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Performance Report on Environment Canada's 2011–2012 Departmental Sustainable Development Strategy

Part 3: EC's Clean Air Agenda Programs: Performance Achievements for 2011-2012

Clean Air Regulatory Agenda

Atmospheric Research, Monitoring and Modelling

Link to 2011-2012 Departmental Program Activity Architecture (PAA)

Climate Change and Clean Air Regulatory Program

Clean Air Agenda Program Description and Expected Achievements
Greenhouse Gas Monitoring and Modelling

Greenhouse gas (GHG) research will improve understanding of regulated and non-regulated sources and provide insights as to the effectiveness of regulatory actions taken (both domestically and internationally). This should lead to the improved characterization of current and past concentrations of greenhouse gases, their sources and sinks, and the climate response (including carbon-cycle feedbacks). Improved characterization based on an expanded atmospheric GHG measurement network, combined with climate and GHG modelling approaches to determine baselines from which environmental impacts can be established, will be used to determine progress on the implementation of regulations.

GHG observations and climate modelling studies focused on the Arctic will support the Northern Strategy and federal initiatives to support climate mitigation measures.

Expected achievements for the GHG Monitoring and Modelling include the following:

  1. Delivery of GHG science, monitoring and modelling to improve the characterization of Canadian GHG emissions and to contribute to the verification of domestic and international mitigation commitments as well as to support the development and evaluation of emission targets, inventories and regulations. Science activities are focused on atmospheric emissions from both the industrial sector as well as the non-industrial sector.

  2. Enhanced GHG monitoring network and climate modelling to develop methodologies for independent estimation of GHG emissions (carbon sources and sinks) based on observations and the Canadian Earth System Model (CanESM). New monitoring sites will be established and maintained in the northwest Arctic (in 2011-2012) and western Canada (in 2012-2013) to achieve regional-scale information and supplement the existing network.

  3. Continued development and improvement of climate modelling capacity to ensure that Canada has the capability and scientific expertise to support the development of GHG emission regulations, and to quantify the climate influences of regulations and mitigation processes.

Aerosols / Black Carbon Monitoring and Modelling

Aerosols science in support of regulatory activities and accountability will characterize black carbon levels in the atmosphere and their attribution to anthropogenic and natural sources. It will help improve the understanding of the impacts of aerosols (including black carbon) on regional scales as short-lived climate pollutants (SLCPs). This work also supports improved climate models to assess long-range transport and the role of these aerosols in climate change. Expected achievements for the aerosols / black carbon monitoring and modelling component include the following:

  1. Improved characterization of current and past concentrations, and their attribution to anthropogenic and natural sources;

  2. Improved models to assess long-range transport and the role of these aerosols in climate change. This information is used to establish baselines from which environmental impacts can be established and used to determine progress on the implementation of regulations related to emissions of black carbon, organic carbon, and sulphur (SO2); and

  3. An enhanced aerosol observational network in order to establish baselines and improve our modelling capabilities. This will allow us to provide robust quantitative estimates of the impact of aerosols on climate and associated feedbacks from snow and ice, including the effects of changing albedo.

Air Quality Monitoring and Modelling

EC will undertake research, monitoring and modelling activities on air pollutants in order to contribute to the understanding of the impacts of emissions on human health and the environment. This will enhance knowledge and information associated with the long-range transport, transformation and deposition of pollutants; improve tools to predict and describe benefits resulting from policy and regulatory actions and compliance mechanisms; and enhance the understanding of source contributions and trends.

Emphasis will be placed on informing the Air Quality Management System (AQMS), as this system relies heavily on effective air quality monitoring and research results, on understanding transboundary movement of air pollutants, and on modelling and reporting. Atmospheric science activities will also inform Canadian commitments related to the Canada-United States Air Quality Agreement.

A number of the proposed scientific initiatives for 2011-2012 to 2015-2016 are an extension of the previous Clean Air Regulatory Agenda (CARA) activities that will continue to inform regulatory actions and accountability. These activities include integrating and adapting the management of current monitoring efforts, enhancing spatial measurements (including remote sensing), augmenting emission-to-effect predictive modelling capacity, quantifying transboundary contributions, understanding atmospheric processes (e.g. processes governing smog formation), working collaboratively with Health Canada to assess the effects of specific air pollutants sources on human health (e.g. fine particulate air pollution as a cause of cardiovascular disease), and understanding atmospheric contribution to ecosystems (e.g. determination of critical loads).

Clean Air Agenda Program Achievements / Performance Summary
Greenhouse Gas Monitoring and Modelling

A new GHG monitoring station was established in the western Canadian Arctic (near Inuvik, Northwest Territories) in fiscal year 2011-2012, and the logistical groundwork was laid for another new site in western Canada (Abbottsford, British Columbia). Development and analysis of the Canadian Earth System Model (CanESM) supported the analysis of planned emissions scenarios (including SLCPs) and application of the Global Environmental Multiscale weather forecast model to inverse approaches integrating satellite and surface-based observations to estimate source strengths from managed and unmanaged sources.

Aerosols / Black Carbon Monitoring and Modelling

The focus was on understanding direct and indirect radiative (warming/cooling) impacts and improved climate predictions. Funds supported aerosols / black carbon baseline monitoring and trend analysis for four regional sites (including the Arctic) and development of modelling tools to estimate regional-scale influences on climate, in the context of Canadian and international source influences. Specifically, the work supported atmospheric monitoring of aerosols (physical, chemical and optical characteristics) to provide baseline information to support climate model evaluation studies and to enhance the current Canadian Earth System Model.

Air Quality Monitoring and Modelling

Progress has been made on implementing an integrated and adaptive management approach for national measurements of air pollutants. Air quality national monitoring data, analyses, maps and modelling expertise contributed to the setting of 2015 interim threshold levels and 2020 Canadian Ambient Air Quality Standards (CAAQS) for ozone and particulate matter (PM2.5) in support of the proposed Air Quality Management System.

Efforts have been focused on method development, validation and quantification for fine particulate matter (filterable and condensable) from industrial sources. The developed sampling methodology is being considered for inclusion in the Base-level Industrial Emissions Requirements (BLIERs).

A predictive mercury model and mercury research and measurements have been used to quantify the contribution of mercury emissions from other countries to Canada's mercury burden, and to support domestic decision making and international negotiations. This scientific knowledge and data will also inform the development of the first Canadian Mercury Science Assessment (2013), which will provide a comprehensive description of mercury in the Canadian environment.

Continued measurements on Canada's west coast have advanced the understanding of the influences on regional air quality of trans-Pacific transport of pollutants from Asia, Europe and elsewhere. These measurements provide a baseline against which to demonstrate changing contributions. Although the trans-Pacific transported events are significant in springtime, results also show the important influence of North American forest fires during the summer. The information from these measurements is being incorporated into air quality and climate models to increase their predictive capacity.

Environment Canada undertook a number of key atmospheric and emissions research studies to bring new insights into particulate matter emissions and formation in ambient air, to improve Environment Canada's predictive modelling capabilities for air quality, to understand the interrelationships between climate change and air quality, to validate emissions rates/estimates of particulate matter and black carbon from various mobile sources, and to collaborate with Health Canada to link long-term exposure to fine particulate matter to cardiovascular mortality in Canada.

A compilation of 19 peer-reviewed scientific papers on the Border Air Quality and Meteorology Study (BAQS-Met) have been published in a special issue of the journal Atmospheric Chemistry and Physics. The intensive field study was conducted in the summer of 2007, followed by comprehensive data analyses. The work provides a better understanding of the role of local and transboundary sources in the observed fine particulate matter and ground-level ozone levels in southwestern Ontario.

Environment Canada continued to deliver air quality monitoring measurements and modelling, and provide expertise to inform the proposed Air Quality Management System and the development of the Canadian Ambient Air Quality Standards.

Environment Canada provided the air quality modelling support for cost-benefit assessment of the proposed Base-level Industrial Emission Requirements.

The Department continued to perform various modelling studies at national and regional scales, and extended the ability of air quality models and transboundary measurements.

Clean Air Agenda Program Lessons Learned

Environment Canada has established new collaborations with the Canadian Space Agency and the academic community to advance the integration of surface- and space-based observations of carbon dioxide. These collaborations will enhance EC's capacity to model carbon dioxide sources and sinks in Canada.

