Location: Ministry Home > Ontario's Anti-Smog Action Plan > HTML Version

This is a HTML version of the original PDF document. The HTML version is being provided for reading purposes only and is not the official version of the document.

3.0 Toward reduction of particulate matter

Only in the past few years have scientists demonstrated that there is a significant relationship between airborne fine particulate matter and cardiopulmonary health. A significant commitment was made in the 1998 Smog Plan and through the Operating Committee's Particulate Matter and Ozone Options Assessment Working Group (OAWG) to develop a strategy for the reduction of inhalable and respirable particulates. To enable this, the work group's membership and mandate were expanded to include:

• identification and assessment of strategic options to reduce particulate matter emissions in Ontario;
• recommendations on the form, level of attainment and final date of provincial ambient air quality criteria for particles of 2.5 and 10 microns (PM_2.5 and PM₁₀) and identification of reduction measures to achieve these criteria; and,
• identification and evaluation of criteria for ground-level ozone air quality targets.

The 1998 Smog Plan said…

The work group is developing a strategy that considers emission reduction targets, emission inventories, standards development, air monitoring, computer modeling, cost-benefit analysis, control technologies, implementation methods and communications. This strategy will complement efforts at a national level and will be completed by 1998 for review by the Steering Committee.

In 1998, seven strategic options and a number of multilateral quick start actions were identified.

Two draft documents were prepared by the ministry for use by stakeholders in the development of a PM strategy for Ontario:

• A Compendium of Current Knowledge on Fine Particulate Matter in Ontario; and,
• Strategic Options to Address the Fine Particulate Issue in Ontario.

Canada-Wide Standards for ozone and particulate matter

The development of Canada Wide Standards for PM/ozone is being championed by Environment Canada. A Development Committee has been struck with representatives from the federal and provincial/territorial governments. Since recommendations for PM/ozone CWSs to the Canadian Council of Ministers of the Environment were expected in the fall of 1999, a great deal of effort was made to advance the issue. A national workshop held in October 1998 and a second workshop held in May 1999 provided input to the recommendations of the Development Committee for the ministers in the summer. As background information, the Federal-Provincial Working Group on Air Quality Objectives and Guidelines has prepared Science Assessment Documents on PM (published in late 1997) and on ozone (published in March 1999).

In December 1998, the work group presented its Strategic Options and Background report to the Steering Committee (since renamed the Operating Committee). The work group adopted the following approach:

• to work collaboratively to address the issue of inhalable and respirable particles (IP/RP);
• to consider developments associated with the Canada-Wide Standards and U.S. research/policy processes;
• to develop scientific and technical knowledge on IP/RP and policy options for Ontario, and address gaps and uncertainties (e.g. emissions inventories, cause of health impacts, atmospheric chemistry, cost-benefit analysis); and,
• to integrate with and/or consider other environmental issues (e.g., acid rain, climate change, indoor air quality).

3.1 Compendium of Current Knowledge on Fine Particulate Matter

Our knowledge has increased significantly, but there are still gaps. The compendium document—A Compendium of Current Knowledge on Fine Particulate Matter in Ontario—provides a basis for understanding the origins and precursors of IP/RP, and demonstrates significant progress through the inclusion of emission estimates from all sources. In the area of health impacts, the document recognizes that the interpretation of health studies is still subject to debate (particularly concerning the role played by co-pollutants found in the atmosphere), but confirms that the evidence linking IP/RP to health effects is "strong enough to warrant action".

While significant progress has been made, a number of key gaps need to be filled. Ontario's strategy will need to consider the benefit/cost relationship of reducing particulate. In addition, more ambient air monitoring, source characterization, and assessment will be required. Further IP/RP related research is needed in several areas, including: determining the relative impacts of PM₁₀ and PM_2.5; emission inventories; development of modelling capability; and the use of economic instruments.

