Evaluating Iding

Evaluating Iding:

Part A - Idling Control Policies And Part B – An Analysis of the Region of Waterloo Idling Control Protocol

Written by Belinda Laszlo ID# 98127377 ERS 490s Advisor Professor Robert Gibson Faculty of Environmental Resource Studies University of Waterloo April 03 Table of Contents

EXECUTIVE SUMMARY ...... 4

1.0 INTRODUCTION ...... 6 1.1 Question Statements ...... 6 1.2 Methods ...... 7

PART A – IDLING CONTROL POLICIES

2.0 WHAT IS IDLING? ...... 11 2.1 Types of Anti-Idling Policies ...... 11 2.2 The Benefits of Anti-Idling Policies ...... 14 2.3 The Costs of and Barriers to Idling Control Policies ...... 15

3.0 IDLING CONTROL POLICY CASES IN ONTARIO ...... 16

4.0 IDLING CONTROL POLICY CASES IN OTHER PARTS OF CANADA ...... 18

5.0 INTERNATIONAL IDLING CONTROL POLICY CASES ...... 20

6.0 A COMPARISON OF THE SELECTED IDLING CONTROL POLICIES ...... 22 6.1 The Comparison Charts ...... 22 6.2 Discussion of the Results ...... 26

7.0 PART A CONCLUSIONS AND RECOMMENDATIONS ...... 31

PART B – AN ANALYSIS OF THE REGION OF WATERLOO IDLING CONTROL PROTOCOL

8.0 THE REGION OF WATERLOO IDLING CONTROL PROTOCOL ...... 33 8.1 Origins of the Region of Waterloo Idling Control Protocol ...... 33 8.2 Implementation of the Waterloo Region Idling Control Protocol . . . . 35

9.0 THE EXEMPTIONS ...... 37

10.0 PART B CONCLUSIONS AND RECOMMENDATIONS ...... 45

11.0 SUMMARY ...... 47

2 13.0 REFERENCES ...... 49

APPENDIX A – Waterloo Region Idling Control Policy

APPENDIX B – University of Waterloo Ethical Clearance Forms

3 Executive Summary

Governments have taken many different approaches to reducing air pollution from on and off road vehicles. Specifically targeting vehicle “idling” has been one particular approach. Idling a vehicle is allowing the engine to run for over ten seconds while the vehicle is not in motion (CACAQ, 2002).

This report examines the range of idling control policy approaches now in use, and provides a more detailed assessment of the Idling Control Protocol in the Region of

Waterloo, Ontario. The report is divided into two main parts, Part A, “Idling Control

Policies,” explains what idling is, identifies the main current types of idling control policies and considers the general benefits and costs and the barriers to the various types of anti-idling policies in Ontario, other Canadian provinces and internationally. Specific cases of anti-idling policies representing different types of approaches are then compared using specific criteria to determine what is the best way to stop people from idling their vehicles.

Part B of this report, “Evaluating the Region of Waterloo Idling Control Protocol,” aims to answer three main questions:

• How did the Region of Waterloo’s Idling Control Protocol come into existence?

• Are the exemptions contained within the Idling Control Protocol necessary or can

they be altered or eliminated to reduce the amount of air pollution being created

and released into the atmosphere?

• If some or all of the exemptions were altered or eliminated, how much of a

difference would be made in the quality of air in the Region of Waterloo?

4 Part A discussion reveals that no one type of idling control policy can be proclaimed as the “best.” The three different types of idling control policies have strengths and weaknesses. Therefore, it makes sense to consider combinations of the three idling control policies. Lessons from experience, (especially in Canada), also suggest there are benefits from having a higher level of government establish and enforce the policy instead of relying exclusively on lower levels of government. One gain would be reduction of the duplication that results from various municipalities discussing and researching the issue of idling control initiatives independently.

The Part B discussion concludes that the Waterloo Region Idling Control Protocol is a solid policy. Nevertheless, exemptions in the Waterloo Region Idling Control

Protocol could be changed to make the policy more efficient and effective. Together with the education campaign being initiated to inform the public of the negative aspects of unnecessary idling and the implementation of the Idling Control Protocol, the Region of Waterloo and its Citizens Advisory Committee on Air Quality (CACAQ) are pioneering new types of regional policies aimed to protect the environment.

5 1.0 Introduction

Air quality degradation is a major, far-reaching and extensively interconnected global environmental problem. According to the Ontario Medical Association, air pollution triggers more than 1900 premature deaths in Ontario a year (OMA, 2001).

"Each summer the air we breathe is getting worse. Smog levels have reached crisis proportions and action is needed now in order to reduce the poisons in the air that are directly affecting our health," said Dr. Ken Sky, President of the OMA (OMA, 2001).

One of the primary causes of smog is the exhaust from cars, trucks, sports utility vehicles and other on and off road machines powered by fossil fuels (CACAQ, 2002).

“The burning of petroleum products causes excessive carbon dioxide and other pollutants to enter our air, contributing to air pollution, and potential global warming and climate change” (CACAQ, 2002).

To reduce air pollution from on and off road vehicles, governments have taken many different approaches. Specifically targeting vehicle “idling” has been one particular approach. Idling a vehicle is allowing the engine to run for over ten seconds while the vehicle is not in motion (CACAQ, 2002).

1.1 Question statements

This report examines the range of idling control policy approaches now in use, and provides a more detailed assessment of the Idling Control Protocol in the Region of

Waterloo, Ontario. The report is divided into two main parts, Part A, “Idling Control

6 cases of anti-idling policies representing different types of approaches are then compared using specific criteria to determine what is the best way to stop people from idling their vehicles.

Part B of this report, “Evaluating the Region of Waterloo Idling Control Protocol,” aims to answer three main questions:

• How did the Region of Waterloo’s Idling Control Protocol come into existence?

• Are the exemptions contained within the Idling Control Protocol necessary or can

they be altered or eliminated to reduce the amount of air pollution being created

and released into the atmosphere?

• If some or all of the exemptions were altered or eliminated, how much of a

difference would be made in the quality of air in the Region of Waterloo?

1.2 Methods

To answer the questions in part A of this report about idling, idling control policies, and the associated benefits, costs and barriers, a thorough literature review has been undertaken. Additional information was obtained from the Region of Waterloo’s

Citizen’s Advisory Committee to Air Quality (CACAQ) and several different levels of

Canadian government.

To identify the various types of idling control policies that exist around the world, an expansive search of the Internet was conducted. This included a systematic look at government websites of several countries. While the search focused on Canada; anti- idling initiatives found elsewhere in the world were also identified and considered. A literature review and contact with CACAQ also helped to identify idling control cases.

7 From the results of the idling control policy search, a representative set of policy anti-idling initiatives were selected to be subjected for examination using criteria to judge the likely effectiveness of each type of policy. The selection of the cases was primarily based on identifying cases from different geographical areas to represent the main types of idling control policies being pursued by different levels of government. The

“effectiveness” criteria, used to compare the various types of cases of idling control policies, are as follows:

1. Motivation - The ability of the specific measure to draw upon effective incentives or

disincentives that should discourage people from idling their vehicles. Sub-criteria

include the following:

a) Economic motivation – e.g. expectations of saving money on gas and

potentially vehicle maintenance, fines (CACAQ, 2002);

b) Social motivation - especially inducing a social pressure to stop idling;

c) Environmental concern motivation – desires to stop idling to reduce

environmental harm from poor air quality;

d) Human health concern motivation - desires to stop idling to reduce negative

human health effects of degraded air quality.

2. Information Element – This complements motivation and the relevant information

should be linked to the main concerns and the main benefits of idling reduction. The

key factors include:

a) Retention of the information – will people remember to stop idling based on

the method through which the information is distributed?

