May 3, 1999
To:Board of Health
From:Dr. Sheela V. Basrur, Medical Officer of Health
Subject:Changes in Ontario's Electrical Sector and Air Quality - Follow-up
Purpose:
To respond to four Board of Health requests emanating from the April 6, 1999 meeting
discussion of the report entitled, "Changes in Ontario's Electrical Sector and Air Quality".
Resource Implications:
Not applicable at this time.
Recommendations:
It is recommended that the Board of Health:
(1)revise the first and second recommendations embodied in the communication dated
April6, 1999, from Councillor Jack Layton, to indicate that air conditioners in City buildings,
and in buildings belonging to others in the City, be set at an average temperature of 23 degrees
Celsius during summer months; and
(2)encourage the Ministry of Environment to take all steps necessary to shorten the time
frame between the collection of air samples and the reporting of air sampling results to the
public.
Background:
On April 6, 1999, the Medical Officer of Health tabled a report entitled, "Changes in
Ontario's Electrical Sector and Air Quality", which contained four recommendations that were
directed at the Ontario Minister of Environment and the Ontario Minister of Energy, Science
and Technology. The Board of Health:
(1)adopted the report from the Medical Officer of Health;
(2)directed that:
(i)the report be forwarded to Council for information;
(ii)the report also be forwarded to the Minister of Health and circulated to all Boards of
Health across the Province of Ontario;
(iii)the Commissioner of Urban Planning and Development Services be requested to include
Public Health in work to develop a new Official Plan with respect to energy use and other
public health issues;
(iv)the Chief Administrative Officer be requested to involve the Energy Efficiency Office
and the Medical Officer of Health in City discussions with respect to the development of the
proposed shareholders agreements between the City of Toronto and Toronto Hydro and the
Toronto District Heating Corporation, respectively;
(v)Toronto Hydro be requested to work cooperatively with the Toronto District Heating
Corporation to ensure that deep lake water cooling takes effect in Toronto; and
(vi)the Chief Administrative Officer be requested to ensure that adequate resources are
available to the Energy Efficiency Office to investigate measures that could be taken to reduce
energy usage; and
(3)requested the Medical Officer of Health to report back to the next meeting of the Board
of Health, scheduled to be held on May 6, 1999, on:
(i)the recommendations embodied in the communication dated April 6, 1999, from
Councillor Jack Layton, including the health impact of turning down air conditioners in City
buildings to maintain an average temperature of 25 degrees Celsius;
(ii)the feasibility of providing to the Board, on a quarterly basis, an analysis of Ministry of
the Environment and Environment Canada air quality monitoring data for the Toronto region;
(iii)the effect of deep lake water cooling on Toronto's ecosystem; and
(iv)the feasibility of establishing voluntary agreements with key industries that are high
energy users.
Recommendation (3)(i) refers to the following four recommendations:
(a)That all City of Toronto building managers be requested to immediately turn down air
conditioners in City buildings so that the average temperature is 25 degrees Celsius (78
degrees Fahrenheit), except in buildings where medical and other circumstances require a
different temperature.
(b)That the City of Toronto call on all building owners, tenants and anyone else responsible
for controlling temperature in buildings to turn down the air conditioning so that the average
air temperature is 25 degrees Celsius.
(c)That the Medical Officer of Health and the Energy Efficiency Office approach the
Building Owners and Managers Association (BOMA) to develop a "Dress Cool, Breath Well
Challenge" that is paid for by a percentage of savings from reduced energy bills that come
from participants involved in this initiative.
(d)That the Medical Officer of Health, in conjunction with the Energy Efficiency Office,
calculate the potential reduction in CO2 emissions and other harmful pollutants from a
city-wide reduction in air conditioning use.
This report responds to the four requests captured by recommendation (3).
Comments:
(1)Temperature in Buildings During Summer
In order to respond to recommendations (3)(i)(a) and (b), Public Health has consulted with an
Energy Management Consultant in the Energy Efficiency Office of Works & Emergency
Services and with an Industrial Hygienist in Occupational Health, Safety and Workers'
Compensation in Corporate Services to determine the building temperature that is optimal for
the summer months from both an energy efficiency and human comfort level.