The Particulate Matter Ozone Options Assessment Working Group has examined the regulatory, policy and strategic management framework available in Ontario. While the work group's Strategic Options identify the potential for new standards, mechanisms are already available to ensure that emissions of fine particles and smog precursors are reduced through the existing policy and regulatory frameworks.

This framework comprises a comprehensive index of tools including:

• 23 "real-time" (continuous read-out of data) monitors for fine particulates (12 for PM₁₀ and 11 for PM_2.5) and 23 24-hour monitors for PM₁₀ (the latter also providing data on heavy metal and sulphate content), installed by the Ontario Ministry of the Environment;

"The Ontario Mining Association is pleased to participate with government and other stakeholders in the development of equitable and cost effective solutions to the smog problem in Ontario."
Barbara Mossop
Manager of Environmental and Engineering Services
Ontario Mining Association

• Air Quality Regulations: Gasoline Volatility Regulation (O. Reg. 271/91); Air Contaminants from Ferrous Foundries (O. Reg. 339/90); Sulphur Content of Fuels (O. Reg. 361); Recovery of Gasoline Vapour in Bulk Transfer (O. Reg. 345/94); Boilers (O. Reg. 338/90); General Air Pollution Regulation (O. Reg. 346/90); Ambient Air Quality Criterion (O. Reg. 337/90). Lambton Industry Meteorological Alert (O. Reg. 350); Countdown Acid Rain controls at Ontario Power Generation (O. Reg. 355/90); Inco (O. Reg. 660/85); and Falconbridge (O. Reg. 661/85);
• additional guidelines and codes of practice developed and approved as ministry policy for use in Certificate of Approvals for combustion turbines, wood-fired combustors, municipal waste incinerators and crematoriums;
• development of standards, interim standards and "approvals screening levels" for VOCs on an ongoing basis; and,
• focused compliance assessments conducted by ministry staff on stack emissions from selected facilities each year as part of the ministry's inspection and auditing program. These assessments allow the ministry to determine a company's compliance with existing air pollution legislation. The information determined from these assessments may result in the implementation of abatement measures by the company. The actions completed result in reduced emissions of air pollutants, including smog precursor compounds.

Clear linkages have been established between the benefits of reducing PM and secondary pollutants. Controlling IP/RP will help with other environmental issues such as acid rain, ground level ozone and climate change.

Links of PM_2.5 and PM₁₀ to Precursor Emissions and Other Air Quality Issues

Note: Emissions of NOx and VOCs are an integral part of the chemistry of ground level ozone, a major component of smog. PM is connected also to the issue of hazardous air pollutants through organic carbon particles and metals, many of which are themselves toxic, and by the adsorption and absorption of other contaminants (such as semi-volatile organic compounds such as polyaromatic hydrocarbons and chlorinated organics) onto existing particles.

The work group has identified a clear need to obtain new source apportionment information for use in emission inventories for Ontario. Understanding the sources of IP/RP is one apparent challenge, but added to this is the need to understand how much originates in Ontario and how much is transported long-distance from the U.S. To develop standards, the work group has concluded that this inventory information is clearly needed. The U.S. EPA is focusing on research in this area, and from this it is expected that a determination of the extent of fugitive sources of PM₁₀ from agriculture, construction activities and structural and natural fires can be made.

The work group suggests that pollution prevention and "keeping clean areas clean" are supplemental provisions to all the above options.

The work group also recommends a parallel track approach—a policy decision to undertake emission reduction actions concurrent with efforts to bridge the knowledge gaps. In this context:

• In Ontario, measures should be introduced to reduce primary and secondary emissions, and community-specific reduction measures should be considered; and,
• The federal government should aggressively pursue PM and precursor reductions from the U.S.