Clean Air Agenda Program Spending Information11
($) millions
Total CAA Program Approved Spending 2011-2016Program Planned Spending in 2011-2012Program Actual Spending in 2011-2012
90.4517.4810.41

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Health and Environmental Impacts of Air Pollutants

Link to 2011-2012 Departmental Program Activity Architecture (PAA)

Climate Change and Clean Air Regulatory Program

Clean Air Agenda Program Description and Expected Achievements

This program will provide scientific evaluations of the biological impacts of acid deposition and mercury on aquatic biodiversity and will assess the health of wildlife species and their ecosystems in select Canadian environments through the use of various indicators. This will be achieved by monitoring chemical and biological trends in aquatic ecosystems in eastern Canada to assess the effectiveness of reductions in acidic deposition; refining the use of biomonitoring indicators, survey design and research priorities to improve the assessment of the biological impacts of acid deposition and ecosystem recovery; conducting intensive field research on the effects of mercury on fish-eating wildlife; and conducting complementary laboratory studies on mercury toxicity in wildlife.

Environment Canada will also produce wildlife effects and risk assessment components of national and international assessments of the impacts of mercury and acid deposition. This will be achieved by integrating information on mercury from the Canadian Arctic Contaminants Assessment Report into the Canadian Mercury Science Assessment; synthesizing existing fish and wildlife data into the Canadian Mercury Science Assessment; and publishing the results from acid rain biomonitoring in the scientific literature, in preparation for the Canadian Acid Deposition Science Assessment.

This program will also contribute to the understanding of the effectiveness of air pollutant regulation in protecting and/or improving the health of Canadian ecosystems. This will include assessing the status and trends of biological communities; evaluating the ecological benefits of air emissions reductions; and monitoring temporal and spatial trends of atmospheric deposition of mercury, heavy metals and acidifying pollutants, and their related effects. Additional activities include improving the assessment of trends, and analyzing samples for other toxic air pollutants such as heavy metals.

Clean Air Agenda Program Achievements / Performance Summary

The integration of information on mercury from the Canadian Arctic Contaminants Assessment Report into the Canadian Mercury Science Assessment was completed as planned. The synthesizing of existing fish and wildlife data was partially completed, with mercury information synthesized nationally for terrestrial wildlife, freshwater fish and marine ecosystems for inclusion in the Canadian Mercury Science Assessment. Two review papers on mercury toxicity in fish and wildlife were submitted for publication in 2011-2012. A draft manuscript on acid rain biomonitoring was completed under contract in 2011-2012 and will be published in 2012-2013.

The mercury deposition trends project was initiated, and substantial progress was made on a new field survey of lakes in the Estevan, Saskatchewan, area. Progress was also made on writing up previous work on mercury deposition studies in northern key Canadian environments. The Freshwater Inventory and Surveillance of Mercury (FISHg) monitoring program indicates that mercury continues to be an environmental contaminant of concern in most aquatic ecosystems selected for monitoring across Canada.

The acid lakes component of the Integrated Oil Sands Environment Monitoring Plan was developed and put into action by planning an autumn 2012 lake survey for north-eastern Alberta and beyond (i.e., Level 1 monitoring) that will define regional acidification sensitivity and status and sampling lakes in western Saskatchewan that may be included in a long-term temporal (i.e., Level 2) monitoring network to detect changes in status.

Clean Air Agenda Program Lessons Learned

Some activities under the scientific evaluations of the biological impacts of acid deposition and mercury on aquatic biodiversity and the health of wildlife indicators and their ecosystems in select Canadian environments were delayed in 2010-2011 due to realignment of staff time to address time-sensitive work plans. Laboratory work was focused on completing the mercury analyses from samples collected under previous CARA funding. Delayed results from 2011-2012 are expected to be completed in 2012-2013. Laboratory capacity issues have been addressed.

Clean Air Agenda Program Spending Information12
($) millions
Total CAA Program Approved Spending 2011-2016Program Planned Spending in 2011-2012Program Actual Spending in 2011-2012
15.523.063.04

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Science Integration, Accountability and Benefits of Action

Link to 2011-2012 Departmental Program Activity Architecture (PAA)

Climate Change and Clean Air Regulatory Program

Clean Air Agenda Program Description and Expected Achievements

Atmospheric science assessments integrate the knowledge and understanding of the past, present and projected future state of the environment with respect to air pollution and climate change, and provide the scientific underpinning for measures to reduce the risks to Canadians and their environment associated with air emissions.

Expected achievements comprise the delivery of scientific assessment of substances (e.g. mercury)or atmospheric issues (e.g. smog) that describe emissions sources and trends, ambient concentrations and trends, impacts on Canadians' health and environment, and forecasted health, environmental and economic benefits of regulatory actions and other measures to reduce emissions in Canada or from other countries.

Clean Air Agenda Program Achievements / Performance Summary

The activities focused on the delivery of science assessments necessary for regulatory development and participation in international treaties to ensure that the Government can demonstrate the benefits of its air emissions policies, decisions and investments. For example, completion and delivery of the Canadian Smog Science Assessment (in publication) provides the scientific foundation for implementing the new Air Quality Management System for Canada, including an expanded role for air quality standards for particulate matter and ozone, and an emerging interest in examining the linkages between air pollution and climate change.

In addition to domestic decision making, international negotiations (i.e. the United Nations Environment Programme to develop a global legally binding instrument on reducing emissions of mercury) are supported by assessments of the most current scientific information, such as preparation and delivery of the first Canadian Mercury Science Assessment. This report, currently being finalized, is a comprehensive description of the most state-of-the-art science on mercury in the Canadian environment.

Clean Air Agenda Program Lessons Learned

Not applicable

Clean Air Agenda Program Spending Information13
($) millions
Total CAA Program Approved Spending 2011-2016Program Planned Spending in 2011-2012Program Actual Spending in 2011-2012
3.730.60.53

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Oil Sands Science

Link to 2011-2012 Departmental Program Activity Architecture (PAA)

Climate Change and Clean Air Regulatory Program

Clean Air Agenda Program Description and Expected Achievements

The Government of Canada is expected to deliver the monitoring and scientific information and advice required to determine the impact of air emissions from the oil sands sector on the ecosystem and on the air that Canadians breathe. This includes working collaboratively with the Government of Alberta and other stakeholders to measure priority air contaminants and metals in order to set the baseline and establish trends, to understand the contribution of the atmospheric deposition and transport of these contaminants, and to utilize air quality models (i.e. GEM-MACH) to predict the impacts of oil sands development.

Environment Canada will provide support to environmental assessments and other activities related to the oil sands cumulative effects program.

Clean Air Agenda Program Achievements / Performance Summary

Progress has been made in a number of areas. Specifically, Environment Canada performed the first-ever analysis of nitrogen dioxide (NO2) and sulphur dioxide (SO2) over the Alberta oil sands area based on satellite remote sensing data, revealing distinct above-background levels of both NO2 and SO2 over an area of intensive surface mining. The air quality network continued its expansion to western Canada with progress made towards the establishment of three new long-term monitoring sites, which will contribute to determining atmospheric transport to and from the oil sands region. Implementation of these sites will continue into 2012-2013 and will be supported by short-term measurement campaigns that will improve understanding of the sources, levels and types of air contaminants. Both active and passive monitoring of polycylic aromatic compounds and active sampling of metals are ongoing, including at remote sites. Test simulations with GEM-MACH, an air pollution model, established that the new model configuration will be able to deliver information at a spatial resolution of 2.5 kilometres (km) over a larger domain in northern Alberta, Saskatchewan, British Columbia and northern territories, in a time frame sufficient to advise decision making.

In 2011-2012, Environment Canada provided technical reviews for three planned oil sands mining projects, mainly on air emissions issues. See also FSDS Implementation Strategy 2.1.2 for related performance information.

Clean Air Agenda Program Lessons Learned

The measurement and analysis program in the oil sands region required a quick start and leveraged existing expertise, demonstrating the ability to respond to a new priority. Expansion of the measurement program on land-based sites was slowed by the process needed to obtain permission to use the required sites. As well, the importance of regular consultation and engagement with all stakeholders at both the working and management levels was highlighted, particularly with respect to working with industry and aboriginal stakeholders, and various levels of government.

