Canada and Agenda 21

CHAPTER 9

Protection of the Atmosphere

-- Environment Canada --

The views expressed in this chapter relfect input from a number of stakeholders and do not necessarily represent the views of the Government of Canada or the Projet de Société.

THE NATURE OF THE PROBLEM

The Earth's atmosphere is vital to the survival of life on the planet. Not only does it provide many of the elements necessary for human, animal and plant survival, the atmosphere also serves to regulate temperatures on the earth's surface and in its oceans, as well as protecting it from the sun's harmful ultraviolet rays.

The exponential growth of human population and wealth in the last century has put tremendous pressure on the Earth's atmosphere. Industrialization, technological change, energy dependence, striving for economic growth and the multitude of other ways in which humans try to improve their quality of life have led to serious atmospheric problems: climate change, ozone depletion, and long-range transboundary air pollution.

Climate Change

Climate is the result of a series of complex interactions between the atmosphere, bodies of water and land. The earth's atmosphere is largely transparent to short-wave energy from the sun. Some of this energy is reflected back into space, but some is absorbed by the earth's surface and clouds and re-radiated as heat. Several gases absorb this heat, and in turn, warm the atmosphere.

This warming, or "greenhouse effect" is essential for life on earth. Without it, the earth's surface would be about 35 degrees Centigrade cooler and life as we know it would be impossible.

Several of the "greenhouse gases" that contribute most to the heat-trapping ability of the atmosphere have been increasing rapidly as a result of human activities. According to the Intergovernmental Panel on Climate Change (IPCC), an independent scientific body that assesses the scientific and socio-economic impacts of climate change, higher concentrations of greenhouse gases in the atmosphere would increase the average temperature of the Earth. According to present estimates, a continuing swift rise in carbon dioxide (CO2) concentrations would lead to increases in average temperatures of 0.2 to 0.5 degrees Celsius per decade. Increases of such magnitude could result in major disruptions of weather patterns, living conditions and economic activities around the world

Also, in his address prior to UNCED at the Museum of Civilization in Hull, Quebec on June 1st 1992, Prime Minister Brian Mulroney announced that the agreement on preventing climate change, which Canada would sign, will require urgent and constructive follow-up. On behalf of Canada, the Prime Minister suggested that the countries at Rio establish a quick-start agenda for action, including arrangements for funding projects to prevent climate change in developing

countries. In addition, the Prime Minister stated that this agreement must be ratified as soon as possible and that Canada would undertake to ratify it within the calendar year.

Ozone Depletion

The consequences of atmospheric ozone thinning are substantial and global in nature. Ozone depleting substances such as chlorofluorocarbons (CFCs) and other gases -- used in the production of certain foams, solvents and pesticides, and as refrigerants -- have proven destructive to the stratospheric ozone layer which prevents harmful ultraviolet rays from reaching the Earth's surface. A thinner ozone layer would result in an increase in UVB radiation reaching the earth's surface. The consequences of increased UVB include greater incidences of skin cancer and eye cataracts, suppression of the body's immune system, reduced crop yields, and increased threats to marine life because of the sensitivity of phytoplankton to ultraviolet rays.

Long-range Transboundary Air Pollution

Another threat to the earth's atmosphere, which knows no national boundaries or regional constraints, is air pollution. Air pollutants are killing trees, lakes, damaging buildings and cultural treasures, sometimes thousands of miles from their sources.

Acid rain has been a point of controversy between Canada and the United States for several years. It is also a serious problem in Europe, causing particular devastation to forests. Fifty million hectares or 35% of Europe's forests are estimated to be damaged, dead or dying, mostly due to acid precipitation.

The central dilemma surrounding air pollution is that increased economic activity is essential to socio-economic development and improved human welfare, yet current fuel and technology choices are causing unprecedented and potentially irreversible changes to the life-supporting characteristics of the planet's atmosphere.

PROGRAM AREAS AND OBJECTIVES

Chapter 9 contains the following four main program areas:

(1)Address the uncertainties associated with climate change by improving:

the scientific basis for decision-making;

understanding of the processes (eg. physical, chemical, geological, biological, economic and social) that influence the Earth's atmosphere on a global, regional and local scale;

capacity-building and international cooperation; and,

the understanding of the economic and social consequences of atmospheric changes and of mitigation and response measures addressing such changes.