Community-Specific Action to Reduce PM

The Particulate Matter and Ozone Options Assessment Working Group suggests a number of actions which could be taken on the community level to reduce the effects of PM and improve air quality:

• Compliance with current Point Of Impingement standards for total suspended particles, nitrogen oxides, sulphur dioxide, ammonia and specific VOCs
• Voluntary reductions beyond regulatory requirements
• Energy conservation efforts
• Use of cleaner technologies and processes as companies are upgraded
• Pollution prevention
• Transportation demand management
• Emissions testing programs
• Minimization of dust from paved and unpaved roads
• Greening of company fleets through cleaner-fuel vehicles and buses
• Dust control programs for industrial, construction and institutional sectors

3.2 Strategy meetings on the development of fine particulate matter standards

On May 13, 1999, the Smog Plan Steering Committee held a one day meeting including break-out sessions dedicated to seeking input to the development of Ontario's strategy on the reduction of particulate matter.

The objectives of the meetings on PM were to: (1) introduce Ontario stakeholders to the science, strategic options and reduction measures/actions for addressing the PM problem;

(2) introduce Ontario stakeholders to the developments and linkages between the process for setting Canada-Wide Standards and the Ontario PM process; (3) establish areas of concerns and consensus for Ontario stakeholders; and (4) develop, if possible, an Ontario multi-stakeholder position to take to the national Canada-Wide Standards process.

As an outcome of the meetings, the committee prepared Smog Plan Steering Committee Perspectives on the Development of Fine Particulate Matter Standards from the May 13, 1999, Meetings at Queen's Park, Toronto, Ontario. Key messages and perspectives noted at this meeting include:

• There is recognition that air quality is an issue, and industry is engaged in emissions reduction actions.
• The committee (via the Particulate Matter and Ozone Options Assessment Working Group) is committed to the development of PM standards and it is prepared to work collaboratively toward setting PM standards and identifying reduction measures and actions.
• The committee supports independent scientific review to help develop PM standards in Ontario, and the committee wants the results of the review by the CRESTech-led expert panel to be considered.
• The committee wants a broad strategic plan which integrates land-use planning, transportation planning and reduction measures from industry, and encompasses other issues such as public education.
• The committee believes that in addition to provincial efforts, the federal government needs to recognize and address upwind transboundary pollution.

In addition, the committee supports the sharing of best management practices for the reduction of particulate matter.

3.3 Building Ontario's knowledge, science and technology

The PM and Ozone Options Assessment Working Group initiated a Scoping Study on Information Gaps and Uncertainties in the IP/RP Compendium Document and their Impact on Strategic Options. CRESTech (Centre for Research in Earth and Space Technology) and NERAM (Network for Environmental Risk Assessment and Management) were invited to form a technical secretariat to convene and assist a five-member interdisciplinary panel of Ontario academic researchers to provide an independent review of the Compendium Document. The panel commended the Ministry of the Environment's initiative in addressing the needs of the Operating Committee and the Particulate Matter and Ozone Options Assessment Working Group by preparing a document that reviews a broad range of topics (atmospheric science, control technology, exposure assessment, health effects assessment, cost-benefit analysis) essential for the development of sound policy on the IP/RP issue, and also commended its commitment to an open consultation process in allowing the document to be the subject of an independent review.

Expert Panel final report—Analysis of Strategic Options

"The Expert Panel agreed that although there are important information gaps and uncertainties impacting on strategic options, the science was of sufficient maturity to move forward and initiate actions to address the issue."

The expert panel agreed that information gaps and uncertainties cannot be used as a basis for postponing action. Seven strategic options for controlling ambient particulate matter in Ontario are presented in the Strategic Options document (the panel noted that other combinations of the strategic options presented are also possible). Three of the seven proposed strategic options were assessed by the panel to be non-viable: Air quality standards based on setting community-specific ambient air quality criteria or implementation dates for Air Quality Management Areas requires more detailed information on community-specific PM sources and receptors and community-specific costs and benefits. Harmonization with the U.S. is considered non-viable as the current U.S. EPA standard for PM₁₀ (150 micrograms per cubic metre of air) is considerably higher than the current Ontario interim standard (50 micrograms) and would not be considered protective of human health.

