POLICY REPORT
ENVIRONMENT
E. Seto /7152
RTS No. 3273
Council: March 25, 2003
TO: Vancouver City Council
FROM: General Manager of Engineering Services in Consultation with the General Manager of Corporate Services
SUBJECT: The Kyoto Protocol - Implications to the City of Vancouver and Participation in "Partners for Climate Protection"
CONSIDERATION
A. THAT, in order to provide a leadership role in reducing Greenhouse Gas emissions, Council adopt a Greenhouse Gas Emissions Reduction Target for the City (organization) of 20% below 1990 levels by approximately 2010 as an interim measure. This target will need to be reviewed in coordination with the finalized emissions inventory and the development of a Greenhouse Gas Emissions Reduction Action Plan to ensure that the target is realistic for the City of Vancouver.
B. THAT, subject to any emissions reduction target adopted by Council, staff develop a Greenhouse Gas Emissions Reduction Action Plan for the City (organization) that is consistent with the City's Definition and Principles of Sustainability.
C. THAT staff report back with a Community Greenhouse Gas Emissions Inventory and suggestions on what role the City can provide to help reduce community greenhouse gas emissions.
D. THAT staff seek assistance from regional and senior governments and the Federation of Canadian Municipalities to assist in the development of an Action Plan, to meet any emissions reduction target(s) adopted by Council, and to report back on community emissions.
COUNCIL POLICY
On October 16, 1990, Council approved in principle Clouds of Change Recommendation #1 to reduce carbon dioxide emissions by 20% as part of the actions to address global climate change issues, subject to future reports on costs and trade-offs involved in achieving the objectives and targets.
In 1995, Vancouver joined the Federation of Canadian Municipalities' "20% Club", which became the Partners for Climate Protection Program in 1998.
On April 23, 2002, Council adopted a Definition and Principles of Sustainability to guide, prioritize, and improve the sustainability of City actions and operations. (Appendix A contains the Definition and Principles of Sustainability)
On May 2, 2002, Council unanimously carried the motion, proposed by the Federation of Canadian Municipalities, to support the Canadian Government's ratification of the Kyoto Protocol.
SUMMARY
In 1997, the Kyoto Protocol was established to address global climate change issues. The Government of Canada ratified the Kyoto Protocol in late 2002, committing Canada to lower its GHG emissions to six percent below 1990 levels by 2010.
The Federal Government currently does not have specific greenhouse gas (GHG) reduction requirements for municipalities, thus any local GHG emissions reductions or reduction targets and credit trading are voluntary and will contribute to the national target.
The City has been involved in numerous programs and initiatives, implementing various measures to reduce GHG emissions and ultimately, to contribute to the Federal Government's international commitment to reduce GHG emissions. As a participating member of the Partners for Climate Protection (PCP) program, the City has made some progress in the Five Milestone Process. The following briefly lists the PCP Milestones and the City's progress to date:
1) Take emissions inventory and forecast future emissions
Status: Completed for the City (organization, i.e., municipal operations) and to be finalized in a report in early spring, 2003. Also, to report back with a community-wide inventory and the City's role in reducing these emissions.
2) Set a reduction target
Status: To consider a 20% reduction from 1990 levels by 2010 for the City (organization) as an interim measure, subject to a review of the finalized emissions inventory and development of a Greenhouse Gas Emissions Reduction Action Plan to ensure that the target is realistic for the City of Vancouver.
3) Develop a local action plan
Status: To consider, within a sustainability framework, after Milestone 2 has been completed.
4) Implement the plan
Status: To act on after Milestone 3 has been completed and adopted by Council; however, numerous actions have already been completed to reduce emissions to date.
5) Measure progress: monitor, verify & report reductions
Status: Yet to complete.
To proceed with the PCP process and to provide a leadership role in GHG emissions reductions, an emissions reduction target and three related actions are provided for Council's consideration.
PURPOSE
To provide Council an overview of possible implications to the City as a result of the Canadian Government ratification of the Kyoto Protocol; an update of the City's progress on reducing greenhouse gas emissions; and the current status in the Partners for Climate Protection (PCP) program, including proposed actions for Council's consideration.