The American Society for Heating, Refrigeration and Air Conditioning Engineers (ASHRAE)
Standard (55-1992) on Thermal Environmental Conditions for Human Occupancy
recommends 23 to 26 degrees Celsius as an acceptable temperature range for summer months
provided that relative humidity does not exceed 50%. However, it has been the experience of
the professionals consulted that temperatures greater than 23 or 24 degrees Celsius can
increase the number of complaints received by occupants within a building. Discomfort can be
related to temperature variations between locations within a building or humidity variation
between buildings. A temperature of 23 degrees Celsius (or 73.4 degrees Fahrenheit) is a
reasonable temperature that gains acceptance by a large majority of occupants in buildings.
For this reason, it is suggested that recommendations (3)(i)(a) and (3)(i)(b) be revised to
incorporate an average temperature of 23 degrees Celsius.
(2)Carbon Dioxide Calculations
Public Health has discussed recommendation (3)(i)(d), which asks for a calculation of the
potential reduction in carbon dioxide (CO2) emissions from a city-wide reduction in air
conditioning use, with the Energy Efficiency Office. While it is relatively easy to calculate the
CO2 emissions reductions once the reduction in kilowatt-hours is known, the Energy
Efficiency Office has indicated that it is very difficult to calculate the kilowatt-hours of energy
that would be reduced by a city-wide reduction in air conditioning use because there is so little
known about the number of air conditioning units being used across the City, the space they
are being used to cool, their efficiency, the diversity in their use, and because air conditioning
levels are greatly affected by variations in temperature, sunlight, and humidity. It is possible
that Toronto Hydro, with its knowledge of the market and electricity load patterns, working in
consultation with the Energy Efficiency Office, could provide a rough estimate of the energy
savings and the CO2 emissions reductions that could be gained with a city-wide reduction in
air conditioning use.
(3)Quarterly Air Quality Reports
The Environmental Monitoring & Reporting Branch of the Ontario Ministry of Environment
conducts air sampling for criteria air pollutants, including ozone and particulate matter
(PM10), at six sampling stations in the City of Toronto. Some samples are collected with
instruments that provide instantaneous readings on a continual basis. Other samples are
collected at the sampling stations and then analyzed in a laboratory.
Data from six criteria pollutants, including ozone, are used to produce the Air Quality Index
(AQI). The AQI is an indicator of air quality that can be used by individuals and institutions to
determine when there is a poor air quality episode that warrants changes in individual or
institutional behaviour. The AQI is reported daily by the Ministry on its phone line, on its web
site, and in the newspaper.
The Ministry also analyzes and summarizes air sampling data in an annual report entitled,
"Air Quality in Ontario". This report provides maximum concentrations and annual averages
for a number of different air pollutants including ozone, PM10, and sulphates, for all of the
sampling stations in the province. This report includes the summaries of air sampling data
collected at the six sampling stations in Toronto. This information can be used to identify the
air pollutants of concern to a particular community and the changes in the concentrations of
those air pollutants from one year to the next. In Public Health, this air sampling data has been
used for special projects as was the case with the recent electrical sector report. This data can
also be used by public health and other organizations for the preparation of health status
reports. For example, Toronto Public Health has submitted Ministry data related to ozone and
PM10 to the Children's Committee to be included in the Children's Report Card that has been
proposed as an annual report.
Unfortunately, there is a time lag of approximately 12-18 months between the time that the air
sampling data is collected and the time that the Ministry's air quality report is published. The
time lag results from the time required by the Ministry to collect the sampling data, calibrate
air sampling equipment, check the data for its accuracy, analyze the data, and write the report.
The Ministry is currently upgrading its computer system which could shorten the time lag in
the future. It is also possible that the Environmental Monitoring & Reporting Branch could
report air sampling results in a more timely fashion and produce quarterly AQI summaries if it
had additional human resources with which to quality assure/quality control the air sampling
data.
