation with the Sustainable Development Committee

AND that the City work in partnership with other agencies, industry groups, community groups and other organizations to identify funding opportunities,

AND That these initiatives as they relate to the City’s activities and operations be included as part of the Environment Management Plan currently being developed by the City;

AND That the outcomes of education initiatives be included within the State of the Environment Report being reviewed by the Sustainable Development Committee and Environment Management Team.

AND That a review of the education program and its outcome be undertaken after two years from implementation, with an explicit review of the need for an anti idling by-law.

AND That a review of the City’s approach to idling of its vehicles be undertaken as part of the development of the Environment Management Plan.

The purpose of this report is to outline a strategy to address issues associated with idling of vehicles and their environmental impact.

Council, on March 29, 1999 passed the following resolution (Item CD-35-99-1):

That staff in consultation with the Sustainable Development Committee be directed to investigate the pros and cons of motor vehicle idling (sic) including the matter of enforcement and, if required, to present a by-law to prohibit unnecessary motor vehicle idling in the City of Burlington and to report back to the Community Development Committee at its meeting to be held on September 27, 1999;

and further that staff be directed to meet with members of the Sustainable Development Committee to discuss ways to re-implement the Corporation’s anti-idling efforts as it relates to City vehicles.

The timeline for this activity was subsequently amended to no later than March, 2000. (CD-149-99 and CD 193-99)

The initiative for the recommendation for an anti-idling by-law came from the Sustainable Development Committee. In a paper to CDC and Council, The Committee noted that it ‘…encourages Council to consider a municipal by-law to prohibit idling as a positive step towards meeting the long-term environmental goals’

Staff has specifically researched mechanisms to address idling of vehicles. It is emphasized that this is only one approach for improving air quality for the citizens of Burlington.

With respect to the second part of the resolution of Council it should be noted that the City has implemented some anti-idling measures for its vehicles. For example, decals on the need to reduce idling are placed on all City Vehicles to alert drivers. It is staff’s intent to review the current city measures as part of the Environment Management Plan and identify any future efforts that the City can take in this area.

The quality of the air we breathe is developing as a significant environmental, health and economic issue.

The Hamilton-Wentworth Air Quality Initiative Summary Report indicates that there are at least 90 premature deaths per year, and up to as many as 321 premature deaths, as a consequence of the current air quality in Hamilton-Wentworth. In addition there are another 300 hospital admissions per year because of air quality

In Ontario, recent reports and strategies have identified more closely the link between health and air pollution. "In Ontario 20% of hospital admissions for bronchitis, bronciolitis and pneumonia in infants under the age of one can be attributed to summer pollutants of ozone and sulphate" The Ontario Medical Association (OMA) has produced a position paper, which provides an overview of the adverse health impacts of air pollution as well as recommendations. A key finding is that the health problems identified in the paper are preventable through a number of measures including reduction of emissions. The OMA note that, in the long term, primary health prevention includes empowering patients to become part of the solution, "by reducing emissions through personal actions such as reducing car use by using public transit, car pooling, walking or cycling; buying a fuel-efficient vehicle, keeping your car well tuned, checking the emission control system and turning off your engine while waiting.

At the global scale, the head of the United Nations Environment Program has recently stated at the launch of the UN programs GEO-2000 report that it may already be too late to stop global warming and that the Kyoto treaty may fail. In December 1997, Canada, along with all other members of the OECD and economies in transition, completed negotiations on the Kyoto Protocol which outlined various greenhouse gas reduction targets. The Protocol, once ratified, would commit Canada to a greenhouse gas reduction 6 per cent below 1990 levels in the period 2008-2012. The Protocol would commit the U.S. to a 7 per cent reduction, Japan a 6 per cent reduction and the European Union to an 8 per cent reduction.

The Ministry of Environment has recently produced a document looking at smog alert and suggesting methods of municipal responses. Recent seminars and conferences have identified both issues and options for addressing both air pollution and climate change.

The studies and reports identify that motor vehicle usage is a significant contributor to air pollution and its consequent health impacts.