BACKGROUND
Greenhouse Gases
A greenhouse gas (GHG) is a gas in the earth's atmosphere that contributes to the "greenhouse effect", the phenomenon of absorbing the sun's energy but partially blocking outgoing radiated heat. The natural greenhouse effect is vital to life as we know it. The intensifying of the natural greenhouse effect has been attributed directly or indirectly to human activity that generates levels of GHGs beyond natural levels. This enhanced greenhouse effect is believed to cause changes in global climate and, consequently, ecosystems. There are a number of naturally occurring and man-made GHGs. The six gases (or families of gases) targeted for reduction in the Kyoto Protocol are: carbon dioxide, methane, nitrous oxide, hydrofluorocarbons, perfluorocarbons and sulphur hexafluoride. These GHGs have varying levels of global warming potential. For example, methane has approximately 21 times the global warming potential of carbon dioxide. For ease of comparison and to create a standard of measurement, the GHGs are equated and expressed in carbon dioxide equivalents (eCO2). The target reduction figures under the Kyoto Protocol and all discussion in this document refer to GHGs in eCO2. These GHG emissions are distinct from the common air pollutants or ozone depleting substances that are addressed in other initiatives or protocols and are not part of this report. However, most GHG reduction initiatives contribute equally to reducing the common air contaminants (e.g., carbon monoxide, nitrogen oxides, volatile organics, ozone etc.)
The United Nations Kyoto Protocol
In 1992, a global approach to address the challenge of climate change was launched with more than 155 countries, including Canada, signing the United Nations Framework Convention on Climate Change (UNFCCC). Since 1992, a number of United Nations conferences have taken place. In 1997, the Kyoto Protocol was established to create a future of lower GHG emissions, better energy efficiency, sustainable growth, and cleaner air, leading to an overall cleaner, healthier environment. The Protocol created various targets, for industrialized Annex 1 Countries that ratify the agreement, to reduce overall GHG emissions by a global average of 5.2 percent below 1990 levels in the commitment period of 2008 to 2012.
The Protocol will come into effect 90 days after at least 55 Parties to the Convention, which account for at least 55% of the total carbon dioxide emissions for 1990 from the Annex I Countries, have ratified, accepted, approved or acceded to the Protocol. Currently, 105 countries have ratified, accepted, approved, or acceded to the Protocol with approximately 44% of 1990 emissions. The 55% requirement will be satisfied for the Protocol's entry into force when Russia ratifies the Protocol. The United States has indicated that it will not ratify the Protocol.
Appendix B contains more details on the Convention, Protocol, related URLs, list of Annex 1 Countries, and ratification status.
The National Strategy - Climate Change Plan for Canada
On December 17, 2002, the Government of Canada ratified the Kyoto Protocol. This commits Canada to lower its GHG emissions to six percent below 1990 levels (i.e., to 565 million tonnes or Megatonnes (MT) of eCO2) averaged over the first commitment period of 2008 to 2012.
On November 21, 2002, the Government of Canada released the "Climate Change Plan for Canada" (Appendix C contains the Executive Summary and the URL for the full document). The Climate Change Plan for Canada outlines and forecasts how Canada might meet the GHG reduction target it set for itself under the Kyoto Protocol to the UNFCCC. Based on business-as-usual projections of future GHG emissions, the Federal Government's target is a reduction of approximately 240 MT within the commitment period. Appendix D includes some Federation of Canadian Municipalities' comments regarding the Federal Government's Plan.
City of Vancouver Initiatives To Date
In 1990, the City of Vancouver Task Force on Atmospheric Change completed and submitted to Council the "The Clouds of Change" report with 35 recommendations on a wide range of atmospheric change issues, including GHG emissions reductions.
The City of Vancouver currently belongs to the following organizations / programs that encourage and work towards GHG emissions reductions:
1) Federation of Canadian Municipalities (FCM)
2) International Council for Local Environmental Initiatives (ICLEI)
3) FCM & ICLEI's Partners for Climate Protection (PCP)
4) Working Group on Climate Change (WGCC)
(Appendix E contains more information and some URLs)
Partners For Climate Protection (PCP)
PCP is a partnership between FCM and ICLEI, the international environmental agency for local governments. FCM is the lead partner on policy development, government relations and funding in Canada. FCM provides a program facilitator in the Vancouver area to assist staff with the PCP program.