8 b) Efficiency of the method of education – how well is the information being

distributed?

c) Level of information – how in depth is the information being distributed?

3. Scope – What is the reach of the initiative?

a) What is the geographic area in which people are being targeted?

b) What is the type of approach? - to reach a large audience (most vehicle

owners and operators)?

c) What is the diversity of people receiving information?

d) How many people are being reached by information - are you reaching

everyone possibly idling?

4. Efficiency – This criterion basically addresses the cost-effectiveness of the program.

a) Is every dollar of the program cost being spent in the best way possible?

b) Would another type of initiative offer better results at less cost?

5. Linkages to other environmental initiatives – This is important because anti-idling

policies are not the only way governments can reduce air pollution from vehicles.

For example, education to use the private automobile less, support for public

transportation, investment in renewable energy, more use of the bicycle, walking,

improve the Ontario provincial drive clean program, encouraging low emission

vehicles, removing some stop signs, proper timing of traffic lights, etc. This criterion

centers on whether or not there are linkages to other initiatives being pursued.

These five main criteria and the various sub-criteria will be used in the comparison of the main options and to answer the question, “what is the best way to reduce idling.”

9 Part B of this report, “An Analysis of the Region of Waterloo Idling Control

Protocol,” involved correspondence with Waterloo region employees, several Region of

Waterloo reports, information collected and assessed in Part A of this report and further literature review and contact with various ENGOs.

10 PART A – IDLING CONTROL POLICIES

2.0 What is Idling?

A stationary vehicle, with its motor running is said to be idling (CACAQ, 2002).

Studies show that if you are going to be idling for more than ten seconds, it is more efficient and environmentally responsible to turn off your engine (CACAQ, 2002). More than ten seconds of idling uses more fuel than restarting the engine and excessive idling can damage engine components, including the cylinders, spark plugs and the exhaust system (NRCan., Nov. 2002). The popular myth that shutting off and restarting your vehicle is hard on the engine, and uses more gas than if you leave it running, is not true.

In cars, “frequent restarting has little impact on engine components such as the battery and starter motor. Component wear caused by restarting the engine is estimated to add

$10 per year to the cost of driving, money that will likely be recovered several times over in fuel savings from reduced idling” (NRCan., Nov. 2002). In regards to diesel vehicles, a study by the Edison Electric Institute determined that a typical engine idling of 2,500 hours annually equals 20,000 extra miles of engine wear, adding an operational cost of

$4,000 to $7,000 per vehicle per year (Tario, 2002).

2.1 Types of Anti-Idling Policies

There are basically three broad categories of anti-idling policies – bylaws, employee protocols and education programs. There are, however, many different variations to bylaws, educational programs and employee protocols. i) Bylaws – A municipal bylaw is a rule adopted by the government for its citizens, usually enforced with a monetary fine. Each of the idling control bylaws found through the Internet and literature search was unique; however, all the bylaws were devised to

11 serve the same purpose – to make idling illegal under certain circumstances. The wording of the bylaws, the time limits that vehicles can idle without being subject to a fine and the reasons behind some of the bylaws vary. For example, the cities of Toronto and London, Ontario and cities in Germany all have laws targeting the issue of idling, however, the reasons behind these laws differ. The City of Toronto established its bylaw to deal with a noise issue (NRCan, Nov. 2002). When the motion for the bylaw was put forward, idling was, “seen as a public-nuisance issue, not an environmental one”

(NRCan., Nov. 2002). The City of London, Ontario instead developed its bylaw due to a civic interest in environmental protection (NRCan., Nov. 2002). The London bylaw is unique, in that public health inspectors enforce it, rather than bylaw enforcement officers like in Toronto and all the other cities identified having anti-idling bylaws in Ontario.

Germany has a totally different reason for its anti-idling law. They have a law in their

“Road Traffic Ordinance,” which makes it illegal to use your cell phone while driving. If you want to use your cell phone, you have to park the car on the side of the road and turn off your engine or risk a traffic ticket (German Road Traffic Ordinance, date unknown).

While the focus of this law is not idling, idling is being targeted to a certain extent. ii) Employee Protocols – For the purposes of this study, an employee protocol is a type of policy adopted by a specific level of government to prohibit certain types of behaviours by its employees. Several Canadian municipal governments have issued employee protocols to disallow excessive idling. For example, the Region of Waterloo has recently passed an, “Idling Control Protocol,” which directs, “municipal employees in the Region of Waterloo shall not allow a vehicle to idle for more than ten seconds” (Region of

Waterloo, 2002). The City of Calgary, Alberta, also has an anti-idling policy for its

12 municipal employees, which discourages staff from burning fuel unnecessarily (City of

Calgary, Oct. 2002). Like bylaws, existing employee idling control protocols vary from case to case. iii) Education Programs - Education programs being implemented to discourage unnecessary idling vary almost as much as the bylaws aimed to stop idling. The campaigns found through the Internet and literature searches include a variety of initiatives. The primary educational initiatives include the following:

• Baseline studies on idling (gathering information on idling awareness, the effects of

idling, surveying the public, etc…)

• Public awareness campaigns (directly interacting with citizens to inform them about

what idling is, the time limits that it makes efficiency sense to turn off your engine,

etc…)

• Interacting with transit officials and companies with fleets and communicating

information about idling (E.g. the City of Toronto has taken steps to educate GO

transit (the Regional transit system) and the Toronto Transit Commission, (TTC) in

Toronto about idling)

• Distribution of facts sheets about idling directly to the general public (e.g. at daycare

centres, public libraries, car rental counters and recreation centres)

• Targeting the municipal works places specifically with information about idling (e.g.

through fliers, seminars, etc)

• School based initiatives (initiating direct contact with parents picking up their kids in

school parking lots)

• Posting signage (e.g. metal signs)

13 • Posting information on idling on city websites (e.g. Mississauga’s “Idling-free zone”

at turnthekey.com)

• Media releases (through local television stations, radio stations and newspapers)

Educational campaigns being initiated in different municipalities throughout

Ontario and Canada differ in content and target audience. Many are carried on together with other types of idling control initiatives. This is because when either a bylaw or protocol is introduced, teaching people what the new rule is and why it is important is crucial if the policy is to be effective. For example, when the idling control bylaw in

Toronto was passed, an education program was also initiated to educate people on the reasons behind the bylaw (NRCan, Nov. 2002).

2.2 The Benefits of Anti-Idling Policies

According to CACAQ and Natural Resources Canada, excessive idling is bad for the environment, wastes fuel, costs money and causes increased engine wear due to the incomplete combustion process (CACAQ, 2002; NRCan., Nov. 2002). Idling control bylaws, protocols and education initiatives are all mechanisms to inform people about the environmental, health and economical costs of excessive idling. The major benefit of the anti-idling policies is a reduced amount of pollution being created. The long-term goal of these anti-idling measures is to create societal change, which will hopefully foster a society where unnecessary idling is an unacceptable behaviour.

Another important advantage of implementing idling control initiatives is the compound impact the initiatives have on other sectors of society. For example, in addition to increasing energy efficiency, idling control programs lessen noise pollution and can increase safety (as in the case of Germany’s law in the Traffic Ordinance).