Expert panel recommendations on research directions

The panel recommended the following priority areas for further research to improve Ontario's capability to provide strong and balanced environmental policy on the issue of PM:

• Assessment of the Ontario airshed: Require a network of monitors to measure PM₁₀ and PM_2.5 across Ontario, to measure ambient concentrations, natural background levels and transboundary influences on regional air quality. Conduct studies of size, particle morphology and chemical composition. Develop source apportionment methods to target and optimize emission reduction strategies. Conduct further research into the production and loss of secondary particulates.
• Assessment of human health impacts: Conduct controlled human exposure studies among healthy and susceptible segments of the population. Conduct a longitudinal epidemiological study within the province of Ontario. Conduct further research into the toxicity of IP/RP and the influence of co-pollutants as determinants of human health.
• Socio-economic analysis of policy options: Further develop a model for estimating the costs associated with air quality improvement measures. The model should use an Ontario-specific economic baseline measure and allow for the estimation of costs and benefits associated with a broad range of air-pollution-related health outcomes.
• Evaluation of existing programs and policies: Develop a broad risk-benefit model that can be employed to assess air quality regulatory policies. Develop a program for independent review of regulatory and non-regulatory initiatives within Ontario.

The final report, Information Gaps and Uncertainties in the IP/RP Compendium Document and their Impact on Strategic Options, August 1999, is available at the Centre for Research in Earth and Space Technology, 4850 Keele Street, Toronto ON M3J 3K1, (416) 665-3311. The report is also available electronically at the CRESTech Web site (www.crestech.ca).

3.4 Ontario Residential Wood Combustion Working Group

A multi-stakeholder work group was formed to identify options to reduce emissions from wood burning appliances and promote clean wood burning in Ontario.

One of the actions of the work group in 1999 was the Great Eastern Ontario Wood Change-out pilot project coordinated by the Hearth Products Association of Canada, in partnership with the Ontario Ministry of the Environment, Environment Canada, the Association of Registered Wood Energy Technicians of Ontario (ARWETO) and Natural Resources Canada. The project was designed to promote clean, safe and more efficient residential woodburning in eastern Ontario with the following key components:

• a public education campaign, with public work shops, newspaper ads and media events; and,
• a "change-out" program with rebates for people upgrading from old technology stoves and fire places to new clean-burning appliances.

The program was launched on Jan. 8, 1999, and ran until March 8, with accomplishments including:

• extensive media coverage in many local newspapers, with some running two or more articles with photographs on different aspects of the program;
• Eight Woodstove Workshops, with a total of almost 500 people attending; distribution of more than 1,000 copies of the NRCan/CMHC publication A Guide to Residential Wood Heating through the workshops as well as through dealers; and,
• a total of 113 official change-outs achieved from participating dealers.

To encourage Canadians to make better buying decisions when shopping for woodburning appliances, a communications strategy for wood heating was considered for the fall of 1999. As well, regulatory options to require the installation and/or use of clean-burning appliances are also being considered under the federal smog plan initiative.

"As a sector fully committed to continual environmental improvement, we appreciate the opportunity to participate in Ontario's Anti-Smog Action Plan. The collaboration approach of the ASAP has been instrumental in producing regulatory and non-regulatory initiatives that are both effective and efficient. We look forward to our continuing participation in the operating committee and working groups."
Craig Gammie
Manager—Energy and Environment
Ontario Forest Industries Association

---

If you are having difficulty accessing a document, please contact the Ministry of the Environment at picemail@ene.gov.on.ca or phone the ministry's Public Information Centre at 1- 800-565-4923, in Toronto 416-325-4000 or by mail to the Ministry of the Environment, Public Information Centre, 135 St. Clair Ave. West, 1st Floor, Toronto, ON. M4V 1P5.

---

To view/print PDF documents, you must have Adobe Acrobat Reader. Adobe Acrobat Reader is free and can be downloaded from the Adobe web site. Download Adobe Acrobat Reader.