Therefore it is recommended that the Board of Health encourage the Ministry of Environment
to take all steps necessary to shorten the time frame between collecting air samples and
reporting air sampling results to the public. It is also recommended that staff in Public Health
meet with the Ministry to discuss the means by which this information is disseminated to the
public and the timing of its release.
(4)Deep Lake Cooling
In the Spring of 1998, Public Health staff reviewed the consultant's report, "Deep Lake Water
Cooling Schedule B Class Environmental Assessment" that was prepared for Toronto Works
& Emergency Services on the Deep Lake Water Cooling (DLWC) project. Staff also
participated in two meetings of the DLWC Public Advisory Committee, attended two public
workshops sponsored by Toronto Works & Emergency Services, and met with staff from
Toronto Works & Emergency Services to discuss the issue on June 9, 1998. Attached for the
Board's information is a copy of the letter sent on the issue from the Medical Officer of
Health to the General Manager of Water & Wastewater Services, dated July 30, 1998.
The current Deep Lake Water Cooling project involves circulating drinking water, drawn from
a depth of 70 meters in Lake Ontario, through heat exchangers belonging to the Toronto
District Heating Corporation (TDHC), to extract heat from the TDHC cooling system. The
drinking water would then be returned to the city's water distribution system for distribution
to Toronto residents. The TDHC would operate a cooling water loop on the other side of the
heat exchangers that would circulate the water to cooling systems in downtown buildings.
The Environmental Assessment (EA) report identified the transport of sediment-bound
contaminants and the formation of zebra and quagga mussels at the DLWC intake as
ecological concerns that could result from the DLWC project. However, the EA report
concluded that these concerns were not sufficient to advise against carrying out the DLWC
project. The EA report notes that site-specific sampling will be used during the design phase
to validate the EA conclusions. The EA report also identified a number of environmental
benefits that would accrue from the project including: reduced energy use in buildings
serviced by TDHC; a reduction in the burning of fossil fuels for electricity; reduced carbon
dioxide emissions; and a reduced need for environmentally damaging refrigerants.
The EA report identified cross contamination of drinking water with non-potable TDHC water
as a paramount concern. This was the focus of Public Health's review. Toronto Works &
Emergency Services indicated that modeling of possible failure scenarios demonstrated that
the potential for cross-contamination was low. Engineering measures proposed include a
monitoring system designed to detect cross-contamination and an automatic shut-down of the
DLWC system in the event of cross-contamination. Public Health has been advised that the
DLWC project is currently in a pre-design stage in preparation for construction.
(5)Voluntary Agreements with Industrial High Energy Users
With respect to request (3)(iv), the Board has asked the Medical Officer of Health to
investigate the feasibility of establishing voluntary agreements with key industries that are
high energy users.
If voluntary agreements were established with high energy users to reduce their long-term
energy use, it is possible that carbon dioxide and other air emissions could be substantially
reduced in the City. However, the establishment of voluntary agreements could be a resource
intensive exercise that involves several time-consuming steps. For example, an energy use
inventory would have to be conducted, high energy users would have to be prioritized, key
industries would have to be approached to determine their level of interest, and agreements
would have to be negotiated with each of them. Public Health will consult with Toronto
Hydro, the Energy Efficiency Office, Works & Emergency Services and the Ministry of
Environment to determine the resources and expertise that would be required for such an
undertaking and the environmental benefits that could be gained from it.
Conclusions:
The Medical Office of Health has responded to several recommendations related to item 2 in
Board of Health's April 6, 1999 Decision Document. The Medical Officer of Health is
proposing that recommendation (3)(i) be revised to recommend an average temperature of 23
degrees Celsius for City buildings during summer months. In addition, a new recommendation
is proposed in response to recommendation (3)(ii) which requested air monitoring reports for
the Toronto region on a quarterly basis.
Contact Name:
Kim Perrotta, MHSc
Environmental Epidemiologist
Health Promotion & Environmental Protection
Toronto Public Health
Tel: 416-392-6788
Fax: 416-392-7418
E-mail: kperrott@toronto.ca
Dr. Sheela V. Basrur
Medical Officer of Health
Attach.