Vehicle emissions are responsible for impacts on both health and the environment. Table 1 on the next page summarizes the impacts of components of vehicle emissions.

In terms of scale, in Ontario in 1997 approximately 38% of Nitrogen Oxides, 50% of Carbon Monoxide, 11% of Inhalable particles (PM₁₀ ) and 21% of Volatile Organic Compounds were from road vehicles.

To summarize, there is considerable evidence to support the development of a strategy to reduce vehicle usage. Reducing idling of vehicles is only one aspect of any strategy.

Staff has consulted with Municipalities that have implemented idling By-laws, as well as the Clean Air Alliance, and the Toronto Environment Alliance. Staff also met with the Sustainable Development Committee to obtain the view of members on the issue. Various staff within the City were also approached for their views. On the basis of this research a draft position paper was written and circulated to the Staff Development Committee and the Environment Management Committee for comment. Verbal briefings were also provided at meetings of staff. This report to CDC incorporates additional information obtained during the consultation process.

Table 1

Effect of pollutants from vehicle emissions on Health and the Environment

Within Ontario, four municipalities have passed By-laws related to vehicle idling. These are the City of Toronto (October 2 1998 (amended)), The City of Guelph (1998), the City of Niagara Falls (October 1998) and the City of London (August 3 1999). The City of Ottawa does not have a By-law on vehicle idling but does have a reference to idling vehicles as part of its noise by-law.

The approach by the City of Toronto for a By-law arose initially from a concern about the idling of buses but developed to a strong view of the impact of motor vehicles on air quality. Responsibility for enforcement is by the City of Toronto By-law Enforcement officers on a complaints basis. Staff at the City of Toronto noted that the by-law is difficult to enforce. Two tickets have been issued to date. More emphasis has been placed on information rather than enforcement with the production of a 2-page fact sheet, translated into seven languages. The City of Toronto is looking in the future to target commercial activity (e.g. taxis).

The approach taken by the City has generated interest within schools and teachers who are interested in the child safety and children’s health aspects.

Staff at the City of Guelph reported that Anti idling had already been covered as part of their noise by-law. A separate anti-idling By-law was passed as part of the initiative to reduce greenhouse gases by 20%. The By-law is not enforced on a day-to-day basis but police have responsibility and will respond based on complaints. No additional funds have been made available to implement the by-law. No complaints had been received to date.

Niagara Falls initiated an anti idling bylaw as a response to concern about tourist buses idling engines and the subsequent nuisance to residents. The By-law enforcement officer will enforce the By-law. The action arose as a specific concern about the large number of tourist buses in the City. A number of motels abut residential areas and some drivers were starting their buses and then going in for breakfast. Residents in the area were concerned about the nuisance aspects, including odor going into houses. It has not been developed with the general motorist in mind but that facility is available.

The development of the Anti idling By-law was controversial within the City. The Health Unit had looked at it in various forms for three years before Council adopted it. The initiative was closely tied to health issues. The chosen implementation strategy will involve a targeted approach to industry and fleet managers. The By-law was seen as part of community education. The Health department is trying to change behaviors that contribute to air pollution.

The City of Waterloo has advised that there has been some discussion on an anti–idling approach but no decisions made.

The Region of Waterloo has advised that a regional wide approach is being considered. The City of Waterloo, Cambridge, the Rural communities and the Regional Municipality of Waterloo are due to meet on the 7^th of March to look at the pros and cons of a By-law or some other strategy.

The City of Kitchener has a policy of not idling in relation to its own vehicles but does not have an approach in relation to other vehicles.

The Region of Hamilton-Wentworth have put any consideration of a by-law on hold as they deal with issues of governance and amalgamation with a review of all by-laws to be undertaken. The Hamilton-Wentworth Air Quality Improvement Committee is initiating the use of signage in the northern part of Hamilton to encourage people not to idle and is focusing on education first.

Throughout consultation and discussion, there has been agreement that a strategy to reduce the impact of vehicle emissions during idling should be developed by the City. There has been disagreement about the best approach, with considerable focus on the merits of whether to recommend a By-law.

