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4. FUEL EFFICIENCY - RESPONSE
TO MOTION 39/17
RENDEMENT DU CARBURANT – RÉPONSE À LA MOTION
NO 39/17
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committee recommendations as amended
That Council approve:
1. Receive for
information the Eco-Driving Policy and direct staff to incorporate it into the
Corporate Policies, by referring to the idling bylaw;
2. Direct staff to continue with options
to reduce the amount of CO2 gases being emitted by City-owned vehicles as part
of the Fleet Emission Reduction Strategy in Q1 2009.
Recommandations modifiées du
comité
Que le Conseil approuve :
1. d’approuver la
politique de conduite écologique et de demander au personnel de l’intégrer aux
politiques municipales;
2. de
demander au personnel de poursuivre avec les options visant à réduire la
quantité de CO2 émise par les véhicules appartenant à la Ville dans
le cadre de la Stratégie générale de réduction des émissions du parc
de véhicules au cours du premier trimestre de 2009.
Documentation
1. Deputy City Manager’s report (Public
Works and Services and Planning, Transit and the Environment) dated 7 October
2008 (ACS2008-PTE-DCM-0006).
2. Extract of Draft Minute, 15 October
2008.
Report
to/Rapport au :
Transportation Committee
Comité des transports
and Council / et au Conseil
07 October 2008 / le 07 octobre 2008
Submitted by/Soumis par : Nancy Schepers, Deputy City Manager/Directrice
municipale adjointe,
Planning, Transit and the
Environment/Urbanisme, Transport en commun et Environnement
Submitted by/Soumis par : R.G. Hewitt, Deputy City Manager/Directeur municipal adjoint,
Public Works and Services/Services et Travaux publics
Contact/Personne-ressource: Michael Murr,
Manager/Gestionnaire, Strategic Initiatives and Business Plan/Initiatives
stratégiques et planification opérationnelle
(613) 580-2424, 25195
Michael.Murr@ottawa.ca
Contact/Personne-ressource: Gary Craig,
Manager/Gestionnaire, Strategic Initiatives and Business Plan/Initiatives
stratégiques et planification opérationnelle
(613) 580-2424, 19037 Gary.Craig@ottawa.ca
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Ref N°: ACS2008-PTE-DCM-0006
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SUBJECT:
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FUEL EFFICIENCY - RESPONSE TO MOTION
39/17
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OBJET :
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RENDEMENT
DU CARBURANT – RÉPONSE À LA MOTION NO 39/17
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REPORT RECOMMENDATIONS
That the Transportation Committee recommend Council:
1.
Receive for
information the Eco-Driving Policy and direct staff to incorporate it into the
Corporate Policies;
2.
Receive for
information the implications and potential impacts of the options required to
reduce fuel consumption of City-owned vehicles by 25 per cent and refer this
report for consideration in the 2009 Budget process; and
3.
Direct staff to
continue with options to reduce the amount of CO2 gases being emitted by
City-owned vehicles as part of the Fleet Emission Reduction Strategy in Q1
2009.
RECOMMANDATIONS DU RAPPORT
Que le Comité des transports recommande au
Conseil :
1. d’approuver la politique de conduite
écologique et de demander au personnel de l’intégrer aux politiques
municipales;
2. de prendre connaissance du présent
rapport concernant les conséquences et les répercussions possibles des options
visant à réduire la consommation de carburant de 25 p. 100 par les
véhicules appartenant à la Ville et de référer le présent rapport aux fins
d’examen dans le cadre du processus budgétaire de 2009; et
3. de demander au personnel de poursuivre
avec les options visant à réduire la quantité de CO2 émise par les
véhicules appartenant à la Ville dans le cadre de la Stratégie
générale de réduction des émissions du parc de véhicules au cours du premier
trimestre de 2009.
BACKGROUND
At the June 25, 2008, meeting of
Council, staff were directed through Motion 39/17 to develop an Eco-Driving Policy
for submission to the Transportation Committee by October 2008; study potential
opportunities to reduce fuel usage by 25 per cent; and, proceed with options to
reduce CO2 gas emissions. The motion
states:
1. THEREFORE BE IT RESOLVED that staff develop
an Eco-Driving policy for submission to the Transportation Committee by October
2008 that will result in the most fuel effective uses of City vehicles,
including items such as type of vehicle, planning the route, using air
conditioning sparingly, proper tire inflation, avoiding idling, driving within
speed limits, not having jackrabbit starts and hard braking. Until the policy is finalized that staff be
encouraged to use such fuel efficiency practices.
2. BE IT FURTHER RESOLVED
that the City Manager direct management in all City branches, through
consultation with staff in each branch and with the public if there is an
impact on service levels, to immediately undertake measures to reduce fuel
usage and other use of petroleum based products with an overall goal to reduce
usage by at least 25 per cent, and report back through the Corporate Services and
Economic Development Committee on a quarterly basis on the fuel savings that
have been achieved and on those that will be implemented in the next quarter;
3. BE IT FURTHER RESOLVED
that the 2009 budget contain ongoing measures to annualize and improve on
fuel savings and the subsequent reduction in CO2 gases.
This report is intended to
propose a City of Ottawa Eco-Driving Policy and to provide the framework for
implementation. Secondly, this report
will provide for information the implications of reducing fuel consumption by
25 per cent and will highlight efforts to reduce Greenhouse Gas emissions.
Since amalgamation, Fleet
Services Branch, in partnership with every City branch requiring vehicles, has
implemented a number of environmentally friendly driving initiatives. The Eco-Driving Policy integrates and
formalizes these initiatives along with options created as a result of Council
direction (Motion 39/17).