(2)Promote sustainable development in:

energy development, efficiency and consumption, through the use of environmentally safe and cost effective energy systems, particularly new and renewable ones, and through less polluting and more efficient energy production, transmission, distribution and use;

transportation, by developing and promoting cost-effective policies/programs which limit, reduce or control harmful emissions into the atmosphere;

industrial development, by encouraging increased efficiency in the production and consumption by industry of all resources and materials, by improving pollution-abatement technologies, and by developing new environmentally sound technologies;

terrestrial and marine resource development and land use, in order to:

-reduce atmospheric pollution and limit anthropogenic emissions of greenhouse gases

-conserve sinks for greenhouse gases

-conserve and encourage sustainable use of natural and environmental resources

-ensure that actual and potential atmospheric changes and their socio-economic and ecological impacts are fully taken into account in planning and implementing policies and programs concerning terrestrial and marine resources utilization and land-use practices.

(3)Prevent stratospheric ozone depletion to:

realize the objectives defined in the Vienna Convention and the Montreal Protocol and its 1990 and future amendments, including consideration in those instruments of the special needs and conditions of the developing countries and the availability to them of the alternatives to substances that deplete the ozone layer; and,

develop strategies aimed at mitigating the adverse effects of ultraviolet radiation reaching the Earth's surface as a consequence of depletion and modification of the stratospheric ozone layer.

(4)Transboundary atmospheric pollution:

develop and apply pollution control and measurement technologies for stationary and mobile sources of air pollution and to develop alternative environmentally sound technologies;

observe and assess systematically the sources and extent of transboundary air pollution resulting from natural processes and anthropogenic activities;

strengthen the capabilities, particularly of developing countries, to measure, model and assess the fate and impacts of transboundary air pollution through exchange of information and training of experts;

develop the capabilities to assess and mitigate transboundary air pollution resulting form industrial and nuclear accidents, natural disasters and the deliberate and/or accidental destruction of natural resources;

encourage the establishment of new and the implementation of existing regional agreements for limiting transboundary air pollution; and,

develop strategies aimed at the reduction of emissions causing transboundary air pollution and their effects.

CANADIAN PARTICIPATION AT RIO

1.Official Canadian Position

Canada had three main objectives at UNCED regarding the protection of the atmosphere:

to ensure that this chapter addressed the full range of factors contributing to atmospheric degradation, and the linkages among atmospheric, environmental and development issues;

to ensure enough flexibility was provided for all nations to work towards implementation of agreed objectives and activities in a manner that is consistent with each nation's particular environmental, social and economic circumstances; and,

to ensure that this chapter was fully consistent with the elements of the Framework Convention on Climate Change.

From Canada's point of view, this chapter is considered a success, for all the Canadian objectives were met.

With regards to the Climate Change Convention, the official Canadian position was that Canada intended to sign the convention despite its weak targets. Moreover, that the Convention represented a compromise and the beginning of a process that will be geared towards achieving a longer-term consensus on reduction of net emissions of CO2 and other greenhouse gases not covered in the Montreal Protocol by the year 2000 at 1990 levels.

2.Non-Governmental Organizations

In general, NGOs agreed with the official Canadian position on Chapter 9, given its breadth. NGOs held a different position however, on the specifics of how to implement Canadian objectives. They believed that Canadian efforts should be focused on limiting emissions of CO2 through the reduction of our dependence on fossil fuels, and expressed concern that the government's promotion of the all-gas, comprehensive approach would simply lead to inaction on CO2 reduction. NGOs also felt that Canada was too accepting of the U.S. rejection of targets and schedules, since it made Canada's "timid and inadequate" stabilization commitment look good. In addition, NGOs were not convinced that Canada's domestic plan could achieve our international commitment to stabilize greenhouse gas emissions at 1990 levels by the year 2000.

With regard to the Climate Change Convention, NGOS felt that the Canadian Government's position on energy was reactive and regressive. Although the idea of stabilization of CO2 emissions was entertained, the Canadian Government argued that reduction was not possible because dependence on fossil fuels will continue to dominate energy needs for decades to come. Noting that Northern countries contributed 82% of energy-related emissions between 1950 and 1985 and that Canada is the largest consumer of energy per capita basis, NGOs advocated a more progressive and pro-active stance for Canada. Such a position would go beyond energy efficiency programs to encompass "demand-side" reduction of energy consumption. Canadian NGOs agreed upon a minimal 20% reduction of CO2 emissions between 1988 and 2005, and the NGO Agenda Ya Wanachi called for a 75% cut in global greenhouse gas emissions between 1990 and 2030. Finally, although Canada is seen as more forthcoming in CFC discussions, NGOs urged for a rapid phase-out in line with the 1995 deadline for banning CFC production.

3.Business and Industry

Business and industry strongly endorsed Canada's desire to improve its scientific base for decision-making. They viewed this objective as a major opportunity for Canadian GIS and Earth Observation technology development, as well as a good prospect for international sales.