Reducing idling may have the following benefits:

• Fewer motors turning means fewer emissions which means that the public as a whole is better off;
• the City is seen to be ‘doing something’ to encourage better environmental performance;
• Less vehicle emissions reduces pollutants and greenhouse gases.

Views put to the staff on the specific advantages of a by-law as opposed to some other tool is:

• It provides an edge to community education programs because it is a deterrent
• It provides a philosophical statement that the society does not condone a particular behavior;
• It provides leverage for discussions with fleet owners to get drivers to modify behavior
• The City, by instituting a bylaw, would be doing one of the few things that it is able to do from a jurisdictional point of view regarding air pollution.

Staff have reviewed the merits of the by-law and have identified the following difficulties:

• It addresses a comparatively small area of activity that has an environment and health impact;
• Unless part of a wider program a by-law runs the risk of being misunderstood and dismissed within the community, and City staff;
• It may be seen as taking a ‘soft option’ approach without tackling a wider range of options
• It is a by-law that it is difficult to enforce;
• If a by-law is introduced then there needs to be commitment to enforce it;
• It is a bureaucratic and legalistic approach to an issue which is better approached as an educational issue;
• It needs resources for enforcement and for a sustained effort for publicity to keep in the public eye;
• It has a ‘big brother’ aspect.
• There is difficulty in allocating resources to implement the by-law during a time of fiscal restraint

The Sustainable Development Committee has reviewed the difficulties that have been identified by staff and their comments are in Table 2 on the following page.

Both sides of the argument have been reviewed by the City staff and with the Sustainable Development Committee. The full response from Mrs. Pocock is included as Appendix One. Additional information has been provided by the members of the Sustainable Development Committee including extracts on cost-benefit analysis of the benefits of reducing particulate matter. These additional papers are also available.

To date, it is clear that the Sustainable Development Committee supports the approach of an Anti idling By-law, preferably supported by an education program.

A major concern about the effectiveness of a By-law as opposed to some other strategy revolves around enforcement. The following are points that have arisen out of the research and discussion.

Table 2: Response of Sustainable Development Committee to points raised by staff on difficulties with a by-law.

Method of enforcement.

All of the by-laws passed to date have been based on the Toronto model. This includes a time limit for idling, and then a considerable list of exclusions for particular activities or vehicles. The limit for idling varies, for example 3, 5 and 10 minutes within any one 60 minute period.

To prove that the By-law has been broken, an enforcement officer would need to demonstrate that the vehicle was idling for more than the allotted time over an hour period. This would require an officer to be at the vehicle for an hour to satisfy both elements of the By-law. This contrasts, for example, with a Parking by-law where an officer can mark a tire with chalk mark at one time and return at some later stage to see if the vehicle is still there.

Advice received from Traffic and Transit is that to proactively enforce the Anti-idling By-law 2 additional staff would be needed. If the Commissioners are used then based on the current rate of payment of $13.57 per hour at 1500 hours per year by the City for enforcement services, this would amount to approximately $40,710 per annum. In addition, lease and operating costs for 2 enforcement staff (2 vehicles in total) is an additional $30,000. This is a total cost of approximately $70,000 for proactive enforcement. If the By-law enforcement officers of the Building Department were to be used then they would only be available during normal business hours, and only on an exception basis would there be enforcement activity on a weekend. Use of Building Department staff would also incur a cost.

An alternative to enforcing an Anti-idling By-law in a proactive manner is to respond to complaints only. In this approach, enforcement officers would receive a complaint and investigate. The same issues arise about the time and methods needed to ensure that any enforcement could be effectively undertaken. This would be less costly but there is the issue of the timeliness of response to complaints when the vehicle may have moved or been turned off. If enforcement is undertaken on a complaint basis then there is the cost of observing a vehicle for an hour for each individual vehicle. Use of the enforcement officer will mean that they are not available to undertake other enforcement activities. The rate of enforcement for other enforcement activities will be reduced. This may therefore affect the level of service for enforcement in other areas.

By-law as a deterrent.