Clean Air Agenda Program Spending Information14
($) millions
Total CAA Program Approved Spending 2011-2016Program Planned Spending in 2011-2012Program Actual Spending in 2011-2012
14.212.842.38

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Data Collection and Reporting for Greenhouse Gases

Link to 2011-2012 Departmental Program Activity Architecture (PAA)

Climate Change and Clean Air Regulatory Program

Clean Air Agenda Program Description and Expected Achievements

Funding supports the continuation and development of the annual national GHG emissions inventory and trends, produced as part of Canada's requirement to track domestic emissions and meet key international reporting obligations under the United Nations Framework Convention on Climate Change (UNFCCC). This includes the maintenance of the mandatory national system - a UNFCCC obligation that encompasses the institutional, legislative and procedural arrangements in place to produce an accurate, comprehensive and timely national inventory. Environment Canada has overall responsibility for compiling and reporting on Canada's GHG inventory and has been designated by the UNFCCC as the Inventory Agency and the National Inventory Focal Point.

Activities also include maintenance of the Greenhouse Gas Emissions Reporting Program, which applies only to the largest industrial GHG emitters in Canada. All facilities that emit the equivalent of 50,000 tonnes (50 kilotonnes) or more of GHGs in carbon dioxide equivalent units (CO2 eq) per year are required to submit a report.

Activities also include providing analysis, technical advice and guidance for the development of GHG regulations; participating in UN Expert Review Teams; supporting domestic policy development; and participating in Canadian delegations on international climate change negotiations.

Additional activities include work such as evaluating and improving methods, models and documentation; developing quantification and reporting protocols; implementing internal and external verification procedures; and developing research methods and guidance documents.

Environment Canada's objectives with respect to GHG monitoring and reporting include the following:

  • maintaining existing institutional capacity to deliver an enhanced monitoring, accounting and reporting system to produce an annual UN-compliant national GHG inventory system and National Inventory Report

  • maintaining the Greenhouse Gas Reporting Program to ensure compliance with the Canadian Environmental Protection Act, 1999 (CEPA 1999) and regulatory reporting requirements, including section 46 Canada Gazette notices

  • supporting domestic policy and regulatory development

  • ensuring enhanced capability to provide applied information to the public and corporate users, including provinces and territories, stakeholders and the academic community

  • providing accurate and up-to-date scientific information, analysis and advice to support Canadian objectives in the UNFCCC post-Durban, Cancun and Copenhagen processes

There are three performance indicators:

  • submission of an annual compliant National Inventory Report, within accepted UN time frames (April 15 of each year)

  • publication and provision of facility-level GHG reporting data collected under section 46 of CEPA 1999 (April 15 of each year)

  • frequency of requested engagement from intra and interdepartmental sources (International Affairs Branch, Natural Resources Canada, Transport Canada, Statstics Canada, Strategic Policy Branch, Environmental Stewardship Branch) to support international or domestic policy requirements

CAA Program Achievements / Performance Summary

The National Inventory Report: Canada's Greenhouse Gas Sources and Sinks 1990-2009 was submitted to the UN in May 2011, meeting Canada's international reporting obligations under the UNFCCC. The National Inventory Report: Canada's Greenhouse Gas Sources and Sinks 1990-2010 was submitted in April 2012. Work continues on the next annual National Inventory Report submission, due in April 2013.

The Canada Gazette notice for the 2011 Greenhouse Gas Emissions Reporting Program data collection was published in September 2011. The Greenhouse Gas Emissions Reporting Program data for 2010 were published in April 2012.

Achievements also include the first harmonized release of National Inventory Report data and Greenhouse Gas Emissions Reporting Program data in April 2012.

See also FSDS Implementation Strategies 1.1.5 and 1.1.48.4 for related performance information.

Clean Air Agenda Program Lessons Learned

Every year, Environment Canada initiates a lessons-learned process where the past year is evaluated and summarized with the goal to make improvements for future reporting. This lessons-learned process takes place shortly after the National Greenhouse Gas Inventory, the program aligned economic sector GHG estimates to Intergovernmental Panel on Climate Change sectors as well as coordinate a harmonized release of Departmental GHG products. Lessons learned included improved planning and early engagement with internal policy and communications groups which reduced the risk of unanticipated delays that impact Canada's ability to meet UN reporting deadlines.

Clean Air Agenda Program Spending Information15
($) millions
Total CAA Program Approved Spending 2011-2016Program Planned Spending in 2011-2012Program Actual Spending in 2011-2012
41.6110.764.50

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Data Collection and Reporting for Atmospheric Pollutants

Link to 2011-2012 Departmental Program Activity Architecture (PAA)
  • Health-related Meteorological Information

  • Climate Change and Clean Air Regulatory Program

Clean Air Agenda Program Description and Expected Achievements

Data collection and reporting on air pollutants supports the Government's commitments to deliver on the Air Quality Health Index (AQHI) and domestic and international reporting obligations.

Canada is an international leader; it is the first country to have developed an air quality index to communicate the health risks associated with a mixture of air pollutants and to provide air quality forecasts with protective health advice to reduce those risks. Health-based communication tools such as the AQHI are vital given that regulatory action alone cannot completely eliminate the health risks from air pollution. The AQHI is now available to 17 million Canadians. With renewed funding, Health Canada and Environment Canada will expand the AQHI to additional communities, promote the index widely in order to make it better accepted and understood, and ensure that the science underpinning the index is kept up to date. The objectives are to implement a national health-based communications tool for current and forecast local air quality and to increase Canadians' knowledge of actions they can take to protect their health and reduce pollution.

Environment Canada expects to achieve several goals under the AQHI: to develop, in partnership with Health Canada, effective strategies and supporting activities for facilitating the implementation of the AQHI in New Brunswick, Ontario and Quebec; to improve modelling tools and data access in order to increase accuracy of AQHI forecasting; and to harness dissemination and social media technologies in order to increase the reach of the AQHI.

As for reporting on our obligations, Environment Canada is responsible for the annual development and publication of Canada's Air Pollution Emissions Inventory and for submitting emissions data to the United Nations Economic Commission for Europe as well as to the United States to meet commitments under the Ozone Annex. The Air Pollution Emissions Inventory provides technical and analytic support essential for developing and implementing Canadian Ambient Air Quality Standards and Base-level Industrial Emissions Requirements as part of the Air Quality Management System.

Expected achievements include the annual submission of the 2010 Air Pollution Emissions Inventory to the United Nations Economic Commission for Europe - due by February 2012; and the continued development and publication of comprehensive and accurate air pollutant emissions information for industrial and non-industrial sources (including the transportation sector), which supports the development, implementation and tracking of the progress of regulations and air quality management strategies.

Clean Air Agenda Program Achievements / Performance Summary

With this year's launch of AQHI in nine communities in Alberta, conducted in collaboration with the provincial government, Canadians in all 10 provinces now have access to this useful, science-based health protection tool. Approximately 60% of Canadians now have access to the AQHI on a daily basis. Seven of ten provinces have chosen to adopt the AQHI as the information tool of choice, while New Brunswick, Ontario and Quebec are piloting the index with the intent of adopting it. Strategies have been developed for those provinces, and demonstration activities to support their decision to adopt the AQHI are planned. Plans for expanding the AQHI implementation into Yukon and the Northwest Territories are in progress.

Effective integration of the AQHI into Meteorological Service of Canada dissemination systems continues to improve the reach of the AQHI to Canadians - a redesign of the Weatheroffice website contributed to a doubling of visits to AQHI pages. The integration of the AQHI into federal and partner social media technologies has also enhanced public visibility of the AQHI and, more importantly, has helped reach those most vulnerable to air pollution.

The 2010 Air Pollution Emissions Inventory, containing comprehensive estimates for air emissions from all sources of key air pollutants, heavy metals and persistent organic pollutants, was submitted to the United Nations Economic Commission for Europe and published in February 2012.

Ongoing analyses and scenario development to support the development and monitoring of various regulations continues, in particular for the transportation and industrial sectors. Work also continues on the development of specialized data sets to support dialogue among the federal, provincial, and territorial governments, and evaluation of the Canadian Ambient Air Quality Standards. Emissions inventory and trends were provided for the development of the "business-as-usual" projection, as well as ongoing technical support on inventories and trends. Analysis and support for regulatory impact assessments on mobile sources is ongoing.

See also FSDS Implementation Strategies 2.1.3 and 2.1.32 for related performance information.