The promotion of sustainable development in energy development, efficiency, and consumption, transportation and industrial development received agreement from business and industry in directional rather than literal terms. They expressed concern these objectives could potentially lead to intervention, trade distortion and protectionism, and that consumers may be reticent to absorb extra costs involved.

As to the objective of promoting sustainable development in terrestrial and marine resource development and land use, business and industry viewed this as a significant opportunity for the development of GIS applications in the service industry, and expressed a belief that the judicious use of pesticides would enhance the expansion of agricultural and forest activities, as well as enhancing carbon sink capabilities of land.

The objective of preventing stratospheric ozone depletion was seen as being beneficial to the Canadian service industry, because Earth Observation technologies could be used to monitor ozone depletion. However, it was underlined that proper risk analysis was essential in working toward this objective, for in some cases, alternatives to the use of ozone depleting substances pose an acute hazard.

In regards to the prevention of transboundary atmospheric pollution, no information is available from business and industry.

4.Indigenous

Threats to the atmosphere, such as climate change, ozone depletion and transboundary pollution are affecting and will continue to endanger the traditional way-of-life of Indigenous Peoples. Indigenous Peoples need to be involved in montioring, evaluating and managing the impact of these encroachments of their way of life. This is particularly the case for remote regions where Indigenous Peoples are the primary inhabitants.

Indigenous Peoples have warned Canada that the threats to the atmosphere, such as climate change, ozone depletion and transboundary pollution are affecting and will continue to endanger the tradition way-of-life of Indigenous Peoples. Indigenous Peoples need to be involved in monitoring, evaluating and managing the impacts of these encroachments of their way of life. This is particularly the case for remote regions where Indigenous Peoples are the primary inhabitants.

COMMITMENTS MADE BY CANADIANS

1.Legally-Binding Documents

Canada, along with more than 150 other countries, signed the United Nations Framework Convention on Climate Change (FCCC) during UNCED. The ultimate objective of the Convention is to stabilize greenhouse gas concentrations in the atmosphere at a level that prevents dangerous human-induced interference with the climate system.

Prime Minister Brian Mulroney committed Canada to ratifying the Climate Change Convention by the end of 1992. On December 4, 1992 the instrument of ratification was signed.

2.Political Pronouncements

In his address prior to UNCED at the Museum of Civilization in Hull, Quebec on June 1st 1992, Prime Minister Brian Mulroney announced that on acid rain, Canada has reached agreement with the United States for fifty percent reductions in the level of emissions; and on ozone depletion, Canada will phase out all CFCs within the next three years.

Canada has committed itself to contribute $25 million to the pilot phase of the Global Environment Facility (GEF) and to contribute our fair share in the 1994-1996 GEF replenishment.

Also, Canada has committed itself to a "Quick-Start Agenda" on climate change, which includes: hosting an international meeting to discuss the relationship between the GEF and the Convention (October 1992); promoting a scientific work program for the Intergovernmental Panel on Climate Change (IPCC) (accepted Nov. '92); providing bilateral funding to developing countries to carry out studies of greenhouse gas emissions; preparing Canada's National Report on Climate Change by June 1993; and, hosting international discussions on implementing the Convention's comprehensive approach to limiting greenhouse gas emissions (1994).

During his disclosure of the National Statement of Canada at UNCED, the Minister of the Environment, Jean Charest, announced that emissions of greenhouse gases not subject to the Montreal Protocol would be stabilized at 1990 levels by the year 2000; the manufacture of CFCs would cease at the latest by the year 1995; and, Canada would reduce its emissions of sulphur dioxide in Eastern Canada by 50% by the year 1994.

3.Alternative NGO Treaties and Kari-Oca

NGO Treaties

At the same time as UNCED, two major international events were also held at Rio. One was the International Non-Governmental Organization Forum (Global Forum). At the Global Forum, 3,100 NGOs discussed a number of matters related to environment and development and produced a parallel set of documents: an NGO Earth Charter and 38 Alternative NGO Treaties. Canadian NGOs played a significant role in developing the Treaties and took a lead in coordinating their dissemination. Of these treaties, two addressed the issues discussed in Chapter 9.

NGO Treaty on Climate

The NGO Treaty on Climate states that industrial countries need to reduce their emissions drastically because the South needs to raise its levels at least minimally, and that every country must be supported in building up environmentally-friendly and culturally-appropriate technological alternatives.

Its commitments include: the elimination of CFCs by 1995 at the latest, with a timetable by 1992 for the elimination of organo-halogens as agreed to in the Bergen Conference; a 30% reduction of CO2 by the year 2000 and development of a comprehensive policy strategy to implement reduction; the development of total energy accounting systems to ensure real and fair comparative pricing among all energy alternatives before any future investment.