14 2.3 The Costs of and Barriers to Idling Control Policies

The bylaws, protocols and educational initiatives being implemented to deal with the problem of excessive idling have costs and are limited by other barriers. Three of the barriers limiting anti-idling policies are the associated financial costs, political barriers and incomplete public acceptance. i) Financial costs – There are financial costs in enacting bylaws, (or legislation), protocols and educational initiatives. Depending on the extent of the policy and the type, financial costs vary significantly. Currently the cities of Mississauga and Greater

Sudbury in Ontario are conducting a year-long anti-idling educational campaign. The cost of these programs is not known, however, it can be assumed that if it was not for federal funding through Natural Resources Canada, the chance of these programs still existing is slight since Natural Resources Canada is fully supporting the education campaign. The bylaw enforcement is another financial issue, which may have an impact on the success of the initiative. ii) Political Barriers – When implementing any type of program or policy, the government must justify its actions to the public for accountability purposes. This can involve disagreements among government officials about what the best course of action is to discourage idling, the validity of scientific evidence, and the priority such initiatives should be given relative to other public policy concerns. In the case of the city of London idling control bylaw, one key barrier, which arose when city officials attempted to implement the bylaw, was skepticism about the bylaw’s impact (NRCan., Nov. 2002).

Some city officials were concerned that the bylaw would not be sufficiently effective to

15 warrant the resources expended and that implementing an educational program would be a better way to reduce excessive idling (NRCan., Nov. 2002). iii) Public Acceptance – For a government initiative to be effective, it must be accepted by the public to a certain degree. Some citizens will see enacting a bylaw, which imposes a fine on those who disregard the rule of not idling over the specific time limit, as a tax grab. CACAQ of the Region of Waterloo recently undertook a public survey in fall of

2002 to find out how the public felt about certain environmental issues. One specific question asked citizens how they would feel about an idling control bylaw. The responses varied; however, some citizens expressed the opinion that an idling control bylaw, enforced with a fine, would be just another way for the government to make money (CACAQ, 2002). The implementation of a bylaw raises enforcement issues such as what extent of enforcement is necessary and how the public will react to the enforcement.

Despite the costs and barriers, all types of idling control initiatives have become more common in recent years. The following sections discuss several specific cases of idling control measures that have been implemented throughout Ontario, the rest of

Canada and in the United States, Germany and Austria.

3.0 Idling Control Policy Cases in Ontario

An Internet search, literature review and contact with several government and environmental non-profit organizations, has uncovered a variety of types of idling control policies that have been implemented throughout the province of Ontario. In Ontario and the rest of Canada it appears that either the regional government or the local municipal

16 government deals directly with the issue of idling. For the purposes of this section, one case for each of the three broad types of initiatives has been selected: the City of Toronto idling control bylaw, Region of Waterloo Idling Control Protocol, and the Mississauga and Greater Sudbury “Idle-free” public educational programs. i) Idling Control Bylaw in Toronto

In September 1996, the City of Toronto passed an idling control bylaw imposing a fine of $150 when a vehicle was found idling more than three minutes (NRCan., Nov.

2002). In the first three months, bylaw enforcement was limited to education, with only warnings issued. It was important to the City of Toronto to educate people first about idling because it was felt that public awareness on the issue was low. “Many drivers simply do not think about it and others are idling unnecessarily because of commonly held misbeliefs, such as the amount of time that is needed to warm up a car in the winter”

(NRCan, Nov. 2002). After the three months of educating the public on the bylaw was completed, the focus shifted to enforcing the bylaw. Training staff, continued education of the public, implementation of week-long “blitzes” and the establishment of a complaints reporting system were the components concluded by Toronto as, “the keys to the enforcement of the bylaw” (NRCan., Nov. 2002). ii) The Region of Waterloo Idling Control Protocol

In February 2002 the Region of Waterloo created and implemented the “Clean Air

Plan” to combat the problem of degrading air quality. This plan consists of both short- term and long-term strategies. The fourth short-term strategy listed in the Clean Air Plan is, “Develop and implement a municipal protocol prohibiting idling vehicles when not in use” (Region of Waterloo, 2002). This policy was implemented in late spring of 2002,

17 resulting in the “Waterloo Region Idling Control Protocol Policy Statement.” This document states, “Municipal employees in the Region of Waterloo shall not allow a vehicle to idle for more than ten seconds” (Region of Waterloo, 2002). Additionally, the

Region of Waterloo implemented a public education campaign against idling at approximately the same time as the Idling Control Protocol was implemented. For the purposes of this analysis, however, the Protocol will be the focus. iii) The cities of Greater Sudbury and Mississauga “Idle-Free” Public Education

Campaign

For the past year, both the cities of Greater Sudbury and Mississauga have been conducting idling control educational campaigns. These campaigns, both funded by the

Canadian federal government through Natural Resources Canada, have incorporated a large variety of idling control educational initiatives. These include conducting baseline studies on idling, a public awareness campaign, communicating with GO Transit (the regional transit authority), and their municipal bus systems about the negative costs of idling, erecting 250 metal anti-idling signs throughout the cities, using of the media to educate the public and specifically targeting school parking lots to focus on idling parents, and municipal workplaces, among several other perceived “hot spots” for idling.

4.0 Idling Control Policy Cases in other parts of Canada

The search for idling control policies implemented throughout the rest of Canada uncovered several examples of idling control protocols and bylaws, but no documentation on any ongoing anti-idling educational campaigns comparable to the information found for the Region of Waterloo or the Idle-Free Mississauga and Greater Sudbury Anti-Idling

18 program. Most authorities merely posted anti-idling information on regional and municipal websites, along with other air pollution related educational information (e.g.

Regina, Saskatchewan and Winnipeg, Manitoba). Therefore, this section will only focus on two anti-idling examples - the City of Calgary’s Anti-Idling Municipal Policy and the

Vancouver Motor Vehicle Noise Abatement Bylaw. i) The City of Calgary’s Anti-Idling Policy

Calgary has adopted an anti-idling policy to minimize greenhouse gas and air pollution emissions and fuel waste by its transit buses and municipal vehicle fleet (City of

Calgary, 1999). The policy permits the city’s buses to idle for a maximum of five minutes when the temperature is above –10 C. The city employees must turn off the fleet vehicles when parked, unless the operation of the engine is essential for the performance of work. If the engine must be left in operation for any reason, the operator must remain with the vehicle. Currently Calgary is considering expanding the policy into a citywide bylaw (Canadian Press, Dec. 2002). ii) The Vancouver Motor Vehicle Noise Abatement Bylaw

Bylaw No. 4338, for the City of Vancouver, British Columbia came into effect in

December 1998. This law stipulates that drivers of non-Translink buses1 stopped at curbside with their engines idling for more than three minutes will receive a $100 fine

(City of Vancouver, 1998). The emphasis of this bylaw is to minimize engine noise – not to improve the air quality. At the many locations where buses usually stop, signs are posted, which inform bus operators about the bylaw. The presence of these signs, however, is not required for enforcement to occur. The bylaw officers also monitor

1 Translink buses are part of the regional transit system. They can not be included in the bylaw because the City of Vancouver does not have jurisdiction over Translink buses.

19 resident complaints about vehicles engaging in excessive idling (City of Vancouver,

1998).

5.0 International Idling Control Policy Cases

Idling is not just an issue in Canada. Elsewhere in the world, idling control programs are being initiated. In this section anti-idling policies that have been implemented in the United States, Germany and Austria will be discussed. Due to the large number of international idling control policies, and the limited availability of documents in English, this section is limited to these three countries. i) The United States

The responsibility for idling control policies in the United States, (U.S.), lies mainly with the state governments. This is different from Canada, where the creation and implementation of idling control initiatives has been left to the regional and municipal levels of government. In total, 16 state governments have implemented idling regulations where idling after a certain time limit is illegal. From state to state, the legislation differs slightly on the time limits of allowable idling, exemptions, fines and the responsibility of enforcing the regulations. For example, the states of Pennsylvania, Missouri and

Maryland all have idling control legislation, but there are significant differences.

Pennsylvania limits idling to two minutes, but has exceptions allowing idling for longer time limits in extreme temperatures. In addition, heavy-duty diesel vehicles are prohibited from accelerating during idling. The enforcement of the regulation is the responsibility of the police departments and the state’s Air Management Services. The penalty is $300 per violation, with court appearances possible for repeat offenders (HDT,

2002).