Clean Air Agenda Program Lessons Learned

Successful AQHI implementation is highly dependent on the collaboration of provincial and local governments and non-governmental organizations that may have regional interests to consider. Collaboration was enhanced by employing flexible mechanisms to address regional differences and issues. For instance, in collaboration with Health Canada, Alberta Environment and Alberta Health and Wellness, Environment Canada was able to enhance the AQHI to support provincial health management goals which paved the way for province-wide implementation of the AQHI.

For reporting, lessons learned include improved planning and early engagement with internal policy and communication groups to avoid unanticipated issues. Despite a challenging year, program achievements were ultimately a success.

Clean Air Agenda Program Spending Information16
($) millions
Total CAA Program Approved Spending 2011-2016Program Planned Spending in 2011-2012Program Actual Spending in 2011-2012
41.528.207.30

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Cross-cutting Data Collection and Reporting

Link to 2012-2013 Departmental Program Activity Architecture (PAA)

Climate Change and Clean Air Regulatory Program

Clean Air Agenda Program Description and Expected Achievements

Under the Clean Air Regulatory Agenda, the Government committed to developing a single harmonized system for the regulatory reporting of all air emissions and related information. Environment Canada's Single Window Reporting (SWR) Initiative is one component of the single harmonized system that sets the stage for a forum to pursue harmonization of reporting methodologies, thereby improving confidence in, and credibility of results. Creating one place where industry can report emissions data allows for a more efficient and effective reporting process, which supports the shared interest across jurisdictions in tracking and reporting progress on the reduction of GHG emissions and pollutant releases. This represents an important first step in reducing the reporting burden and cost to industry and governments.

Guiding principles regarding the use of an integrated single-window reporting system were developed and adopted by the Canadian Council of Ministers of the Environment (CCME) in January 2010. Environment Canada's Single Window system was launched in March 2010 to facilitate the secure collection, storage and exchange of information on multiple programs in an effective manner. Since 2010, Environment Canada has been engaged in discussions with provinces and territories interested in partnering with Environment Canada's SW system to support their mandatory reporting requirements. Agreements have been signed with British Columbia, Alberta and Ontario.

In addition, funding supports the software platform developed for GHG data collection (federal and provincial partners) through Environment Canada's National Pollutant Release Inventory (NPRI) and Ontario's Toxic's Reduction Act (ON TRA).

The expected results are as follows:

  • reduced duplication and administrative burden on industry for reporting data to support the implementation of the Clean Air Regulatory Agenda (CARA) regulations, program and policy development; and reduced cost to Canadians

  • improved consistency and efficiency of common/tombstone data reported to EC through a single-window reporting portal to support CARA decision making and implementation

  • expansion of Environment Canada's Single Window Reporting (SWR) system, taking into account the needs and requirements of CARA programs, systems, partners and users

Clean Air Agenda Program Achievements / Performance Summary

The continued implementation of Environment Canada's Single Window system in itself reduces the duplication and administrative burden on industry. Various activities were undertaken by EC to ensure an efficient implementation of the Single Window system in 2011-12. At the beginning of the fiscal year, Environment Canada developed and launched the applications for the following partners: EC greenhouse gases, Alberta greenhouse gases, Ontario's Toxics Reduction Act (ON TRA), Ontario Regulation 127, the National Pollutant Release Inventory (NPRI) and partners. Environment Canada also provided users with access to EC's front office tools and guidance during the reporting cycle.

Later in the year, in order to achieve improved consistency and efficiency within Environment Canada's Single Window system, EC gathered the details for change requests of its partners and started implementing these changes for the 2012 reporting cycle. Updated applications were then tested and readied for their scheduled 2012-13 launch. A feasibility analysis for a multi-year Single Window data warehousing project was also initiated in 2011-12. With regard to the expansion of the system, outreach activities were organized and discussions with key potential external and internal partners progressed. These discussions are expected to result in new partnership agreements in 2012-13.

See also FSDS Implementation Strategy 1.1.7 for related performance information.

Clean Air Agenda Program Lessons Learned

The Single Window Reporting system is updated every year to reflect the needs and requirements of its users. In order to help the reporting community familiarize itself with the changes and improvements made to the reporting system in 2011-2012, Environment Canada conducted information sessions with industry users to provide guidance and training to users prior to the beginning of the reporting cycle. This activity was well received by the reporting community and should be repeated in the future.

Clean Air Agenda Program Spending Information17
($) millions
Total CAA Program Approved Spending 2011-2016Program Planned Spending in 2011-2012Program Actual Spending in 2011-2012
15.323.101.34

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Greenhouse Gas Policy

Link to 2011-2012 Departmental Program Activity Architecture (PAA)

Climate Change and Clean Air Regulatory Program

Clean Air Agenda Program Description and Expected Achievements

The overall objective is to support the logic model's final thematic outcome "Reduced emissions of GHGs and air pollutants from regulated sectors while maintaining competitiveness in these sectors."

With respect to GHG policy, expected achievements for 2011-2012 were linked to advancing the Government's climate change priorities, including through the development and implementation of the Government's sector-by-sector regulatory approach to reduce GHG emissions in Canada, aligned with the United States as appropriate, to contribute towards achieving Canada's national GHG reduction target of 17% below 2005 levels by 2020.

Specifically, these included the following achievements:

  • Supporting the Government's climate change agenda through the provision of strategic policy and economic analysis, advice, and coordination for the development of GHG regulations for major emitting industrial sectors. The Government's climate change agenda was also supported through ongoing monitoring and analysis of existing and emerging provincial, regional and United States climate change initiatives and their implications for the development of federal climate policy; and through ongoing engagement with the provinces, territories and other stakeholders to inform GHG regulatory development and to minimize regulatory duplication where possible.

  • The provision of strategic policy analysis and coordination of federal work on short-lived climate pollutants (SLCPs), to support Canada's engagement in various international fora on this issue and inform the development of domestic measures, was also part of this program.

  • The maintenance of Canada's Kyoto Protocol National Registry in compliance with United Nations requirements, as well as the completion of offsetting GHG emissions resulting from the Government of Canada's participation in the 2010 Winter Olympic Games, were also expected outcomes.

Clean Air Agenda Program Achievements / Performance Summary

Overall, the expected achievements with respect to the GHG policy program were realized, supported by a number of activities related to the development and implementation of new climate change policies. These activities included strategic policy analysis and advice, economic and regulatory analysis, intra- and interdepartmental coordination of climate change policy, external engagement and communications.

These activities supported the development of draft regulations to address carbon dioxide (CO2) emissions from coal-fired electricity and the publication of these regulations in the Canada Gazette, Part I, in August 2011.18

The development of regulatory approaches to address GHG emissions in other major emitting industrial sectors, including the oil and gas and other emissions-intensive trade-exposed (EITE) industrial sectors was also initiated, as part of the Government's sector-by-sector regulatory approach. As part of the regulatory development process, there was ongoing engagement with provinces, territories and other key stakeholders through an existing federal-provincial-territorial working group on domestic climate change, but also through sector-specific technical working groups and a new joint deputy minister-level federal, provincial and territorial consultative steering committee. In addition, in an effort to limit duplication between federal and provincial regulation, the Government of Canada and the Government of Nova Scotia developed a draft equivalency agreement with respect to the regulation to limit CO2 emissions from coal-fired electricity generation. Discussions were also initiated with other interested provinces.

Coordination of federal departmental efforts on climate change mitigation is also ongoing through federal deputy-minister-level discussions at the DMs' Committee on Climate Change, Energy and the Environment, co-led by Environment Canada. Within Environment Canada, intra-departmental climate change working groups were created to ensure collaboration across the Department and to ensure the integration of climate policy development, research and analysis.

In addition, Canada's Kyoto Protocol National Registry, including the submission of Canada's 2011 report to the United Nations on Registry holdings and transactions, met United Nation requirements. Environment Canada also undertook an analysis of the Land use, Land-use Change and Forestry (LULUCF) sector's mitigation potential to contribute towards Canada's 2020 target. The Government successfully completed offsetting GHG emissions resulting from its participation in the 2010 Vancouver Winter Olympic and Paralympics Games.

Canada actively participated in the Arctic Council Task Force (ACTF) on Short-Lived Climate Pollutants (SLCPs), which published recommendations on the mitigation of black carbon emissions in May 2011. Canada also participated constructively in negotiations to revise the Gothenburg Protocol (under the United Nations Convention on Long-range Transboundary Air Pollution (CLRTAP) to include black carbon as a component of particulate matter. Work undertaken as part of this program also supported Canada's participation, in February 2012, in the Climate and Clean Air Coalition to Reduce Short-Lived Climate Pollutants, of which Canada was a founding member, as well as Canada's participation in the Arctic Council.