NGO Treaty on Energy

The NGO Treaty on Energy includes the following principles: production, distribution and usage of energy with maximum efficiency and minimum impact on people and nature; all peoples, communities and nations have equal access to goods and services that energy provides; energy commitments must be democratic and participatory.

Its commitments include: working for renewable, decentralized energy production, such as solar, wind, biomass and small-scale hydro; opposition to all mega-energy projects and solidarity with peoples dislocated because of them; a moratorium on all nuclear power-related activities; pressuring governments for full reviews of their energy policies and a minimum energy efficiency standard; campaigning for consumers and producers to conserve energy.

Kari-Oca

The second alternative forum at Rio was the International Conference on

Territory, Environment and Development (the Kari-Oca Conference). The Kari-Oca Conference was held immediately prior to UNCED by and for the world's indigenous peoples. More than 650 indigenous representatives participated in meetings and cultural events during the conference. They developed and adopted a 109-point Indigenous Peoples Earth Charter.

Indigenous peoples maintain their inalienable rights to their lands and territories, to all their resources - above and below - and to their waters. They assert their right to demarcate their traditional territories, including space (air), land and sea.

DEFICIENCIES, GAPS AND CONSTRAINTS WITHIN CHAPTER 9

While the Chapter is divided into three distinct issues - climate change, ozone depletion and long-range transboundary air pollution - it is important to note that there are many synergies between the issues. It is more effective to deal with them in a holistic fashion.

The following represents a summary of the comments received from the various sectors of Canadian society. While the comments were addressed to Agenda 21 as a whole, they are applicable to Chapter 9.

Economic restraint is presenting one of the greatest obstacles to being able to meet objectives. Government support to science and technology is under constant downward pressure due to diminishing budgets. Some attribute this to a lack of political will.

Individuals and groups will resist the imposition of environmental protection regulations and plans because of their social and economic costs.

The UNCED goals are too broad, and have been poorly conveyed. The many UNCED recommendations should be reduced to those that were in fact tangible calls for action. There is also still a need to define sustainable development in a way that can be agreed to by all stakeholders. It must be brought to a practical level.

Communication has in general been poor. The lack of communication among various "actors" has resulted in a duplication of efforts - a sharing of knowledge about activities elsewhere could help to reduce such overlap. Accomplishments should be communicated worldwide. Public interest is waning as Rio recedes into the past.

Federal and provincial regulations and activities are not coordinated - a significant obstacle to individuals. Adding to the confusion, citizens don't understand how to approach or influence all the levels of governments and organizations.

UNCED goals are not focused on community based activities. (Local levels were marginalized during UNCED and continue to be so.)

COMPARISON BETWEEN CURRENT CANADIAN GOVERNMENT POLICY AND COMMITMENTS MADE

Global Warming

Canada remains committed to stabilizing emissions of carbon dioxide and other greenhouse gases, not controlled under the Montreal Protocol, at 1990 levels by the year 2000.

Canada's draft National Report on Actions to Meet Commitments Under The Framework Convention on Climate Change was released on September 22, 1993 by Environment Minister Pierre Vincent. According to the initial assessments included in the Report, in the absence of any additional measures to reduce emissions, greenhouse gases could rise 10.6% above 1990 levels by the year 2000. The final version of the Report will be released by year's end.

The federal, provincial and territorial governments have established a multi-stakeholder process, the national air issues mechanism, which will guide, in close consultation with non-government stakeholders, the development of recommendations on additional measures to reduce emissions of greenhouse gases. Recent reports, like the Canadian Options for Greenhouse Gas Emission Reduction report (COGGER), prepared by an independent panel of the Royal Society of Canada, are important contributions to this process.

The COGGER report offers suggestions for ways and means of meeting Canada's commitment. COGGER states that "It appears feasible and cost-effective to achieve Canada's interim target of stabilization of GHG gases at 1990 levels by 2000 and to achieve an absolute reduction of about 20% by 2010." It further states that the stabilization target can be reached entirely through measures that are "worth doing anyway" for reasons unrelated to global warming. COGGER says that "Few provincial or federal government agencies or energy industries in Canada either have in place, or intend to implement, substantial energy efficiency policies that go beyond the provision of information to consumers."

Ozone Depletion

Canada has a comprehensive program to phase out CFCs and other ozone-depleting substances. The Canadian Ozone Protection Program currently requires a 75% reduction of CFC production and import by January 1, 1994 and a total phase-out by January 1, 1996. Canada fully expects to meet this commitment.