20 In Missouri, idling is limited to no more than ten consecutive minutes, with exceptions in place for emergency vehicles (HDT, 2002). The fines for violation of the ordinance can range from $1 to $500 and imprisonment for up to 90 days, or both, depending on the discretion of the police officer issuing the ticket (HDT, 2002).

Maryland’s idling time limit falls in between Pennsylvania’s and Missouri’s at five minutes. The exceptions included in Maryland’s idling control regulation are when idling is caused by traffic congestion, the operation of heating, cooling or auxiliary equipment, and to bring the vehicle up to recommended operating temperature, necessary to accomplish the intended use of the vehicle (HDT, 2002). The State Highway Patrol is responsible for the enforcement of this regulation (HDT, 2002). ii) Germany

Within the German Road Traffic Ordinance, there are two regulations that target idling. The first regulation relates primarily to the use of a cell phone while driving. If you want to use your phone, you have to park the car on the side of the road and turn off your engine. If you don’t, you are subject to a fine. The monetary amount that the fine is unavailable (GRTO, unknown date). The other regulation makes it illegal to create undue vehicle noise and avoidable pollution by exhaust gas. Purposely driving back and forth is also prohibited within built-up areas, if others are inconvenienced thereby

(GRTO, date unknown). iii) Austria

The Austrian government views idling as unnecessary air pollution, and sets out several anti-idling regulations in its national Automobile Law (CACAQ, 2002). One specific regulation listed in Austria’s Automobile Law 71, Section 4 – Environmental

21 Protection, obliges people to turn off vehicle engines when involved a traffic jam in a tunnel (Austrian Government, May 2002).

6.0 A Comparison of the Selected Idling Control Policies

To compare the selected idling control policies, a specific set of criteria has been developed. The criteria are listed in Section 1.2 Methods of this report. The charts, the below selected idling control policies will be rated as low, medium or high against each criterion. For the linkages criterion, a yes or no will be used to indicate whether linkages to other environmental programs with the specific case exist.

6.1 The Comparison Charts

The charts used to compare to the selected idling control initiatives reveal some distinct patterns. Although all the cases of idling control policies selected are unique, they can be grouped into the three specific types of idling control policies – bylaws (or legislation), protocols and educational programs. The results of the comparison chart will be summarized and discussed accordingly to the three broad types of idling control policies.

22 6.1 The Comparison Charts

A. Ontario

Types of Idling Control Initiatives Greater Sudbury The Region of and Mississauga Idling Control Criteria Waterloo Idling Idle-Free Bylaw in Control Protocol Education Toronto Program 1. Motivation a) Economic Motivation High/ Medium Medium High b) Social Motivation High Low Low c) Environmental Concern Motivation Medium High Medium d) Human Health Concern Motivation Medium High Medium 2. Information Element a) Retention of Information Medium/ High Low/ Medium High b) Method of Education Medium High Medium c) Level of Information Medium High Medium 3. Scope a) Target geographical area Low Medium Medium b) Type of approach Low High High c) Diversity of people receiving information Low High High d) Number of people being reached by information Low Medium High 4. Efficiency Medium Medium High 5. Linkages to Other Environmental Programs Yes No Yes

23 B. Canada

Types of Idling Control Initiatives

Vancouver Motor City of Calgary Criteria Vehicle Noise Anti-Idling Policy Abatement Bylaw

1. Motivation a) Economic Motivation High High b) Social Motivation High Low c) Environmental Concern Motivation Medium Low d) Human Health Concern Motivation Medium Medium 2. Information Element a) Retention of Information High High b) Method of Education Medium Medium c) Level of Information Medium Medium 3. Scope a) Target geographical area Low Medium b) Type of approach Low High c) Diversity of people receiving information Low High d) Number of people being reached by information Low High

4. Efficiency Medium High 5. Linkages to Other Environmental Programs Yes Yes

24 C. International

Types of Idling Control Initiatives Criteria The U.S.A. Germany Austria 1. Motivation a) Economic Motivation High High High b) Social Motivation Low Low Low c) Environmental Concern Motivation Medium Medium Medium d) Human Health Concern Motivation Medium Medium Medium 2. Information Element a) Retention of Information High Low Medium b) Method of Education Medium Low Low c) Level of Information Medium Low Low 3. Scope a) Target geographical area High High High b) Type of approach High High High c) Diversity of people receiving information High High High d) Number of people being reached by information High High High 4. Efficiency High High High 5. Linkages to Other Environmental Programs No Yes Yes

25 6.2 Discussion of the Results i) Economic Motivation

There is a high motivational drive for people to stop idling when subjected to a monetary fine imposed against them if they are caught idling their vehicle longer than the allowable time specified. Depending on the level of enforcement of the protocol, a high to medium economic motivation exists for people to stop idling. The fear of perhaps losing their job is a high motivation for employees to comply with the rule; however, it is not known whether cities with protocols do dismiss employees for not following protocol. Educational programs can provide a medium economic motivation for people to stop idling. This is because people learn how they can save gas money, and potential wear and tear on their automobiles. However, because there is no fine imposed, the economic motivation is not as strong as it is with the bylaws and legislation. ii) Social Motivation

There can be a high social pressure for people to comply with the protocol. If employees do not adhere to workplace policies, they may social consequences through their relationships with their co-workers. Again, like with economical motivation, the effect of a protocol is dependent upon the degree of enforcement. In regards to the implementation of educational programs and legislation, there currently exists a low level of social motivation to comply because this could change in the future. As more people are educated about the efficient use of on and off road vehicles.

26 iii) Environmental and Human Health Concern Motivation

In all the idling control policy types, people are made aware of the negative environmental and human health costs associated with excessive idling. The educational programs give people a high motivation to not idle by providing adequate knowledge, which allows people to make informed decisions. The extent of environmental and human health concerns induced by idling control bylaws and legislation varies from case to case. The reasons for the bylaws and legislation and the extent of preliminary education on the reasons behind the law have a large impact on this criteria. For example, the City of Vancouver enacted its bylaw primarily due to complaints about noise from excessive idling, while the City of London’s anti-idling bylaw was enacted to address poor air quality. The environmental and human health motivation for people not to idle will be stressed in the City of London as a result of the reason for the bylaw and the initial educational program carried out before the enactment of the bylaw. Although protocols do involve informing municipal employees about the costs of excessive idling, the extent of the provided information is lower than is the case with the educational programs that attempt to reach most citizens.

Individuals concerned about idling may begin with human health or environmental motivations. Although human health and the health of the environment are inextricably linked, there are people who do not understand the relationship. It is probable that more humans would care about the health of other humans than about the health of a forest because of the genus connection. Therefore, the motivation to stop idling due to human health concerns may take precedent over environmental health concerns.

27 iv) Retention of Information

The economical and social motivation criteria both have an impact on the amount of information people retain. The legislation and protocol types of idling control initiatives ranked highest in regards to these motivations, which should encourage people to retain the anti-idling information. Associating either financial or social costs with idling can be regarded as an incentive for people to remember to shut their engines off.

Since that motivation is lower in educational programs that rely on voluntary behaviour change, the motivation to retain anti-idling information with the education programs is also probably lower. The extent and length of educational programs, however, does have an effect on people’s retention of information. Longer and more extensive educational programs will have a larger effect on people remembering not to idle. v) Efficiency of Method of Education and Level of Information

Education is a necessary part of all the initiatives and therefore received high scores. The sole purpose of the idling control educational programs is to supply people with an adequate level of information about idling and the associated negative costs so they can make an educated decision. The protocols and bylaws/ legislation are somewhat less efficient in educating people because that is not their sole purpose, and therefore received medium to low scores, depending on the particular initiative. The specific initiatives which received medium scores did so because education was included, in addition to the initiative’s main purpose. For example, the City of Toronto started its bylaw implementation with an educational program, issuing only warnings to idlers.