The City joined the PCP program at its inception in late 1998. PCP is a national program that brings Canadian municipal governments together to reduce the local production of GHG emissions and improve the quality of life. As a participating member of the PCP, the City has been implementing various measures to reduce GHG emissions and ultimately, to contribute to the Government of Canada's international commitment to reduce GHG emissions globally.
DISCUSSION
Possible Impacts of Federal Ratification on the City of Vancouver
As part of the national strategy, the Federal Government currently does not have specific GHG reduction requirements for municipalities. Any GHG emissions reductions or reduction targets and credit trading are voluntary, and will contribute to the Government of Canada's GHG Emissions Reduction Target of 6% below 1990 levels by the commitment period of 2008 to 2012.
As a result of the Federal Government's commitment to the Kyoto Protocol, there may be increased Federal interest in providing assistance to reduce GHG emissions and increase climate-friendly infrastructure. On February 18, 2003, the Federal Government announced the new Federal Budget. Budget measures include $3 billion for the environment, of which $2 billion will be directed to help implement the Kyoto Protocol. The details have not been established; however, accessing these possible resources should be reflected in any local Greenhouse Gas Emissions Reduction Action Plan.
The PCP Program - Progress to Date & Next Steps
As a framework for reducing GHG emissions, PCP participants voluntarily commit to completing five PCP Milestones:
1. Take a baseline emissions inventory and forecast future emissions
2. Set a reduction target
3. Develop a local action plan
4. Implement the plan
5. Measure progress.
With the assistance of the PCP program, the City has made some progress towards completing milestones, including the emissions inventory and some GHG emissions reductions.
This report outlines progress and identifies future actions as part of the PCP program for "corporate" GHG emissions. If a milestone has not been completed, also included are proposed actions required to complete the milestone.
The results of a Community Greenhouse Gas Emissions Inventory are not presented in this report, as City staff are not yet satisfied with the adequacy or accuracy of the data. City staff will work with the GVRD and the GHG consultant to resolve our concerns and report back on community emissions, targets and an action plan discussion later this year.
Milestone 1: Part A: Baseline Emission Analysis - Profile energy use for the base year of 1995 for municipal operations.
Status: Completed
Using software provided by the FCM, a consultant hired by the City prepared a draft "Corporate" Greenhouse Gas Emissions Inventory for the City (organization). The inventory has been completed for 1990, 1995 and 1999 and is summarized in Table 1. Staff expect to receive a final report in early spring, 2003.
Table 1: City of Vancouver's "Corporate" Greenhouse Gas Emissions Inventory
|
|
|
|
|
|
Equivalent Carbon Dioxide (eCO2) in Thousands of Tonnes (Approximate)
|
Category
|
1990*
|
1995
|
1999
|
2005B
|
2010B
|
a) Buildings
|
16.3
|
16.3
|
12.4
|
14.3
|
16.0
|
b) Fleet
|
15.9
|
15.8
|
13.9
|
15.0
|
15.7
|
c) Street/Traffic Lighting
|
1.1
|
2.3
|
1.0
|
1.5
|
2.1
|
d) Waste**
|
2.7
|
2.7
|
2.8
|
3.0
|
3.1
|
Total Equivalent Output
|
36.0
|
37.1
|
30.1
|
33.8
|
36.9
|
Change from 1990
|
-
|
+3%
|
-16%
|
-6%
|
+3%
|
*1990 backcast estimates based on 1995 figures or available information
** Waste figures based on estimated waste production & waste composition of the City (organization)
B Forecast estimates for Milestone 1 B assume energy consumption growth equal to estimated population growth
Overall, the total eCO2 emissions for the City (organization) decreased by approximately 16% from 1990 to 1999. However, it must be noted that for categories dependent on electrical energy consumption (such as street and traffic lighting, and to a lesser extent, buildings), the eCO2 emissions per unit of electrical energy or "carbon-intensity" is an important factor that affects the results of the inventory. For example, significant fluctuations in the eCO2 emissions in street and traffic lighting are caused primarily by fluctuations in the "carbon-intensity" of electricity. Between 1990 and 1995, there was actually a considerable reduction in energy consumption, but the eCO2 emissions more than doubled because the "carbon-intensity" increased. Equivalent CO2 emissions per unit of electricity fluctuate as BC Hydro's reliance on electricity generated from fossil fuels varies. Therefore, the City's Greenhouse Gas Emissions Inventory is highly reliant on the "carbon-intensity" of the power supplied from BC Hydro.
