Update on the Implementation of the Provincial Mandatory

Vehicle Emissions Inspection and Maintenance Program

(Drive Clean Program)

The Board of Health recommends that:

(1)Council endorse the action taken by the Board of Health and request the Minister of the Environment to implement a mandatory vehicle inspection and maintenance program using dynamometer technology that accurately measures vehicle emissions under simulated road conditions, and expects that technological upgrades of the highest standards be made on a regular basis; and

(2)that all Boards of Health and Health Councils in the Greater Toronto Area and the Windsor-Montreal corridor be requested to similarly endorse Council's and the Board of Health's action in this respect.

The Board of Health reports having adopted the report (September 2, 1998) from the Medical Officer of Health subject to amending the recommendation therein to read:

"It is recommended that the Minister of the Environment implement a mandatory vehicle inspection and maintenance program using dynamometer technology that accurately measures vehicle emissions under simulated road conditions, and that the Board of Health expects that technological upgrades of the highest standards be made on a regular basis."

and recommended that City Council endorse the Board of Health's action in this respect.

The Board of Health submits the following report (September 2, 1998) from the Medical Officer of Health:

Purpose:

To provide an update on the implementation of the Drive Clean Program, the provincial mandatory vehicle inspection and maintenance program.

Source of Funds:

Not applicable.

Recommendation:

It is recommended that the Minister of the Environment implement a mandatory vehicle inspection and maintenance program using dynamometer technology that accurately measures vehicle emissions under simulated road conditions.

Background:

In 1996 the Blue Ribbon Committee, established by Metro Council to examine air quality in the GTA, recommended a provincial mandatory vehicle emissions inspection and maintenance program. In keeping with the longstanding recognition of the linkage between air quality and human health, the former Toronto Board of Health, along with many former Greater Toronto Area municipalities, endorsed the recommendations of the Blue Ribbon Committee.

At its meeting on July 27, 1998, the Board of Health considered the report from the Medical Officer of Health entitled Air Quality and a Federal Standard for Sulphur in Fuel. The Board of Health requested the Medical Officer of Health to report to its meeting of September 15, 1998 on the implementation of the provincial government's Drive Clean Program, with a particular focus on the vehicle emission testing component.

Comments:

The MOE estimates that a grossly polluting vehicle can release up to 20 times more pollution than a well-tuned vehicle. If vehicles are maintained regularly, fleet emissions of nitrogen oxides (NOx) and volatile organic compounds (VOC's) can be reduced by 12 and 30% respectively. Nox and VOC's react together in the presence of sunlight to form ground level ozone, which is a primary indicator of air pollution and a major cause of associated adverse health effects including premature death.

In August 1997, the Minister of the Environment announced the establishment of the Drive Clean Program, a provincial mandatory vehicle inspection and maintenance program. The program was originally scheduled for implementation in late summer 1998 in the Greater Toronto Area (GTA) and the Hamilton-Wentworth Region. Subsequent expansion was intended to include 13 urban centres from Windsor to Peterborough by 2000 and commuting zones around the 13 urban centres in 2002. The provincial government's claim was that the program would be totally self-funded and delivered by an independent private sector management contractor with overall accountability for the program maintained by the government.

Implementation of the Drive Clean program has been delayed. Negotiations with a potential management contractor were unsuccessful and the request for proposal has been withdrawn. On August 21, 1998, the Minister of the Environment announced a decision to move forward with a government-managed model. The Minister invited expressions of interest from individuals and businesses to become accredited Drive Clean facilities. In addition, automotive repair shops and garages in Greater Toronto and Hamilton-Wentworth are being contacted to operate Drive Clean testing stations. Formal recruitment of vehicle emission and repair facilities is planned for October 1998.

The program is now scheduled to start in April 1999 in the GTA and Hamilton-Wentworth, with expansion to 13 other urban areas by January 2001. Testing will apply when cars are resold and every two years when vehicles over 3 years old are registered. Testing will be tied to existing Ministry of Transportation vehicle requirements with the cost of the emissions test no more than $30. The cost of reinspection, after repairs are completed, will be no more than $15. In addition, mandatory province-wide testing of heavy-duty trucks and buses will begin in 1999 as part of annual safety inspections.

Emission testing will involve the use of two-speed idle technology for the initial cycle of the program. The Ministry of Environment (MOE) indicates that this technology is capable of being upgraded later. When the Drive Clean Program was initially announced the use of both dynamometer and two-speed idle technology was specified for passenger vehicles. According to staff of Toronto Fleet Management Services, two-speed idle tests measure hydrocarbons, carbon monoxide, carbon dioxide and oxygen. Some models also measure nitrogen oxides. Dynamometer technology simulates road conditions and provides a more accurate measure of nitrogen oxides. Staff of the MOE have indicated that the two-speed idle test is the only technology currently specified because the availability of dynamometers to supply the GTA and Hamilton-Wentworth is uncertain. Discussions between MOE staff and manufacturers of dynamometers are ongoing to determine whether the demand can be met for a program start date of April 1999.

Environmental groups, the automotive repair sector and academic researchers have raised questions about the use of the two-speed idle test leading to repairs that may cause increases in nitrogen oxide emissions. Toronto Fleet Management Services have confirmed that, in order to meet the emission standards for carbon monoxide, carbon dioxide, hydrocarbons and oxygen in older vehicles, repairs limited to adjustments of the air-fuel mixture can cause increases in nitrogen oxide emissions. As well, experience in other jurisdictions has shown the private sectors to be reluctant to upgrade its testing equipment due to its investments in pre-existing technology. Dynamometer testing allows for a more accurate assessment of the repairs required to achieve compliance with all emission standards including nitrogen oxides.

Emissions from the municipal fleet are currently tested at every preventive maintenance interval using the two-speed idle test. Toronto Fleet Management Services will be conducting a cost-benefit analysis on the provision of an in-house emissions testing program for the municipal fleet, including opacity testing for diesel vehicles and dynamometer testing for gasoline vehicles.

Conclusions:

Given the evidence demonstrating the adverse health impacts of poor air quality, it is critical that the Minister of the Environment implement a mandatory inspection and maintenance program that accurately measures emissions under simulated road conditions. This program should include dynamometer technology to provide a more accurate measure of nitrogen oxides.

Contact Names:

Steve McKenna, Acting Manager, Environmental Protection Office, Toronto Public Health

Tel:(416) 392-6788Fax:(416) 392-7418

E-mail: smckenna@city.toronto.on.ca

Franca Ursitti, Research Consultant, Environmental Protection Office, Toronto Public Health

Tel:(416) 392-6788Fax:(416) 392-7418

E-mail: fursitti@city.toronto.on.ca

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The Medical Officer of Health gave a presentation to the Board of Health in connection with the foregoing matter.

Mr. John Hutchison, Pollution Probe, addressed the Board of Health.