After the three month learning curve was complete, however, Toronto then started issuing fines to the idlers (NRCan., Nov. 2002).

28 vi) Target Geographical Area

This component relates more to specific cases of idling control policies and not the types. The international cases of idling control policies are much more effective in terms of scope because the anti-idling measures in United States, Germany and Austria are controlled by the state and national levels of government, not local levels as in

Canada. Specific exceptions do occur in some states in the United States, (e.g.

Washington D.C. has its own bylaw in place). Due to these variations, no generalization can be made. vii) Type of Approach

The policies that cover the largest areas (and thus larger scope) are the initiatives put forward by the U.S. States governments and the German and Austrian national governments. These policies reach more people, than the bylaws and educational programs being implemented by the Canadian municipal and regional governments. The

Canadian employee protocols are the most limited because the only people being reached by the information are the municipal and regional employees. If Canada were to advance the level of government handling the idling control legislation, from the municipal and regional level to provincial level, the scope of the policies would be dramatically increased. The duplication of the various municipalities discussing and researching the issue of idling control initiatives would also be eliminated, thus reducing costs. ix) Diversity of People Receiving Information and the Number of People Being Reached by the Information

This criterion measures the diversity and number of people being reached by the information through the specific idling control policies. The employee protocols have the

29 lowest effect in this category because the only people who are informed with the information are the government employees. The bylaws, legislation and educational programs are more effective at informing the public about idling control information because they reach a bigger group of people. The scope of the policy has an impact on this component, because the larger the scope of the policy, the larger diversity and number of people will be informed. Like in the previous section, the international idling control initiatives reach a larger scope of people with the anti-idling information, and thus reach a larger diversity and number of people. xi) Efficiency

This criterion addresses the cost-effectiveness of the program. Since the actual monetary costs of the selected idling control policies are unknown, the monetary efficiency of each policy type can only be estimated. The implementation of bylaws and legislation seem to be the most cost-efficient type of initiative because they introduce a more powerful motivation than merely educational programs. Additionally, money is made for the municipalities and states through the enforcement of bylaws, which cover some of the costs associated with the enforcement of the bylaw. xii) Linkages to Other Programs

Idling control policies are not the only way governments can reduce the amount of air pollution being created by vehicles. For example using education to promote less use of the automobile, the increased endorsement of public transportation, investments in renewable energy, encouraging use of bicycles and walking, improving the provincial drive clean program, encouraging lower emission vehicles and proper timing of traffic light signals are just some of the alternatives to idling control policies for addressing poor

30 air quality. Whether or not the selected idling control policies are connected to other environmental programs differs from case to case. However, it is important to consider linkages when evaluating cases for effectiveness and significance.

Linkages to improving the environment are not the only important connections to consider. As mentioned earlier in this report, linkages to other benefits are also valuable.

For example, connections to increased energy efficiency, the lessening of noise pollution and increased safely compliment the initiative’s main purpose – to reduce idling and thus improve air quality.

7.0 Part A Conclusions and Recommendations

From the discussion, it is obvious that no one type of idling control policy can be proclaimed as the “best.” The three different types of idling control policies have strengths and weaknesses. For example, the Greater Sudbury and Mississauga educational programs have motivational limitations but do address a larger diversity and number of people than the City of Calgary and Region of Waterloo employee protocols.

Therefore, it makes sense to consider combinations of the three idling control policies.

For example, a combination program could be a general idling control bylaw being established, supported by educational programs, with higher-level requirements set out in a protocol for government employees. Lessons can also be learned (especially in

Canada) from the benefits of having a higher level of government establish and enforce the policy instead of the lower levels of government. If Canada were to advance the level of government handling the idling control legislation, from the municipal and regional level to provincial level, the scope of the policies would be dramatically increased. The

31 duplication of the various municipalities discussing and researching the issue of idling control initiatives would also be eliminated, thus reducing costs. The Canadian provincial governments should seriously consider enacting a combination of provincial idling control initiatives to eliminate the excessive duplication and to increase the scope of anti-idling knowledge.

Along with benefiting the health of the environment and humans by decreasing the amount of poisonous exhaust being spewed into the atmosphere, specific idling control initiatives can induce other benefits. For example, connections to increased energy efficiency, the lessening of noise pollution and increase safely compliment the initiative’s main purpose. These linkages to multiple benefits are important to target when designing and enacting an idling control initiative.

32 PART B – An Analysis of the Region of Waterloo’s Idling Control Protocol 8.0 The Region of Waterloo Idling Control Protocol

To reiterate, in February 2002 the Region of Waterloo created and implemented the “Clean Air Plan” to combat the problem of degrading air quality. This plan consists of both short and long-term strategies. The fourth short-term strategy listed on the Clean

Air Plan is, “Develop and implement a municipal protocol prohibiting idling vehicles when not in use” (Region of Waterloo, 2002). This policy was implemented in late spring 2002, through the “Waterloo Region Idling Control Protocol Policy Statement.”

This document states that “Municipal employees in the Region of Waterloo shall not allow a vehicle to idle for more than ten seconds” (Region of Waterloo, 2002).

Additionally, the Region of Waterloo has implemented a public education campaign against idling; however, for the purposes of this analysis, the protocol will be the focus.

8.1 Origins of the Region of Waterloo Idling Control Protocol

The Region of Waterloo’s Citizen’s Advisory Committee on Air Quality

(CACAQ) has played a large role in pursuing Waterloo Regional Council to adopt the

Idling Control Protocol. The process to create the Idling Control Protocol began in the fall of 2001 with a number of workshops and consultation methods. An Idling Reduction workshop was held September 27, 2001, to introduce the idling issue and a proposed education campaign to municipal staff and council members. “The aim was to collectively address the issue and provide an opportunity for feedback” (Region of

Waterloo, 2002). Focus groups were used to collect comments and suggestions and the workshop proceedings were compiled and circulated in November of 2001 for feedback

(Region of Waterloo, 2002). Following this process, a draft version of the Waterloo

Region Idling Control Protocol was compiled based on the following:

33 - Literature/ campaign reviews of anti-idling programs collected from across the

province;

- Review of existing bylaws and policies from other jurisdictions;

- University of Waterloo survey “Knowledge, Attitudes and Behaviour Relating to

Vehicle Idling In Waterloo Region”

- Input from representatives from the Cities of Waterloo, Cambridge and

Kitchener, and;

- Information collected from corporate fleet challenge and commuter challenge

activities was also used.

(Region of Waterloo, April 2001).

Using all of the information collected from the above methods, a draft Idling

Control Protocol was developed and circulated to regional staff and city and township contacts for comment. The contact departments were Community Health Services,

Corporate Resources, Human Resources, Transportation Planning, Transportation and

Environmental Services, the Police and all Regional Councillors. The city and township contacts included the Cities of Waterloo, Cambridge and Kitchener, and the Townships of Wilmot, Woolwich, North Dumfries, and Wellesley (Region of Waterloo, April 2001).

It was through contact with the Region’s various departments, city and township officials that changes were made to the draft Idling Control Protocol. The final draft of the

Waterloo Region’s Idling Control Protocol includes a broad policy statement, the rationale behind the policy, several definitions (including idling, vehicle, transit vehicle, layover, stopover and mobile work vehicles) and thirteen exemptions to the protocol.

The exemptions cover situations where the idling control policy does not apply (Region

34 of Waterloo, April 2002). Appendix A is a copy of the Waterloo Region Idling Control

Policy.