See also FSDS Implementation Strategy 1.1.6, 1.1.12, 1.1.46 and 2.1.35 for related performance information.

Clean Air Agenda Program Lessons Learned

All of the key program elements were met for GHG policy. A key lesson learned was with respect to the importance of ongoing, multi-level collaboration with key stakeholders, including industry and provinces and territories, in the development of GHG regulatory approaches. Effective mechanisms for technical engagement with industry and provinces were established at the working level, as well as broader provincial and territorial consultation mechanisms. Going forward, it will be important to maintain effective multi-level engagement as we continue to develop and implement the federal GHG regulatory approach.

Clean Air Agenda Program Spending Information19
($) millions
Total CAA Program Approved Spending 2011-2016Program Planned Spending in 2011-2012Program Actual Spending in 2011-2012
31.2112.836.31

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Atmospheric Pollutants Policy

Link to 2011-2012 Departmental Program Activity Architecture (PAA)
  • Climate Change and Clean Air Regulatory Program

  • Climate Change and Clean Air Partnerships

Clean Air Agenda Program Description and Expected Achievements

The overall objective is to support the logic model's final thematic outcome "Reduced emissions of GHGs and air pollutants from regulated and targeted sectors while maintaining economic competitiveness in these sectors."

Expected achievements for 2011-2012 were linked to finalizing the Government's domestic air quality policy under development through a collaborative multi-stakeholder process (AQMS - the Air Quality Management System) and our associated international obligations to manage air quality at a national level.

Our expected achievements were as follows:

  • to develop an air quality management system including requirements to reduce air pollution from industrial sources

  • to finalize Canadian ambient air quality standards

  • to finalize a framework to address transboundary issues and for coordination of overall system monitoring and reporting through the creation of air zones and air sheds

  • to address North American transboundary air pollution through the management of Canada's participation in the negotiation of an annex to the Air Quality Agreement to address particulate matter (PM), including the development of a strong Canadian position on transboundary PM

  • to participate in air quality activities with the United States and Mexico under the North American Commission for Environmental Cooperation (CEC).

Clean Air Agenda Program Achievements / Performance Summary

Achievements for 2011-12 include:

  • Environment Canada coordinated work with other federal departments, provinces, industry and non-governmental organizations to develop and finalize key elements of a national air quality management system (AQMS).

  • National industrial emissions requirements were developed for key air pollutants for 13 sectors and 4 equipment types.

  • The new Canadian Ambient Air Quality Standards (CAAQS) for ground-level ozone and fine particulate matter (PM2.5) were developed under the AQMS to improve air quality.

  • Regional airsheds were delinated to address transboundary air pollution.

  • The development of monitoring and reporting requirements to report on progress under the AQMS has been initiated.

  • Canada continued to cooperate with the United States to address transboundary air pollution through the Canada-United States Air Quality Agreement. The agreement addresses the transboundary movement of air pollutants that cause acid rain and smog. Both countries are in full compliance with their respective commitments, and emissions of these pollutants have decreased dramatically on both sides of the border. After more than 20 years of cooperation, emissions that cause acid rain have been reduced by more than 50% and emissions causing smog by 40% in the area covered under this agreement.

  • Under the newly formed Canada-United States Regulatory Cooperation Council, Canada and the United States agreed to consider the expansion of the Canada-United States Air Quality Agreement to address transboundary particulate matter. Canada and the United States have begun work toward the completion of the necessary scientific, technical and regulatory foundations required to inform and support the consideration of a particulate matter annex to the Canada-United States Air Quality Agreement.

  • Environment Canada led Canada's constructive participation in the renegotiation of the Gothenburg Protocol under the Convention on Long-range Transboundary Air Pollution. This protocol addresses nitrogen oxides (NOx), sulphur dioxide (SO2), volatile organic compounds (VOC), and particulate matter (PM) - and black carbon as part of PM - in the UN Economic Commission for Europe region, which includes all of Europe (Western, Eastern and Central) as well as Canada and the United States.

  • Under the North American Commission on Environmental Cooperation (CEC), the North American Air Working Group (NAAWG) has completed its work, and the new strategic plan is focused on climate change.

  • Environment Canada co-led the Air Management Committee under the Canadian Council of the Ministers of the Environment (CCME) to ensure effective coordination of approaches for managing air quality (including priority setting) and the production and publication of national air quality reports.

  • Environment Canada provided support and coordination on the development, improvement, and reporting of air quality indicators in Canada.

See also FSDS Implementation Strategy 2.1.8, 2.1.31 and 2.1.35 for related performance information.

Clean Air Agenda Program Lessons Learned

All of the key program elements were met for air pollutant emissions. The collaborative process produced results and generated the collective support needed from stakeholders. This buy-in was crucial to finalizing key elements of the national Air Quality Management System, however, the collaborative nature of the development process led to timelines being extended.

Clean Air Agenda Program Spending Information20
($) millions
Total CAA Program Approved Spending 2011-2016Program Planned Spending in 2011-2012Program Actual Spending in 2011-2012
17.966.242.35

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Cross-cutting Analysis

Link to 2011-2012 Departmental Program Activity Architecture (PAA)

Climate Change and Clean Air Regulatory Program

Clean Air Agenda Program Description and Expected Achievements

Environment Canada will undertake economic modelling, analysis and research in order to support informed federal decision making on policy approaches to reduce greenhouse gas (GHG) and air pollutant emissions and to analyze the competitiveness impacts of these approaches.

Environment Canada, on behalf of Clean Air Agenda (CAA) departments and agencies, will consolidate CAA planning and performance reports of federal investments to enable transparency respecting the federal management of clean air Parliament and the public.

Environment Canada will identify opportunities for streamlining reporting processes and generating efficiencies by integrating with other related government-wide initiatives - such as the Federal Sustainable Development Strategy (FSDS).

Clean Air Agenda Program Achievements / Performance Summary

A long-term GHG and air pollutant projection was developed. This long-term projection served as a reference point for analyzing the Government's climate change and clean air agenda. This projection was used to assess the emissions and economic impacts of several proposed regulations (i.e. coal-fired electricity generation units, heavy-duty vehicles, natural gas, light-duty vehicles (2017-2025), and Base-level Industrial Emission Requirements (BLIERs)).

Assessment of the progress toward meeting the Kyoto Protocol targets, as stipulated by the Kyoto Protocol Implementation Act (KPIA) passed by Parliament in June 2007, was undertaken.

Modelling projection of air pollutants was refined and this projection is being used to support the development of the federal-provincial-territorial Air Quality Management System (AQMS) and proposed BLIERs.

Economic impact and competitiveness analysis was undertaken to support the development of policy and regulations with respect to GHG emissions and air pollutants.

A research network was established to explore issues related to innovation, competitiveness and behavioural response in relation to environmental policy.

On behalf of the CAA departments and agencies, EC produced the 2010-2011 Clean Air Agenda Horizontal Performance Report and the 2012-2013 Clean Air Agenda Horizontal Report on Plans and Priorities.

With the support of CAA departments and agencies, EC developed opportunities and guidance for integrating CAA reporting into FSDS reporting since the FSDS provides a legislated and permanent framework for reporting on clean air and climate change.

Guidance was provided in support of Clean Air Regulatory Agenda (CARA) regulation development, consistent with the requirements of the Cabinet Directive on Streamlining Regulation (CDSR). More specifically, the Strategic Policy Branch at Environment Canada developed, delivered and coordinated regulatory departmental training and advised Environment Canada's regulatory community on the regulatory development and approval processes.

Clean Air Agenda Program Lessons Learned

n/a

Clean Air Agenda Program Spending Information21
($) millions
Total CAA Program Approved Spending 2011-2016Program Planned Spending in 2011-2012Program Actual Spending in 2011-2012
15.743.222.60

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Electricity Regulations

Link to 2011-2012 Departmental Program Activity Architecture (PAA)

Climate Change and Clean Air Regulatory Program

Clean Air Agenda Program Description and Expected Achievements

Proposed greenhouse gas (GHG) regulations will apply a stringent performance standard to new coal-fired electricity generation units and to those that have reached the end of their economic life. Final regulations were published in the Canada Gazette, Part II, in 2012. It is expected that GHG regulations for natural gas-fired thermal generation will subsequently be developed.