The Canadian Program is consistent with what was agreed to in Copenhagen in November 1992 by the parties to the Montreal Protocol on substances that deplete the ozone layer.

As of June 1992, the Canadian annual consumption of CFCs had been reduced by 58% from 1986 levels, the base year for the Montreal Protocol.

In some applications, Canada will be using HCFCs in place of CFCs. The terms of the most recent amendments to the Montreal Protocol call for a 99.5% reduction of HCFC consumption by the year 2020 and a total phase-out by 2030. Canada will totally phase out HCFCs by 2020.

Transboundary Atmospheric Pollution

Canada continues to participate in the development of the second Protocol to control the transboundary flow of sulphur dioxide (the first was the Helsinki Protocol). The concept of critical loads, which Canada has been promoting within the ECE for more than a decade, has been established as the basis for the Protocol.

Canada's national objective is to reduce sulphur dioxide emissions from its 1980 level of 4.6 million tonnes to 3.2 million tonnes by the year 2000. The first progress report on the Acid Rain Control Program was released on June 1992. By the end of 1990, 70% of the national goal had been achieved. In the coming year, a new system for allocating sulphur dioxide emissions targets under the national cap will be reviewed with the provinces and territories.

CANADIAN ACTIVITIES EVOLVING THROUGH THE SUSTAINABILITY PROCESS

Recognizing that atmospheric issues must be addressed holistically, Canada's environment and energy ministers from the federal, provincial and territorial governments have created an national air issues mechanism. This mechanism, which has representation from all levels of government, industry and the private sector, and other non-governmental agencies, will develop coordinated management plans and strategies for all air issues. The preparation of Canada's National Report on Actions to Meet Commitments Under the United Nations Framework Convention on Climate Change is but one example of an initiative that is being guided by the air issues mechanisms.

OTHER RELEVANT INTERNATIONAL SUSTAINABILITY-RELATED FORA

Canada is an active participant in all major international fora dealing with atmospheric issues. Delegations to such meetings and conferences are routinely comprised of representatives from Canadian governments, industry and the private sector, and non-governmental organizations. To ensure an integrated and holistic approach, the national air issues mechanism will assist in the development of the positions taken by Canada at such meetings. Canada participates in the atmospheric-related activities of the following organizations:

Intergovernmental Negotiating Committee on Climate Change

Intergovernmental Panel on Climate Change

Organization for Economic Cooperation and Development (OECD)

Economic Commission for Europe

The Parties to the Montreal Protocol

The Conference of the Parties to the Vienna Convention

Global Environmental Facility

United Nations Commission on Sustainable Development

SUGGESTED READINGS AND INFORMATION SOURCES

Canadian Council of Ministers of the Environment (CCME). Detailed Report of the UNCED Follow-up Task Group, (Ottawa: CCME, March 1993).

Government of Canada. Canada's Green Plan, (Ottawa: Environment Canada, 1990).

. Canada's Green Plan and the Earth Summit. (Ottawa: Environment Canada, 1992).

. Canada's National Report: United Nations Conference on Environment and Development Brazil, June 1992. (Ottawa: Environment Canada, 1991).

. Overview of Potential Economic Impacts of Proposed UNCED Commitments (Agenda 21): Industry Response as at February 16, 1992, (Ottawa: Department of Industry, Science and Technology, February 1992).

. The State of Canada's Environment, (Ottawa: Environment Canada, 1991).

International Development Research Council (IDRC). Agenda 21: Abstracts, Reviews, and Commentaries. (Theodora Carroll-Foster, editor), (Ottawa: IDRC, 1993).

. Agenda 21: Green Paths to the Future, (D. Spurgeon, editor), (Ottawa: IDRC, 1993).

. A Guide to Agenda 21: Issues, Debates, and Canadian Initiatives. (Theodora Carroll- Foster, editor), (Ottawa: IDRC, 1993).

Keating, Michael. Agenda for Change: A Plain Language Version of Agenda 21 and the Other Rio Agreements. (Geneva: Centre for Our Common Future, 1993).

United National Association of Canada (UNAC). Protecting the Atmosphere, (Ottawa: UNAC, 1992).

World Commission on Environment and Development. Our Common Future, (Oxford: Oxford University Press, 1987).

Information Sources:

Intergovernmental Panel on Climate Change (IPCC)

Canadian Options for Greenhouse Gas Emission Reduction report (COGGER)

Cite as: Projet de société: Canada and Agenda 21.Winnipeg: IISD, 1995. Online. Internet. http://iisd.ca/worldsd/canada/projet/c09.htm.

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