8.2 Implementation of the Waterloo Region Idling Control Protocol

At the Waterloo Region’s Council meeting on April 2, 2002, the final design of the Idling Control Protocol was approved in principal and an implementation plan was requested from a department of the Waterloo Regional government - Workplace Health and Safety. During the November 5, 2002 Waterloo Region Council approved, the implementation plan, which contained the following initiatives.

• The Region’s Driver’s Handbook and the Grand River Transit Operators

Handbook will be revised to reflect more clearly the language in the Idling

Control Protocol;

• Regional departments will commit to providing opportunities for Public Health

and CACAQ to provide presentations to staff on the importance of idling

reduction;

• Posters, information and support material to the policy will be provided

throughout the workplace;

• Smog alerts will be changed to include the idling reduction reminder;

• RegionNews will contain an article published by the Region’s Public Health

Department about how idling affects the environment and why it is important to

not idle;

• The Region’s tender/ proposal documents will be reviewed with the intent of

adding language informing all people working on behalf of the Region about the

35 Idling Control Protocol, and the expectation that they reduce unnecessary idling

(Region of Waterloo, November 2002).

In addition to the above initiatives, Regional management also agreed to support the policy by instructing staff to turn off their vehicles when left idling unnecessarily

(Region of Waterloo, November 2002). The November 5, 2002 Idling Implementation

Plan, also stated that “a review will take place on the need for a process for the public to report seeing unnecessary idling of Regional Vehicles” (Region of Waterloo, November

2002). To date, it is unknown as to whether a review is either planned or has taken place.

It is also unknown how much impact the Idling Control Protocol has had on the Region of Waterloo’s air quality or how seriously the regional employees are taking the Protocol.

All three municipalities (Waterloo, Cambridge and Kitchener) and townships (Wilmot,

Woolwich, North Dumfries, and Wellesley) have formally adopted the Idling Control

Protocol for their own employees.

Alongside this employee protocol, the Waterloo Region has also started a public education program, designed to inform its employees and citizens about the negative effects of unnecessary idling. Launched in spring of 2002, the “Idling Reduction

Education Campaign,” is, “an education and awareness initiative utilizing community based social marketing techniques to bring about behavioural change and make the public more aware of the health, environment and economic repercussions of idling” (Region of

Waterloo, April 2002). This education program targets different groups, beginning with municipal staff, to help with the implementation of the Idling Control Protocol.

While the exact financial costs of designing and implementing both the protocol and education campaign are unknown, the Region stated in its April 2, 2002 report that

36 “the financial implications of idling reduction is cost saving due to decreased unnecessary fuel consumption (Region of Waterloo, 2002). There are also health and environmental benefits from the reduction of unnecessary idling that cannot be accounted for financially. The anti-idling policies that the Region of Waterloo has initiated can only result in benefits. The question, however, of whether or not the thirteen exemptions contained with the Idling Control Protocol are necessary should be answered in order to determine whether the policy is as effective as it can possibly be. Are these exemptions contained within the Idling Control Protocol necessary or can they be altered or eliminated to reduce further the amount of air pollution being created and released into the atmosphere? If some or all of the exemptions were altered or eliminated, how much difference would be made in the quality of air in the Region of Waterloo? These two questions will be addressed in the following sections.

9.0 The Exemptions

As already explained in the above section, a draft Idling Control Protocol was developed by CACAQ and circulated to regional staff and city and township contacts for comment. The regional contact departments were Community Health Services,

Corporate Resources, Human Resources, Transportation Planning, Transportation and

Environmental Services, plus the Police and all Regional Councillors. The city and township contacts included the Cities of Waterloo, Cambridge and Kitchener, and the

Townships of Wilmot, Woolwich, North Dumfries, and Wellesley (Region of Waterloo,

April 2001). It was from comments provided by these departments that the thirteen

37 exemptions on the final Waterloo Region Idling Control Protocol were developed. In the following sections, these exemptions will be stated, explained and critiqued.

Exemption 1

This exemption states that the idling control policy does not apply to “police, fire or ambulance vehicles while engaged in operational activities, including training and patient transfer activities” (Region of Waterloo, 2002). This exemption seems to have a very legitimate reason for its inclusion. For example, if firefighters are battling a fire, and it is necessary for the truck to be turned on and idling, this is a legitimate reason for the exemption. If paramedics needed their vehicle on to power life-sustaining equipment, that is also a legitimate reason for the exemption. This should not mean, however, that the police, fire and ambulance personnel should pay not consideration to idling. In situations where it is not necessary to leave the vehicle on for an actual purpose, the vehicle’s engine should be turned off. The emergency personnel should still be educated by the Region of Waterloo about the negative aspects of unnecessary idling, and the employees should use their best judgment to decide whether or not the situation calls for leaving the vehicle’s engine running.

Exemption 2

This exemption states that the idling control policy does not apply to “vehicles assisting in emergency activity” (Region of Waterloo, 2002). This exemption is very similar to exemption 1. Again, all employees should be educated about the idling control protocol, and employees should use their common sense in judging whether or not the situation is appropriate to let the vehicle idle.

38 Exemption 3

This exemption states that the idling control policy does not apply to “mobile work vehicles while they are in the course of being used for their basic function” (Region of Waterloo, 2002). In the Protocol policy statement, a mobile work vehicle is defined as, “a vehicle containing equipment that must be operated inside or in association with the vehicle (for example a garbage or snow removal vehicle), or a vehicle used for the purpose of police, fire or ambulance services” (Region of Waterloo, 2002). As suggested in response to exemptions 1 and 2, the employees should again all be educated on the

Idling Control Protocol and should use their own judgment as to whether the vehicle’s engine has to be running or not. In situations where work inside the vehicle can still be performed with the vehicle’s engine turned off, then the Idling Control Protocol should apply to that vehicle and its operator.

Exemption 4

This exemption states that the idling control policy does not apply to “vehicles where idling is required as part of the repair process or to prepare the vehicles for service” (Region of Waterloo, 2002). This exemption makes sense. If the vehicle’s engine is required to run for a repair to take place, it makes sense that this exemption was included in the Idling Control Protocol. The regional employees should once again apply common sense to determine whether or not the situation requires idling.

Exemption 5

This exemption states that the idling control policy does not apply to “older mechanical style engines (i.e. diesel) which require specific shut down procedures”

(Region of Waterloo, 2002). The main criticism in regards to this exemption is the actual

39 wording of the exemption. It is a really confusing statement since all vehicles have mechanical style engines. The actual specific type of vehicles and their ages should be stated within the exemption to minimize vagueness.

In the case of vehicles, which are difficult to restart and fall within the type and age of vehicles that were meant for this exemption, the 10-second rule may not be practical to be imposed. The operators of these special vehicles should, as suggested for previous exemptions, use their best judgment in deciding when and when not to turn the vehicle’s engine off.

Exemption 6

This exemption states that the idling control policy does not apply to “during extreme cold weather/ heat alerts where idling may be necessary for the well being of the operator and/ or transit passengers” (Region of Waterloo, 2002). This exemption does make sense, in some ways. When the weather is extremely cold, the heater should be run only at intervals to maintain the temperature of the vehicle at a tolerable level. The

Region should additionally consider installing block heaters at bus stops throughout the region for use during the winter months. Fuel consumption soars in cold weather (as much as 50 percent) due to the cold penetrating the oil, making it thick and resistant to flow, which makes the engine work harder, thus using more fuel and producing more greenhouse gas emissions (NRCan., April 2003). Block heaters help address this problem by warming the engine’s oil and coolant, which in turn warms the engine block and lubricants. Studies from Natural Resources Canada show that, “at -20°C, block heaters can improve overall fuel economy as much as 10 percent” (NRCan., 2003). The

40 use of block heaters, and running the vehicles at intervals to maintain a tolerable temperature in the extreme cold would help decrease amount of idling time.