Milestone 1: Part B: Forecast of Energy Use Growth or Future Year Energy Use Analysis - Forecast energy use for 10 or 20 years in the future.
Status: Completed
The FCM computer program mentioned in Part A compiles the emissions inventory based on estimates and available information and also makes predictions of future emissions based on estimated population growth rate trends for Vancouver. The projected City (organization) figures for 2005 and 2010 are summarized in Table 1.
Figures in Table 1 show that the 1999 levels are not far from meeting a proposed 20% target. However, given that many of the simplest reductions have already been made (more information in Milestone 4), the estimated trend in population growth, and the possibility that the carbon-intensity of electricity supplied from BC Hydro could increase, emissions will likely steadily increase. By 2010, the proposed commitment period, emissions may exceed the 1990 levels if no new reduction measures are implemented. This illustrates that significant additional reductions need to be made in order have 2010 emissions below 1990 levels.
Milestone 2: Establish reduction targets.
Status: Yet to be Completed
The City currently has no formal commitment for a specific GHG reduction target. Local targets are for the City's own use and do not impact our ability to trade emissions credits. Implications and costs to the City to achieve targeted levels are dependent on the target chosen. Staff do not know the costs of achieving any particular GHG reduction target. These costs would be estimated as part of an action plan to be developed for Milestone 3.
Proposed Actions to be Considered and Completed
- Council may wish to consider setting a Greenhouse Gas Emissions Reduction Target for the City (organization). PCP suggests a reduction of 20% below 1990 levels by approximately 2010 as an interim measure. This target will need to be reviewed in coordination with the finalized emissions inventory and the development of a Greenhouse Gas Emissions Reduction Action Plan to ensure that the target is realistic for the City of Vancouver.
Milestone 3: Develop and adopt a local action plan that outlines action items to reduce energy use and therefore emissions from municipal operations.
Status: Yet to be Completed
No action plan has been developed; however, some actions to reduce GHGs have been successfully implemented (please see information under Milestone 4).
Proposed Actions to be Considered and Completed
- After completion of Milestone 2 (setting a Greenhouse Gas Emissions Reduction Target), staff can develop a Greenhouse Gas Emissions Reduction Action Plan for the City that is consistent with the City's Definition and Principles of Sustainability (Appendix A). If required, Council will be able to amend any adopted target(s) once the Action Plan has been completed.
- City staff will seek assistance from regional and senior governments, and the FCM on community education programs and other financial or technical assistance available to municipalities to assist in the development of an Action Plan, to meet any emissions reduction target(s) adopted by Council, and to report back on community emissions.
Milestone 4: Begin a program to implement adopted action items that will reduce greenhouse gas emissions.
Status: Yet to be Completed, But Some Actions Taken
Actions Taken Prior to an Action Plan being Established
The basic strategy to reduce GHG emissions from the organization is to reduce energy use through more efficient operations or a change in the way things are done, so that overall emissions are reduced. These initiatives work towards achieving PCP's Milestone 4, and many have been implemented successfully to reduce emissions earlier and prior to developing a PCP action plan as mentioned in Milestone 3. A brief description of each source category, with future plans if available, follows.
a) City Buildings
Since 2002, the Corporate Services Group has been working extensively with BC Hydro on the re-initiated and cost-sharing Power Smart Program to reduce electrical energy use in Civic Facilities. Initiatives include energy efficient light-emitting diode (LED) exit signs, energy audits, lighting upgrades, Energy Performance Contracts, and the green building rating system, which will be a major component for increased energy efficiency.
b) City Fleet
Vehicle downsizing (where appropriate) is one of the several areas where the City has significantly reduced emissions. As a result of cleaner emissions standards and improved equipment technology over the last 15 years, current production vehicles are significantly cleaner and more fuel-efficient than units purchased in the 1990s. To explore future additional emissions and efficiency improvements, the City is currently conducting trials with emerging technologies such as alternative fuels, electric cars, and hybrid-electric vehicles, and is investigating near-term technologies such as fuel cells.
