TABLE OF CONTENTS
REPORTS OF THE STANDING COMMITTEES
AND OTHER COMMITTEES
As Considered by
The Council of the City of Toronto
on October 1 and 2, 1998
BOARD OF HEALTH
REPORT No. 11
1Update on the Implementation of the Provincial Mandatory Vehicle Emissions
Inspection and Maintenance Program (Drive Clean Program)
2Signing Authority - Standard Agreements
City of Toronto
REPORT No. 11
OF THE BOARD OF HEALTH
(from its meeting on September 15, 1998,
submitted by Councillor John Filion, Chair)
As Considered by
The Council of the City of Toronto
on October 1 and 2, 1998
1
Update on the Implementation of the Provincial Mandatory
Vehicle Emissions Inspection and Maintenance Program
(Drive Clean Program)
(City Council on October 1 and 2, 1998, adopted this Clause, without amendment.)
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
--------
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.
2
Signing Authority - Standard Agreements
(City Council on October 1 and 2, 1998, adopted this Clause, without amendment.)
The Board of Health recommends the adoption of the following report (August 18, 1998)
from the Medical Officer of Health.
Purpose:
To seek expanded signing authority for the Medical Officer of Health for standard agreements.
Source of Funds:
None
Recommendations:
(1)That the signing authority of the Medical Officer of Health be expanded to include the
execution of standard agreements affecting Toronto Public Health programs as discussed in
this report.
(2)That the agreements referred to in Recommendation 1 be in a form satisfactory to the City
Solicitor.
Background:
In February, 1998 the Chief Administrative Officer outlined an interim spending authority to
the senior level commissioners, which included approved purchasing practices up to
$500,000. As well, the Medical Officer of Health was delegated spending authority for
$100,000 for consulting services and $25,000 for items where normal purchasing procedures
are not possible. All funds must be in the approved operating and/or capital budgets, or have
specific Council approval.
Discussion:
On occasion, Toronto Public Health receives funding from external sources. For example, the
funds have been received from the provincial government to be used for a number of
initiatives including the Healthy Babies, Healthy Children Project, Pre-School Speech and
Languages Program and the Heart Health Program. Public Health has also received funding
from other funding organizations (for example, the Ontario Neurotrauma Foundation) which
enables it to conduct and/or provide specific programming or services. In these instances, the
agreements which are drafted are, for the most part, standard agreements and currently require
the signatures of the City's signing officers. As previously noted, the Chief Administrative
Officer has delegated limited signing authority to the Medical Officer of Health, however the
existing delegation does not appear to cover situations where funds is provided by outside
sources to the City and for which agreements are required. I am therefore recommending that
additional signing authority be delegated to the Medical Officer of Health to facilitate the
execution of agreements where Public Health receives funding from outside sources for its
programs.
Occasionally, agreements are drafted to address situations where there are no direct financial
implications. In some instances, terms and conditions are negotiated with educational
institutions for the placement of students for practicum placements. Often these terms and
conditions are incorporated into standard written agreements which presently require the
signatures of the City's signing officers. I also recommend that the Medical Officer of Health
be authorized to execute agreements of this kind.
Conclusion:
The Chief Administrative Officer has delegated to the Medical Officer of Health spending
authority up to $100,000 for consulting services where approved procurement procedures
have been followed. As discussed in this report this delegation does not include certain
situations where standard agreements are prepared and executed by the City's signing officers.
Accordingly, I have recommended that the Medical Officer of Health be delegated additional
signing authority for agreements in which there is receipt of external funds or where no direct
financial implications occur.
Contact Name:
Maureen Cava
Toronto Public Health, North York Office
395-7684
Respectfully submitted,
JOHN FILION,
Chair
Toronto, September 15, 1998
(Report No. 11 of The Board of Health was adopted, without amendment, by City Council on
October 1 and 2, 1998.)