Air pollutant emission standards based on the Base-level Industrial Emission Requirements (BLIERs) process would be developed for electricity generation in 2011 and regulations could be implemented as early as 2013.

Clean Air Agenda Program Achievements / Performance Summary

In August 2011, proposed regulations to reduce GHG emissions from coal-fired electricity generation were published in the Canada Gazette, Part I.

The Department has conducted extensive consultations since announcing its intention to regulate this sector. Environment Canada officials met with stakeholders, affected provinces, and held numerous larger consultation sessions. In addition, over 5,000 submissions were received during the Canada Gazette, Part I comment period. Of these, 43 came from provincial governments, industry stakeholders and associations, and non-government organizations. The remainder of comments came from the general public, primarily through the use of form letters available on various Internet sites. The Department has worked to address the comments received and finalized the regulations for publication in the Canada Gazette, Part 2.

See also FSDS Implementation Strategies 1.1.6 and 1.1.11 for related performance information.

Clean Air Agenda Program Lessons Learned

A key lesson for Environment Canada has been the importance of maintaining flexibility with respect to anticipated timelines in order to analyze, incorporate and address the significant comments provided by provinces, industry and other stakeholders during the consultation and policy development phases. Environment Canada has benefited from high levels of engagement from provinces and stakeholders and, as a result, has had to be flexible in terms of timing in order to give these comments and suggestions their due attention.

Clean Air Agenda Program Spending Information22
($) millions
Total CAA Program Approved Spending 2011-2016Program Planned Spending in 2011-2012Program Actual Spending in 2011-2012
7.933.111.89

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Transportation Regulations

Link to 2011-2012 Departmental Program Activity Architecture (PAA)

Climate Change and Clean Air Regulatory Program

Clean Air Agenda Program Description and Expected Achievements

In recognition of the integrated nature of the North American market, Canada will continue to develop and implement regulations to reduce emissions from vehicles and engines in alignment with the United States. The expected outcome is reduced emissions of both air pollutant and greenhouse gas (GHG) emissions from a broad range of on-road and off-road vehicles and engines, which will improve the health and environment of Canadians.

The expected achievements for 2011-2012 include administration of the six vehicle and engine emission regulations, for both air pollutants and GHGs; initiating the development of GHG regulations for passenger automobiles and light trucks, the development of GHG regulations for heavy-duty vehicles; and the development of air pollutant regulations for heavy-duty trucks and off-road compression-ignition diesel engines such those used for farming, construction and mining machines.

Clean Air Agenda Program Achievements / Performance Summary

In 2011-2012, Environment Canada led the development of vehicle and engine regulations, including:

  • proposed regulations amending the On-Road Vehicle and Engine Emission Regulations (on-board diagnostic systems for heavy-duty engines and other amendments), published in the Canada Gazette, Part I in October 2011

  • final Off-Road Compression-Ignition Engine Regulations, introducing Tier 4 emission standards for off-road diesel engines, published in the Canada Gazette, Part II in December 2011

  • minor amendments to the Off-Road Small Spark-Ignition Engine Emissions Regulations were published in the Canada Gazette, Part I in April 2011, as part of a broader omnibus package.

In November 2011, Environment Canada released a consultation document on the development of GHG emission regulations for passenger automobiles and light trucks for model years 2017 and beyond. The Department also finalized, for publication, GHG emission regulations for heavy-duty vehicles for model years 2014-2018.

Along with the development of regulations, Environment Canada continued to administer six vehicle and engine emission regulations, including those on vehicle and engine testing to support enforcement actions.

The Department also successfully worked with provinces and territories to establish the federal-provincial-territorial Working Group on Mobile Source Emissions.

See also FSDS Implementation Strategies 1.1.6, 1.1.10, 2.1.5, 2.1.6, 2.1.7 and 2.1.10 for related performance information.

Clean Air Agenda Program Lessons Learned

The key challenges facing Environment Canada in developing regulations to reduce air pollutant and GHG emissions from vehicle and engines while maintaining alignment with American standards, are the need to remain flexible enough to respond to changing priorities, and the need to keep abreast of American policy and regulatory developments. A key lesson learned was that a growing number of regulations in the transportation sector require increased coordination with provinces, stakeholders and the United States.

Clean Air Agenda Program Spending Information23
($) millions
Total CAA Program Approved Spending 2011-2016Program Planned Spending in 2011-2012Program Actual Spending in 2011-2012
45.1411.548.96

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Emissions-Intensive Trade-Exposed Regulations

Link to 2011-2012 Departmental Program Activity Architecture (PAA)

Climate Change and Clean Air Regulatory Program

Clean Air Agenda Program Description and Expected Achievements

The program includes the development of measures to limit releases of air pollutants and greenhouse gases (GHGs) from the emissions-intensive trade-exposed (EITE) sectors by working collaboratively with provinces, territories and industries. The key achievements expected over the length of the program are the development of regulations and other control instruments for EITE sectors.

In 2011-2012, specific activities included developing emission limits (Base-level Industrial Emission Requirements (BLIERs)) for key air pollutants for the pulp and paper, mining and processing, and chemicals and fertilizer sectors; and initiating discussions with the nitrogen fertilizer industry on a regulatory approach for addressing GHGs. Between 2012 and 2014, regulatory measures covering GHGs and air pollutant emissions will be published.

Clean Air Agenda Program Achievements / Performance Summary

BLIERs for the pulp and paper sector were finalized in 2011-2012 and implementation options were explored. To improve data collection and information sources in order to better understand and quantify releases from the forest products sector, Environment Canada supported method development for particulate matter (PM2.5) emission sampling. Environment Canada also completed a data collection and regulatory benchmarking exercise for the wood products sector.

BLIERs were developed for the aluminium, base metal smelting, cement, iron and steel, iron ore pellets, and potash sectors to limit emissions of key air pollutants. Recommendations were also developed on risk management instruments for implementing these sector-based BLIERs. An analysis was undertaken related to the development of potential regulatory approaches to address GHG emissions from the EITE sectors. Information and data gathering was undertaken in support of the development of regulatory measures for the potash fertilizer sector, and engagement was initiated with the aluminium sector. Input was provided on cross-cutting GHG issues. Seven BLIERs have also been developed to limit emissions of criteria air contaminants in the chemicals and fertilizer sectors. The BLIERs cover nitrogen oxides (NOx) from steam methane reforming, ethylene production and Carbon Black; Volatile Organic Compound from ethanol production, synthetic rubber production and ethylene-based polymer production; and ammonia from fertilizer production. For GHGs, information gathering and data updates began to support the development of regulatory measures for the nitrogen fertilizer sector. Environment Canada held an initial meeting with the industry to launch discussions on a regulatory approach for the sector. Additional economic analysis has been completed, including corporate profiles for all major chemical companies in Canada, and potential costs of new abatement technologies.

See also FSDS Implementation Strategy 1.1.6 for related performance information.

Clean Air Agenda Program Lessons Learned

The development of sector BLIERs concurrently with other sectors - involving health and environmental organizations, industries and other levels of government - is complex and requires strong coordination, time and willingness from all parties. The resources invested in coordination and collaboration were useful in obtaining a deeper and more thorough knowledge of the sector.

Clean Air Agenda Program Spending Information24
($) millions
Total CAA Program Approved Spending 2011-2016Program Planned Spending in 2011-2012Program Actual Spending in 2011-2012
21.348.664.74

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Oil and Gas Regulations

Link to 2011-2012 Departmental Program Activity Architecture (PAA)

Climate Change and Clean Air Regulatory Program

Clean Air Agenda Program Description and Expected Achievements

Industrial sector sources contribute about half of Canada's air pollutant and greenhouse gas (GHG) emissions and represent the largest unaddressed sources. The oil and gas sectors include upstream oil and gas, pipelines, petroleum refineries and unconventional oil. The oil and gas sectors released over half the nitrogen oxides (NOx) from industrial sources, over three quarters of the volatile organic compounds (VOC), almost one quarter of the sulphur dioxides (SO2), and just over 10% of particulate matter (PM) from industrial sources. Oil and gas activities contribute the largest share of industrial GHG emissions. To reduce emission levels, air pollutant and GHG emission requirements will be established, and regulations will be developed and promulgated.