This is an argument that there are always people who won't listen and having some force available will make them change. It is essentially an argument for having the 'stick' in reserve. There is considerable debate about the merits of this argument on a philosophical and legal basis. A By-law will only be useful as a ‘stick’ if it is enforced. In the opinion of staff, a By-law does not have a deterrent effect. Having a By-law on the books of itself will not stop idling. Arguably a By-law does not have a deterrent effect unless it is enforced.

It is staff’s opinion that a By-law in this case and at this time is an ineffective tool to create change. It is premature to legislate before there has been an opportunity to educate. The long-term goal is for the members of the community to take ownership of the problem and of the solution. The opinion of staff is that the more effective tool for that type of ownership is through education rather than legislation. To get change you have to have people wanting to change.

Staff are recommending that a process of education of the community should be the first priority. This will require some thought and research as to barriers faced by people in relation to idling of vehicles, and developing the most appropriate messages. There are excellent resources about to assist in the development of effective tools

The outcome of any education campaign should be to raise awareness and provide tools for citizens to make better-informed choices. Appendix Two outlines some examples of ‘did you know’ questions and answers that might be incorporated into an educational campaign.

The Halton Region Smog Response Plan includes in its recommendations the development of an anti idling strategy for participating organizations. In addition, funding has been allocated to the development of a communications strategy in relation to the linkages between health and smog, and actions that individuals in organizations and at home can undertake to reduce the impact of Smog. A communications working group has been established and examples of existing media campaign material have been collected. The City of Burlington is represented on the working group.

The development of this communication strategy also provides an opportunity to increase awareness and influence actions to improve air quality. Not idling vehicles is one of the messages that will be built into this communications strategy. Appendix Three includes some of the main messages and outlets that have been developed to date.

The development of the communications strategy for the Smog Response Plan has highlighted that there are a significant number of opportunities for getting messages to people that may not cost money, but use existing packages of information.

In addition, a sum up to $5,000 has been identified from the Environment and Energy budget to assist in the development of educational strategy and packages to reduce idling of vehicles. External funding assistance should also be sought.

Through the research for this paper a number of things became clear. One is that there are an increasing number of linkages being made scientifically between the impact of vehicle emissions and health and the environment. Second, there is an increasing concern being expressed by the community about air pollution and health impacts. Thirdly, while there is concern, there often is not the knowledge about what individuals can do to make a difference.

A challenge for the City of Burlington is to provide leadership that can have a positive impact on the health of residents and at the same time protect and improve the quality of life of the City's residents. It is the view of staff that trying to force people to change their behavior through an anti-idling bylaw is inappropriate.

The City can provide considerable leadership by developing and implementing an educational strategy on vehicle usage and emissions with an initial focus on reducing idling of vehicles. This can build on other partnerships being developed such as the Smog Response Plan. It is the view of staff that a collaborative, education based program will obtain much better outcomes than a prescriptive legislative approach.

Respectfully submitted,

Narelle Martin
Environmental Co-ordinator

TO: Narelle Martin|
Environmental Co-ordinator

FROM: Dorothy Pocock
Sustainable Development Committee

DATE: November 8, 1999

SUBJECT: Anti-Idling Strategy – File: 130-07

Bob Hicks provided some feedback, dated October 25, 1999, supported by committee members, regarding the above subject. Following further consultation, I would like to add some further comments:

• It is obvious that air quality has become an important issue in society today and that measures are being taken to address it – to this end various communities in southern Ontario have instituted by-laws in the last couple of years to curb unnecessary idling. Although some appear to have not carried their efforts further. We should take our cue from the City of Toronto which appears to be on the right track of combining a bylaw with education and awareness.

• From an education point of view the recommendations in your report can be regarded as a positive step although some concerns were expressed about the time element – how soon would these activities take place and will there be funding to do this ?

• To refer to the matter of idling as a "small area of activity that has an environment and health impact" is to trivialize this issue. The City, by instituting a bylaw, would be doing one of the few things that it is able to do from a jurisdictional point of view regarding air pollution. It would also be illustrating its leadership in this area. While the Region has introduced the Public Sector Smog Response, I am not aware that any other community in the Region has taken the matter of air quality to the public in general. Burlington could play an important role by encouraging other municipalities in the Region to do the same.