c) Street and Traffic Lighting
In 2002, the City began a Power Smart Program project to convert the City's 670 traffic signals to LEDs, which consume 80 to 90% less energy and can last seven to ten times longer than conventional light bulbs, potentially saving $250,000 annually, once implemented. Once the technology has been advanced, perhaps in the next five years, the City's goal is to switch to LEDs for street lighting, resulting in substantial additional energy and cost savings and greater reliability.
d) Corporate Waste Disposal
Greenhouse Gas emissions are reduced through waste reduction, reuse, recycling, and more efficient use of energy in recycling and other waste disposal-related processes. Results include decreased energy consumption and landfilling of materials.
e) Vancouver Landfill
Note: PCP and international protocols consider municipal landfill emissions as "community" (not "corporate") emissions; however, the City, who has significant control over the gas collection and flaring system, has been successful in substantially reducing emissions (e.g., 200,000 tonnes of eCO2 emissions were reduced in 2002).
Table 2: Vancouver Landfill Greenhouse Gas Emissions Inventory (Community)
|
|
|
Equivalent Carbon Dioxide (eCO2) in Tonnes (Approximate)
|
1990
|
2002
|
2003 (est.)
|
276,000
|
170,000*
|
70,000
|
* In absence of any reduction measures, the 2002 figure would have been approximately 370,000 Tonnes
In 1991, the City installed a landfill gas collection and flaring system at the Vancouver Landfill to reduce GHG emissions and control odour. In 1999, Council approved expansion to cover areas of the Landfill that received waste from 1990 to 1998 and pursue landfill gas beneficial use. By 2001, the expanded landfill gas control system was fully operational, and Council approved an additional expansion for 2003 to cover the area filled since 1998, which will further reduce GHG emissions. Within 2004, the City will be selling landfill gas for use in a cogeneration system to produce electricity to heat greenhouses.
Proposed Actions to Complete the Milestone
- Implement the adopted Action Plan that was developed in Milestone 3.
Milestone 5: Continue to monitor, verify and report GHG reduction achievements and amend the action plan accordingly to reflect new strategies.
Status: Yet to be Completed
Proposed Actions to Complete the Milestone
- As part of a greater sustainability process, under the direction of the Sustainability Support Group, and as defined in the City's Action Plan, regularly report on emissions and progress towards the Action Plan.
- As required, amend the City's Greenhouse Gas Emissions Reduction Action Plan accordingly to reflect new strategies or developments.
CONCLUSION
The Federal Government currently does not have specific Greenhouse Gas (GHG) reduction requirements for municipalities, thus any GHG emissions reductions or reduction targets and credit trading are voluntary and will contribute to the national target. Local targets set under the Partners for Climate Protection (PCP) program are for the City of Vancouver's own use and do not impact our ability to trade emissions credits.
The City has been involved in numerous programs and initiatives, implementing various measures to reduce GHG emissions and ultimately, to contribute to the Federal Government's international commitment to reduce GHG emissions. As a participating member of the PCP program since its inception in late 1998, the City has made some progress in the Five Milestone Process. To proceed with the PCP process and to provide a leadership role in GHG emissions reductions, it is recommended for Council's consideration:
A) that Council adopt a Greenhouse Gas Emissions Reduction Target for the City (organization) of 20% below 1990 levels by about 2010 as an interim measure. This target will need to be reviewed in coordination with the finalized emissions inventory and the development of a Greenhouse Gas Emissions Reduction Action Plan to ensure that the target is realistic for the City of Vancouver;
B) that, subject to any emissions reduction target adopted by Council, staff develop a Greenhouse Gas Emissions Reduction Action Plan for the City that is consistent with the City's Definition and Principles of Sustainability;
C) that staff report back with a Community Greenhouse Gas Emissions Inventory and suggestions on what role the City can provide to help reduce community GHG emissions; and
D) that staff seek assistance from regional and senior governments, and the Federation of Canadian Municipalities to assist in the development of an Action Plan, to meet any emissions reduction target(s) adopted by Council, and to report back on community emissions.
LINK TO APPENDICES A TO E
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