Clean Air Agenda Program Achievements / Performance Summary

Environment Canada continues to make progress toward developing GHG regulations for the oil and gas sector. Industry and provinces and territories have been engaged in discussions on options that will define the regulatory design. Regular meetings were held with industry, provinces and territories, and work continues to progress toward the development of a regulatory approach for the sector.

See also FSDS Implementation Strategy 1.1.6 for related performance information.

Clean Air Agenda Program Lessons Learned

With regulatory development proceeding for GHG emissions in several industrial sectors, it was a challenge keeping provincial and territorial counterparts up to date on developments. The creation of a deputy minister-level consultation steering committee has provided a mechanism and forum for discussion.

The BLIER development process included the development of recommendations for quantitative and qualitative BLIERs for air pollutants in 2011, and examination of costs and other impacts as part of regulatory development in 2012. Considerable work was needed to develop a robust cost-benefit and regulatory impact analyses and to gain consensus among stakeholders.

Environment Canada collaborated closely with provincial authorities in order to better understand the scope of the current provincial regulatory framework and to ensure a mutual understanding of current and future oil sands activities. This facilitated the elaboration of national standards for an industrial activity like the oil sands.

Clean Air Agenda Program Spending Information25
($) millions
Total CAA Program Approved Spending 2011-2016Program Planned Spending in 2011-2012Program Actual Spending in 2011-2012
17.806.603.30

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Consumer and Commercial Products Regulations

Link to 2011-2012 Departmental Program Activity Architecture (PAA)

Climate Change and Clean Air Regulatory Program

Clean Air Agenda Program Description and Expected Achievements

This program seeks to reduce the emissions of Volatile Organic Compound (VOC) from consumer and commercial products. VOC have been identified as a contributor to smog, which is harmful to health and the environment. VOC are being addressed by an evolving suite of control instruments.

Clean Air Agenda Program Achievements / Performance Summary

The Department developed risk management strategies or instruments in the following sectors.

Aerosol coating products: A discussion paper as well as questions and answers were prepared for posting on the VOC website. Consultations were held in March 2012 in Toronto on possible options for achieving further VOC reductions.

Asphalt cutback and emulsified asphalt: A discussion paper on possible options for achieving further VOC reductions was prepared and consultations were held in March 2012 in Toronto. Web content has been developed for posting on the VOC website.

Portable fuel containers: Environment Canada collaborated with Ontario's Ministry of the Environment, and a not-for-profit partner on an initial pilot-scale project that helped to expand the Fuel Can Flip-Fuel Can Retirement program. The program encourages the replacement of old, high-emission fuel containers with cleaner, lower-emission alternatives in an effort to reduce VOC releases.

Finalizing proposed VOC in certain consumer products regulations: Following stakeholder comments, the proposed VOC Concentration Limits for Certain Products Regulations will be revised to include an alternative control plan, which is an emission averaging and trading regime, and to align the regulations with California's most recent limits and product categories. This will require renewing consultations with stakeholders and republishing the proposed regulations in the Canada Gazette, Part I, by summer 2014.

Compliance promotion was undertaken for two regulations: the VOC Concentration Limits for Architectural Coatings Regulations and the VOC Concentration Limits for Automotive Refinishing Products Regulations. Other program delivery activities included addressing inquiries and reviewing permit applications.

Clean Air Agenda Program Lessons Learned

In 2011-2012, there was reinforcement in this program element of the need to be both operationally flexible and responsive in determining the focus of program resources. For example, in the aerosol coatings sector, there may be future opportunities for possible alignment with evolving California Air Resources Board (CARB) VOC reactivity limits. Hence, in the interim, resources were instead refocused on opportunities to achieve VOC emission reductions that are significantly larger in another sector than presently achievable by the aerosol coating sector.

Clean Air Agenda Program Spending Information26
($) millions
Total CAA Program Approved Spending 2011-2016Program Planned Spending in 2011-2012Program Actual Spending in 2011-2012
5.681.861.48

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Compliance Promotion and Enforcement

Link to 2011-2012 Departmental Program Activity Architecture (PAA)

Compliance Promotion and Enforcement - Pollution

Clean Air Agenda Program Description and Expected Achievements

Compliance promotion and enforcement contributes to minimizing damages and threats to the natural environment and biodiversity, through the promotion and enforcement of legislation administered by Environment Canada (EC). The program is intended to ensure that the regulated community is aware of and understands its legal obligations, as well as the impacts of non-compliance, and to ensure that regulatory measures achieve their desired results as set forth under the Clean Air Regulatory Agenda (CARA). Program actions focus on pollution, including toxic substances, greenhouse gases and air pollutants, and the import and export of hazardous waste presenting a risk to the environment or human health.

The program maintains a contingent of compliance promotion and enforcement officers.

Compliance promotion is critical to maximizing regulatory compliance and achieving the risk management objectives of any regulations for greenhouse gases (GHGs) and air pollutants. The activities are in line with the Government's commitment to being a world-class environmental regulator and to meeting its obligations to provide due diligence in communicating to regulatees their obligations under the regulations and risk management activities being implemented by the Government. Compliance promotion officers provide information to regulatees on legislative requirements, the benefits of compliance and the potential penalties of non-compliance.

Enforcement ensures compliance with CARA regulations that have come into force under CEPA 1999. This involves providing advice during the regulatory development phase necessary to ensure regulations are enforceable in the field. Enforcement activities include gathering intelligence, conducting inspections to verify compliance with laws and regulations, and pursuing investigations to take appropriate enforcement measures against offenders. Compliance analysis in order to provide continuous feedback on program planning and results is also performed.

The expected achievements over the length of the Clean Air Agenda (CAA) include greater industry compliance and enforcement of the regulations implemented under the Clean Air Regulatory Agenda (CARA). More specifically, the key expected achievements in 2011-2012 were as follows:

  • Development of compliance strategies and compliance promotion plans for 5 new or amended CARA instruments;

  • Development of compliance promotion material and regional delivery of compliance promotion activities for 12 CARA instruments;

  • Delivery of compliance promotion training to compliance promotion officers on new CARA requirements;

  • Delivery of sound knowledge and expertise informed on technical sector processes to support the development and implementation of CARA instruments;

  • Coordination of compliance promotion and enforcement activities to ensure complementary activities; and

  • Measures to ensure the effective use of information management tools for reporting on activities and results concerning CARA instruments.

Science and technical support for compliance promotion and enforcement activities will be imperative to fulfill the monitoring, reporting and verification requirements related to industrial, transportation and consumer products regulations. The majority of these activities will need to be informed by sound leading-edge science, accredited to an international technical standard. These scientific activities will build upon EC's existing expertise and unique infrastructure.

Clean Air Agenda Program Achievements / Performance Summary

In 2011-2012, the compliance promotion program increased awareness, understanding and compliance on the part of regulatees with nine CARA instruments through the delivery of compliance promotion activities for the following existing CARA instruments:

Additionally, compliance strategies and compliance promotion plans were developed for requirements under the following three proposed Clean Air Regulatory Agenda (CARA) instruments:

The compliance promotion for the above instruments had scientific support via the development of guidelines to measure the amount of volatile organic compounds in specific commercial products related to the Volatile Organic Compound (VOC) Concentration Limits for Automotive Refinishing Regulations, the Volatile Organic Compound (VOC) Concentration Limits for Architectural Coatings Regulations and the proposed Volatile Organic Compound (VOC) Concentration Limits for Certain Products Regulations. The guidelines will be used to communicate to industry the Department's approach to compliance and the enforcement of these new regulations.

Compliance promotion officers received compliance promotion training on new requirements for new vehicles and engines regulations such as the Marine Spark-Ignition Engine, Vessel and Off-Road Recreational Vehicle Emission Regulations.

Investment for the improvement of the Compliance Promotion Customer Relationship Management (CPCRM) database has increased EC's ability to track, analyze and report on compliance promotion activities.

Regional technical sector support for the development and implementation of CARA instruments was provided. Activities were delivered in the areas of natural resources, energy (coal fire regulations) and transportation (marine spark-ignition engine and off-road recreational vehicles (MERV), fuels). The Department advanced the development and modification of scientific methodology to support CARA enforcement and compliance promotion activities related to the industrial, transportation and consumer products sectors.

Enforcement is also putting in place a system to track both classroom and learning activities, so that we can respond to queries from managers and other stakeholders. This system is currently in the implementation phase.