In regards to the extreme heat during the summer, the need for air conditioners to keep the air at a tolerable low temperature should be questioned. Is it really a human necessity to maintain the cold temperature in the regional vehicles for both the employees and the transit passengers in the summer? If it is determined by the regional personnel that air conditioning is a necessity, the vehicle should be turned on at intervals to maintain the desired temperature, as was recommended in the extreme cold temperatures.

Exemption 7

This exemption states that the idling control policy does not apply to “Vehicles engaged in a parade or race or any other event authorized by the municipality” (Region of

Waterloo, 2002). There really isn’t anything that can be altered about this exemption, since idling is a main part of parades and races. What should be questioned in regards to this exemption is the fundamental question of whether or not parades and races is how to reduce idling in parades and races. Participants in parades and races should be educated on the Region’s Idling Control Protocol, and they should be asked to use their best judgment as to when it is appropriate to idle.

Additionally, the phrase “any other event” within the exemption should be specifically defined in the Protocol. Specific examples of events should be listed within the exemption to explain adequately what is included in the “any other event” category.

Exemption 8

This exemption states that the idling control policy does not apply to “Transit vehicles while passengers are embarking or disembarking en route or in terminals”

41 (Region of Waterloo, 2002). This exemption means that there is no limit put on the time, which transit vehicles can idle when waiting for passengers to board or exit the vehicle.

In order to change this exemption to maximize the efficiency of the Idling Control

Protocol, an actual time limit should be proposed to control the amount of time the vehicles are allowed to idle.

As documented in Part A of this report in section 4.0 Idling Control Policy Cases in other parts of Canada was the Vancouver Motor Vehicle Noise Abatement Bylaw.

Bylaw No. 4338, for the City of Vancouver came into effect in December 1998, stipulating that “drivers of non-Translink buses (City buses) stopped at curbside with their engines idling for more than three minutes will receive a $100 fine” (City of

Vancouver, 1998). Also mentioned in Part A, section 3.0 Idling Control Policy Cases in

Ontario, was the City of Toronto’s Idling Control Bylaw. In September of 1996, the City of Toronto passed an idling control bylaw where if a vehicle was found idling more than three minutes, it was issued a fine of $150 (NRCan., Nov. 2002). Toronto’s bylaw includes all city vehicles, including transit vehicles.

Therefore, it is reasonable to suggest that a time limit of three minutes be imposed as the allowable amount of time regional transit vehicles are permitted to idle. Regional transit employees, like the emergency personnel, should be educated on the Idling

Control Protocol, and asked to use their best judgment for specific situations.

Exemption 9

This exemption states that the idling control policy does not apply to “transit vehicles while at a layover or stopover location (with passengers on the bus)” (Region of

Waterloo, 2002). There is also a note on this exemption that, “For those periods when

42 there are no passengers/ operators on board the engine should be turned off” (Region of

Waterloo, 2002). The recommendation for this exemption is the same as exemption 8 – a time limit of three minutes should be imposed and the transit employees should be educated on idling and asked to use common sense for specific situations.

Exemption 10

This exemption states that the idling control policy does not apply to “vehicles transporting a person where a medical doctor certifies in writing that for medical reasons a person in a vehicle requires that temperature or humidity be maintained within a certain range” (Region of Waterloo, 2002).

This rule should only be exercised during extreme weather conditions where it is either really hot or cold outside, and in circumstances where the need for a steady temperature is necessary to maintain a patient’s health. Again, regional employees should be educated and common sense should be used to determine when idling is necessary.

Exemption 11

This exemption states that the idling control policy does not apply to “vehicles that are required to idle in order to keep in operation a heating or refrigeration system necessary for the welfare or preservation of the cargo contained therein” (Region of

Waterloo, 2002). Again, with this exemption, common sense should be used to determine whether or not the temperature outside is extreme enough to make an impact on the cargo. Questions that should be addressed further are “would the outside temperature have an impact on the cargo?” and “what would be an appropriate amount of

43 time a vehicle should allowed to idle to maintain a certain temperature for its cargo?

Alternative heating and cooling systems should be considered.

Exemption 12

This exemption states that “Safety is the primary consideration of the operator. In situations where shutting off the engine may compromise safety, vehicles may idle under the discretion of the operator” (Region of Waterloo, 2002). Safety should be the primary concern of all regional employees; however, examples of appropriate safety situations should be provided with the exemptions to illustrate to those following the Idling Control

Protocol what type of situation falls under this exemption.

Exemption 13

This exemption states that the idling control policy does not apply to “vehicles that are stopped in traffic or at a stoplight” (Region of Waterloo, 2002).

The problem with being stopped in traffic or at a stoplight is that it is unknown how long you will be stopped. The definition of idling, in the Idling Control Protocol states that, “to idle for more than 10 seconds uses more fuel than turning off the vehicle and restarting it again” (Region of Waterloo, 2002). But how are regional employees supposed to know how long they will be stopped? Therefore, this bylaw does make sense; however, as has been suggested for most of the other exemptions, common sense should be utilized by the regional employees to determine when it is appropriate to turn the engine of their vehicle off.

44 10.0 Part B Conclusions and Recommendations

From the above critique of the exemptions, it is clear that certain changes to the current Idling Control Protocol would make it more effective. In October 2002, the

Region of Waterloo’s Public Health department prepared a document entitled, “The

Discussion Paper for Clean Air Plan.” It reported the results of an audit completed on the volume of greenhouse gas emissions produced per year by the Region. Combined, the operation of on-road vehicles, off-road vehicles and employee’s commuting resulted in a total of approximately 485, 600 kg/yr of total emissions (Region of Waterloo, October

2002). Natural Resources Canada has estimated that approximately 3 percent of

Ontario’s fuel is wasted through idling (NRCan., 2003). If the Idling Control Protocol were 100 percent effective, it would eliminate 14, 568 kg/yr of total emissions. But, since it is unknown how much of a difference the Idling Control Protocol has made in air quality since its implementation (due to lack of monitoring), it is not possible to estimate with absolute certain how much of a difference would result from changing the exemptions in the Protocol. Therefore, it is recommended that a monitoring program be initiated by the Region of Waterloo to examine the effectiveness of its Idling Control

Protocol.

For the Idling Control Protocol to lessen the amount of unnecessary idling conducted by regional employees, several other changes should be instigated. Presently there is no enforcement of the Idling Control Protocol by the Region. It is just a policy in place, which employees are supposed to respect, based on the honour system. In the monitoring program suggested, this issue should be addressed, of whether the Idling

Control Protocol would be a more effective policy if it were enforced.

45 Another suggestion, which would maximize the effectiveness of the Idling

Control Protocol would be for all regional employees, whether or not exemptions apply to their respective occupations, should be educated on the negative aspects of unnecessary idling. The regional employees should be instructed during the education to use their common sense to determine when it is appropriate to turn their vehicle’s engines off.

46 11.0 Summary

In general, the Region of Waterloo’s Idling Control Protocol is an exemplary policy, which addresses a very important issue – air quality. Although there are many ways in which the policy can be changed to maximize its efficiency and effectiveness, it is a solid policy. Together with the education campaign being initiated to inform the public of the negative aspects of unnecessary idling, the Region of Waterloo and its

Citizens Advisory Committee on Air Quality (CACAQ) are pioneering new types of regional policies aimed to protect the environment. The Region of Waterloo should share its policy with other regions and municipalities, and spread the word on how they are addressing air pollution.

It should be remembered that anti-idling policies not only address poor air quality.