• The matter of enforcement is one that could be dealt with on a complaints basis – it should not be seen as a bylaw in which there will be an enforcement officer lurking with a stop watch at the corner smoke shop. A bylaw notice could be used to provide the authority for signage, drawing attention to the importance of turning off one’s engine rather than idling unnecessarily.

• A bylaw coupled with an aggressive educational and awareness program would meet one of the Principles for Sustainable Development, namely, "Protect the Environment in both a proactive and remedial manner, with emphasis on anticipation and prevention". Therefore the Committee hopes that the City, as a sustainable community, will take the step of proceeding with this combined course of action to reduce unnecessary idling.

c.c.: Sue Conick

Did you know: An idling gasoline engine will use about 3.5 litres of fuel per hour

Did you know: An idling diesel engine will use about 2.5 litres of fuel per hour

Did You know: Idling a vehicle for more than 30 seconds generates more emissions than turning the engine off and restarting it

Did you know: The use of private vehicles is a key to improving air quality – both for pollution and for greenhouse gases.

Did you know: Excessive idling of vehicles contaminates lubricants in vehicles. This is because engine operation at idling temperatures creates soot deposits and condensation of water vapour mixes with suphur oxides to become sulphuric acid in the crankcase

Did you know: On average, one passenger on public transit produces approximately eight times less carbon dioxide than a single driver in a car over the same distance.

Did you know: Walking, running, cycling and in-line skating are great ways to reduce harmful emissions and improve your health.

Did you know: Carpooling saves wear and tear on your vehicle and reduces fuel and parking costs.

Did you know: Having your car’s emission control system checked regularly and keeping the tires properly inflated can reduce fuel consumption by 15%.

Did you know: Eliminating four short car trips every week could save up to 100 kg. of carbon dioxide emissions each year.

Did you know: Using alternative fuels such as ethanol or methanol have fewer impurities than gasoline and, therefore, produce less emissions that contribute to smog formation. Check with your mechanic to see which fuel is best for your car.

Did you know: A single bus can take up to 40 vehicles off the road, save as much as 70,000 litres of fuel and keep 9 tonnes of air pollutants per year out of the air.

For further information:

There are some excellent resources available on air quality, smog, greenhouse gases and the impact of vehicles. Suggested sources of information include:

Environment Canada:

The Green Lane: http://www.ec.gc.ca

Exhaustion: A Guide to Transport Emissions: http://www.ec.gc.ca/emission/toce.html (A series of fact sheets)

Resource Centre on Smog: http://www.ec.gc.can/smog/cando.htm

Smog and your health: http://www.ec.gc.ca/smog/health.htm

Climate Change: http://www.ec.gc.ca/envpriorities/climatechange_e.htm

Government of Ontario:

Ministry of Environment: http://www.ene.gov.on.ca/programs/programs/index.htm

Ministry of Health

Federation of Canadian Municipalities: http://www.fcm.ca/_vti_bin/shtml.dll/index/html

Partners for Climate Protection Program. Includes case studies of approaches taken by Municipalities including Active Transportation, Fleet Management and Transportation.

Outline of Environmental Polices of the FCM

Pollution Probe: http://www.pollutionprobe.org/air/smog/html

International Council for Local Environment Initiatives (ICLEI): http://www.iclei.org/

The following are extracts from the Draft Communications Strategy for Phase 1 of the Smog Response Plan. A sub committee of the Halton Public Sector Smog Response Committee has been formed to develop the Communications Strategy and implement it. Some funds have been allocated.

Target groups identified include Public Sector Employees, Community at Large and the Private Sector. This listing is very preliminary. Further vehicles and channels are to be identified for each Target group. In addition, questions raised for future discussion include: whether the future Halton campaign will look at air quality in general or SMOG in particular; what are ways in which the SMOG issue can be leveraged; and what are other sources or avenues for funding.