A Regulatory Enforcement Plan was developed for the On-Road Vehicle and Engine Emission Regulations to ensure consistency of enforcement activities at a national level.

In 2011-2012, enforcement officers across the country were actively involved in both on- and off-site inspections for vehicle and engine regulations and fuels regulations, with some of these inspections resulting in enforcement measures. The Enforcement Branch has been successfully working with the Canada Border Services Agency (CBSA) at the border to help identify suspected non-compliant engines. Enforcement has also been active on the VOC regulations conducting on-site inspections at various facilities.

See also FSDS Implementation Strategy 2.1.5, 2.1.6 and 2.1.38 for related performance information.

Clean Air Agenda Program Lessons Learned

The delivery of compliance promotion and enforcement activities is in its first stage of implementation. Some compliance promotion activities were delayed until 2012-2013 due to staffing adjustment in the regions in fall 2011.

Due to the international nature of some of the CARA regulations, working in collaboration with the CBSA will be crucial for their enforcement.

Clean Air Agenda Program Spending Information27
($) millions
Total CAA Program Approved Spending 2011-2016Program Planned Spending in 2011-2012Program Actual Spending in 2011-2012
33.636.895.06

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Analysis in Support of Regulations

Link to 2011-2012 Departmental Program Activity Architecture (PAA)
  • Ecosystem Assessment and Approaches

  • Climate Change and Clean Air Regulatory Program

  • Environmental Technology

  • Governance and Management Support

CAA Program Description and Expected Achievements

This year's focus has been to complete several economic analyses in support of regulations as well as on understanding the current gaps in providing technical expertise on air issues for environmental assessments and working to fill these gaps in a way that will support the implementation of the Clean Air regulatory Agenda (CARA).

CAA Program Achievements / Performance Summary

An integrated energy, emissions and economic projection was developed that serves as a foundation for the economic analysis. Economic analysis of several proposed regulations were initiated or completed, including coal-fired electricity generation units, heavy-duty vehicles, natural gas, light-duty vehicles (2017-2025), Base-level Industrial Emission Requirements (BLIERs) being considered under the Air Quality Management System (AQMS) and marine sulphur in diesel.

Environment Canada (EC) has produced regulatory impact assessment statements, including cost-benefit analyses, in support of the Renewable Fuels Regulations, the proposed Marine Sulphur in Diesel Fuel Regulations, and the Passenger Automobile and Light Truck Greenhouse Gas Emission Regulations for the 2011-2016 model years, aligned with the United States, as well as the Off-Road Compression-Ignition Engine Emission Regulations and the On-Road Vehicle and Engine Emission Regulations On-Road Vehicles and Engine Emission Regulations (On-Board Diagnostic Systems).

Economic research was conducted on cost-effectiveness analysis, the social cost of carbon, the social cost of methane and nitrous oxide, competitiveness considerations in the oil and gas sector, air quality impacts on livestock, the potential for environmental regulation to spur innovation, the relationship between environmental regulation and productivity growth, the green growth concept within the Canadian context, behavioural economics considerations in environmental policy development, and considerations of opportunities for Land Use and Land Use Change to contribute to Canada's greenhouse gas emission reduction goals.

In the fall of 2011, air experts and EA practitioners participated in a workshop to identify current EA program requirements and how best to work together to meet the needs. This was supplemented by the creation of a reference document on air quality environmental assessment, which provided the basis for additional training for EC staff on conducting technical air reviews.

CAA Program Lessons Learned

A formalized Air Network within EC, dedicated to air-related issues, has shown to be valuable in supporting ongoing and upcoming air issues in EA projects and other core programs. Environmental assessment provides an opportunity for EC to advise proponents of upcoming federal requirements (e.g. the Air Quality Management System) and to promote compliance with existing federal instruments related to air issues. By sharing information and the development of an air specialist inventory, the group was able to identify the gaps and needs to improve consistency in EA reviews, to better support core programs and CARA implementation.

Clean Air Agenda Program Spending Information28
($) millions
Total CAA Program Approved Spending 2011-2016Program Planned Spending in 2011-2012Program Actual Spending in 2011-2012
25.963.422.76

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11 Spending includes the following: Salary; Employee Benefit Plan; Operations and Maintenance; Capital; Grants and Contributions, and Corporate Support; but excludes Public Works and Government Services Canada (PWGSC) accommodation costs, consistent with Treasury Board of Canada Secretariat (TBS) guidance on departmental reporting on expenditures.

12 Spending includes the following: Salary; Employee Benefit Plan; Operations and Maintenance; Capital; and Grants and Contributions, Corporate Support; but excludes PWGSC accommodation costs, consistent with TBS guidance on departmental reporting on expenditures.

13 Spending includes the following: Salary; Employee Benefit Plan; Operations and Maintenance; Capital; Grants and Contributions, and Corporate Support; but excludes PWGSC accommodation costs, consistent with TBS guidance on departmental reporting on expenditures.

14 Spending includes the following: Salary; Employee Benefit Plan; Operations and Maintenance; Capital; Grants and Contributions, and Corporate Support; but excludes PWGSC accommodation costs, consistent with TBS guidance on departmental reporting on expenditures.

15 Spending includes the following: Salary; Employee Benefit Plan; Operations and Maintenance; Capital; Grants and Contributions, and Corporate Support; but excludes PWGSC accommodation costs, consistent with TBS guidance on departmental reporting on expenditures.

16 Spending includes the following: Salary; Employee Benefit Plan; Operations And Maintenance; Capital; Grants And Contributions, and Corporate Support; but excludes PWGSC accommodation costs, consistent with TBS guidance on departmental reporting on expenditures.

17 Spending includes the following: Salary; Employee Benefit Plan; Operations and Maintenance; Capital; and Grants and Contributions, Corporate Support; but excludes PWGSC accommodation costs, consistent with TBS guidance on departmental reporting on expenditures.

18 The final regulations have since then been posted on the Canada Gazette, Part II in September 2012.

19 Spending includes the following: Salary; Employee Benefit Plan; Operations and Maintenance; Capital; Grants and Contributions, and Corporate Support; but excludes PWGSC accommodation costs, consistent with TBS guidance on departmental reporting on expenditures.

20 Spending includes the following: Salary; Employee Benefit Plan; Operations and Maintenance; Capital; Grants and Contributions, and Corporate Support; but excludes PWGSC accommodation costs, consistent with TBS guidance on departmental reporting on expenditures.

21 Spending includes the following: Salary; Employee Benefit Plan; Operations and Maintenance; Capital; Grants and Contributions, and Corporate Support; but excludes PWGSC accommodation costs, consistent with TBS guidance on departmental reporting on expenditures.

22 Spending includes the following: Salary; Employee Benefit Plan; Operations and Maintenance; Capital; Grants and Contributions, and Corporate Support; but excludes PWGSC accommodation costs, consistent with TBS guidance on departmental reporting on expenditures.

23 Spending includes the following: Salary; Employee Benefit Plan; Operations and Maintenance; Capital; Grants and Contributions, and Corporate Support; but excludes PWGSC accommodation costs, consistent with TBS guidance on departmental reporting on expenditures.

24 Spending includes the following: Salary; Employee Benefit Plan; Operations and Maintenance; Capital; Grants and Contributions, and Corporate Support; but excludes PWGSC accommodation costs, consistent with TBS guidance on departmental reporting on expenditures.

25 Spending includes the following: Salary; Employee Benefit Plan; Operations and Maintenance; Capital; Grants and Contributions, and Corporate Support; but excludes PWGSC accommodation costs, consistent with TBS guidance on departmental reporting on expenditures.

26 Spending includes the following: Salary; Employee Benefit Plan; Operations and Maintenance; Capital; Grants and Contributions, and Corporate Support; but excludes PWGSC accommodation costs, consistent with TBS guidance on departmental reporting on expenditures.

27 Spending includes the following: Salary; Employee Benefit Plan; Operations and Maintenance; Capital; Grants and Contributions, and Corporate Support; but excludes PWGSC accommodation costs, consistent with TBS guidance on departmental reporting on expenditures.

28 Spending includes the following: Salary; Employee Benefit Plan; Operations and Maintenance; Capital; Grants and Contributions, and Corporate Support; but excludes PWGSC accommodation costs, consistent with TBS guidance on departmental reporting on expenditures.

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