Along with benefiting the health of the environment and humans by decreasing the amount of poisonous exhaust being spewed into the atmosphere, specific idling control initiatives can induce other benefits. For example, increased energy efficiency, the lessening of noise pollution and increased safely compliment the initiative’s main purpose. These linkages to multiple benefits are important to target when designing and enacting an idling control initiative.

Part A part of this report, revealed that no one type of idling control policy can be proclaimed as the “best.” The three different types of idling control policies have strengths and weaknesses. Therefore, it makes sense to consider combinations of the three idling control policies. For example, a combination program could be a general idling control bylaw, supported by educational programs, with more demanding protocol for government employees. Lessons can also be learned (especially in Canada) from the

47 benefits of having a higher level of government establish and enforce the policy instead of the lower levels of government. The scope of application would be expanded and duplication of the various municipalities discussing and researching the issue of idling control initiatives would be eliminated, thus reducing costs.

“Each summer the air we breathe is getting worse. Smog levels have reached crisis proportions, and action is needed now in order to reduce the poisons in the air that are directly affecting our health," said Dr. Ken Sky, the President of the OMA in 2001.

The establishment of idling control policies, however, cannot be the only step towards reducing the amount of air pollution being created through the transportation sector. The

Region of Waterloo’s Idling Control Protocol is only one type of policy aimed at reducing pollution. Other policies similar to it are being established all over the world in order to combat the declining air quality. Confronting the problem of idling is only one of many battles taking place to put a stop to smog and climate change.

48 13.0 References

Austrian Government (May 2002) Automobile Law, Environmental Protection Section Accessed via CACAQ, source unknown

Brown, Lester A., Michael Renner and Christopher Flavin. (1998) Vital Signs, 1998 Worldwatch Institute, W.W. Norton, New York, United States.

Canadian Press. (Dec. 6, 2002) Calgary considers bylaw on idling cars The Record, Kitchener, Ontario, pp. A5

Citizens Advisory Committee on Air Quality (CACAQ). 2002. Improving Air Quality in Waterloo Region Waterloo Region, Waterloo, Ontario, Canada

German Road Traffic Ordinance. (date unknown) English Translation of the German Strassenverkehrsordnung – Road Traffic Ordinance – Appendix E Accessed via CACAQ, unknown source.

Heavy Duty Technologies (HDT) (2002) State by State Idling Regulations http://www.trucks.doe.gov/plain-talk/idling-regs.html

Natural Resources Canada (NRCan) (Accessed Nov. 2003) Idle-free http://oee.nrcan.gc.ca/idling/home.cfm

Natural Resources Canada (NRCan) Accessed April 2003. Block heaters reduce engine wear and fuel consumption http://oee.nrcan.gc.ca/english/media/articles_vehicles_dec01_BlockHeater.cfm?PrintVie w=N&Text=N

Ontario Medical Association (OMA). Aug. 2001. Ontario Government Must Make Firm Commitments on OMA Recommendations to Reduce SMOG http://www.oma.org/phealth/smogmain.htm

Region of Waterloo. 2002. Waterloo Region’s Clean Air Plan http://www.region.waterloo.on.ca

Region of Waterloo. April 2, 2002. Idling Control Policy for Waterloo Region http://www.region.waterloo.on.ca

Region of Waterloo, Public Health. October 23, 2002. Discussion Paper on Clean Air Plan. http://www.region.waterloo.on.ca

Tario, Joseph D., 2002. Energy Efficiency – Alternatives to Diesel Truck Idling Environmental Quality Management, Summer, p.p. 95 – 99.

49 The City of Calgary. (1999) Carbon dioxide emissions abatement action plan http://www.calgary.ca/DocGallery/BU/environmentalmanagement/co2emissions.pdf

The City of Vancouver. (1998) Motor Vehicle Noise Abatement http://www.city.vancouver.bc.ca/engsvcs/parking/enf/parksmart/busidling.htm

Webster’s Dictionary (1996) Merriam Webster’s Collegiate Dictionary Tenth Edition Merriam-Webster, Inc., Springfield, Massachusetts, U.S.A.

Appendices

A – Waterloo Region Idling Control Protocol

B – University of Waterloo Ethical Clearance Forms

50 Appendix A

Region of Waterloo Idling Control Policy April 2, 2002

51 Waterloo Region Idling Control Protocol Policy Statement Municipal employees in the Region of Waterloo shall not allow a vehicle to idle for more than 10 seconds as stated in the definition of idling. Rationale

The idling control policy has been established in accordance with the Waterloo Region Clean Air Plan short term strategy (# 4) to "develop and implement a municipal protocol that prohibits idling of vehicles when not in use." Municipalities in the Region of Waterloo adopted the Clean Air Plan in 1999 in efforts to improve local air quality. Unnecessary vehicle idling impacts air quality, respiratory health and increases operational costs.

Definitions

Idling The operation of the engine of a vehicle while the vehicle is not in motion and not being used to operate auxiliary equipment that is essential to the basic operation of the vehicle. To idle for more than 10 seconds uses more fuel than turning off the vehicle and restarting it again. If a vehicle is going to be stopped for 10 seconds or more, the engine should be turned off.

Vehicle A motor vehicle, trailer, traction engine, farm tractor or road-building machine as defined in the Highway Traffic Act and any vehicle drawn, propelled or driven by any kind of non-muscular power, but does not include cars of electric or diesel electric railways running only upon rails. Vehicle also includes a motorized snow vehicle (or other conveyance which operates by way of a combustion engine) and personal vehicles used for work related activities.

Transit Vehicle Public transit vehicles, tour buses and motor coaches.

Layover A stopping point along a transit route for a maximum of 10 minutes used by transit vehicles to allow transit vehicles to adjust to service schedules.

Stopover A scheduled delay of a maximum of 10 minutes at a public transit vehicle terminal to allow public transit vehicles to adjust service schedules.

Mobile work vehicles i) a vehicle containing equipment that must be operated inside or in association with the vehicle (i.e. garbage and snow removal vehicles); or ii) a vehicle used for the purpose of police, fire or ambulance service.

Exemptions

The idling control policy does not apply to the following: a) Police, fire or ambulance vehicles while engaged in operational activities, including training and patient transfer activities; b) Vehicles assisting in an emergency activity; c) Mobile work vehicles while they are in the course of being used for their basic function; d) Vehicles where idling is required as part of the repair process or to prepare the vehicle for service; e) Mechanical style engines (i.e. diesel) which require specific shut down procedures;

52 f) During extreme cold weather/heat alerts where idling may be necessary for the well being of the operator and/or transit passengers; g) Vehicles engaged in a parade or race or any other event authorized by the municipality; h) Transit vehicles while passengers are embarking or disembarking en route or in terminals; i) Transit vehicles while at a layover or stopover location (with passengers on the bus). (Note - for those periods when there are no passengers/operator on board the engine should be turned off). j) Vehicles transporting a person where a medical doctor certifies in writing that for medical reasons a person in a vehicle requires that temperature or humidity be maintained within a certain range; k) Vehicles that are required to idle in order to keep in operation a heating or refrigeration system necessary for the welfare or preservation of the cargo contained therein; l) Safety is the primary consideration of the operator. In situations where shutting off the engine may compromise safety, vehicles may idle under the discretion of the operator (i.e. stopped in traffic).

Endorsement

Idling is a community issue and requires broad participation. As leaders in the community, it is important that front line staff lead by example to the public to set a higher standard of behaviour.

The idling protocol will be promoted to, and reinforced by the community. Feedback will be provided to the Citizens' Advisory Committee on Air Quality, Waterloo Region, (CACAQ)(WR). This is in support of the Idling Reduction Campaign goal - to reduce emissions caused by unnecessary idling of vehicles and improve air quality and respiratory health of residents.