The intent of the new policy is
to provide guidelines that will result in the most fuel effective use of City
vehicles, and address issues such as vehicle type, route planning, air
conditioning usage, proper tire inflation, idling, and driving within speed
limits.
As well, Council referred to
staff the investigation of options for immediately undertaking measures to
lower fuel usage and petroleum based products with an overall goal of reducing
consumption by at least 25 per cent.
The implications of moving forward with a 25 per cent reduction are
outlined in this report.
This report contains, as per
Council direction, preliminary information regarding the potential
opportunities that could be achieved within the 2009 Budget regarding ongoing measures
to annualize and improve on fuel savings and the subsequent reduction in CO2
emissions.
Currently, the City is
undertaking a number of initiatives to reduce the amount of fuel required by
municipal and transit fleet vehicles, including the introduction of hybrid
buses. As well, Fleet Services is
working on implementing the fleet components of the Auditor General report
recommendations that will produce fuel and efficiency savings.
Fleet Services is also focused on
procurement, and is striving to identify and purchase the most cost-effective
fuel-efficient vehicle models available, while ensuring that service levels are
not jeopardized. Within this envelope,
fuel efficiency ratings are identified so that vehicles meet certain
requirements to be considered for purchase.
These fuel efficiency standards are based on industry best in-class for
vehicle being purchased.
Fleet Services has also begun to test promising
new green vehicle technologies and is working with industry experts to
accelerate development and large-scale adoption, while ensuring the vehicles
fit within the City’s operational requirements. For example, the municipal fleet contains several light duty
electrical support vehicles for warehouse and similar operations; technology improvements
are permitting substitution of internal combustion power to electrical power.
Opportunities to increase the number of electric vehicles will be brought
forward in the 2009 Fleet Emissions Reduction Strategy and Green Fleet Plan.
ANALYSIS
As it relates to Recommendation
1, the Eco-Driving Policy will help ensure all City owned and leased vehicles
and equipment are operated in a fuel-efficient manner. The objective of the policy is to provide
driving guidelines for staff that may result in reduced fuel consumption,
thereby reducing fuel costs to the City and simultaneously decreasing
emissions.
Integration
of Eco-Driving Policy Initiatives
Prior to the proposed Eco-Driving
Policy, the City of Ottawa had a number of environmentally friendly initiatives
to address the issues of fuel usage, Greenhouse Gas emissions, and to reduce
operating expenditures. Staff have
integrated the existing fuel consumption initiatives and other policies into
one document to be known as the Eco-Driving Policy attached as Document 1.
The Policy establishes a number
of guidelines for staff. For example,
staff will be required to consider non-travel options such as e-mail, fax,
teleconferencing or internal / external mail.
Staff will also be required to plan their route to minimize use. When driving, staff will be required to
avoid rush hour traffic if possible, reduce idling time and travel at the
posted speed limit.
The new Eco-Driving Policy will
be integrated into a number of citywide policies such as the Employee Code of
Conduct, Fuel Emission Strategy, and Corporate Vehicle and Equipment Idling
Policy. Staff training and awareness
will be rolled into the City’s current training programs.
Currently, Fleet Services gathers
fuel usage information and distributes reports to the branches on a monthly
basis. The branches then use this data as a tool to help calculate budget
requests, highlight operational trends, and provide records for issues related
to efficiency and transparency.
The following Table 1 indicates
current fuel usage. In 2007, Transit
Services (Buses, Para Transpo, Light Rail) accounted for approximately 80 per
cent of total fuel usage, while the remaining municipal fleet accounted for 20
per cent of fuel usage (excluding Police Services).
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Service
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2007
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2008 YTD (8 months)
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Total (litres)
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% of Total
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Total (litres)
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% of Total
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Buses
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39,645,555
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76%
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27,017,775
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76%
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ParaTranspo
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1,844,356
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4%
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1,180,696
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3%
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Light rail
(estimated quantity)
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480,000
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1%
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320,000
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1%
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Municipal
Total (excluding police)
Total
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10,409,592
52,379,503
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20%
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7,280,672
35,459,343
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20%
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Related to
Recommendation 2, due to low volumes of fuel consumption within the non-transit service vehicles, staff
focused primarily on Transit Services to achieve significant fuel savings, as
the remaining municipal fleet has a minimal impact on the 25 per cent
goal. For example, in the absence of
transit service reductions, the City would have to park the entire municipal
fleet to reach the 25 per cent goal. It
is important to note that all options and strategies will be considered to work
towards the goal of 25 per cent, including those potential savings found within
the municipal fleet.
Transit Fleet
As directed by Council within
Recommendation 2, Table 2 below details a variety of options to reduce transit
services by 25 per cent, in order to achieve a 25 per cent saving in fuel
consumption for the City of Ottawa.
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Existing Situation
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Reduced Service Scenario
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AM Revenue kms
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Service Reduction
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Effect on
OC Transpo ridership
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Area
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Routes
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AM Revenue kms
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City-wide
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13,580
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10,190
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-25%
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-10 to -15%
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Inside Greenbelt
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6020
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Remove: 123, 141, 142, 143,
144, 147, 179, 187, 194, 197
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4430
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-26%
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Reduce frequency by 25% on
all other routes
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West
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1750
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Remove: 164, 165, 167
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1350
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-23%
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|
|
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Reduce frequency by 25% on
all other routes
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Southwest
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950
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Remove: 181, 186, 188
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720
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-25%
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|
|
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Reduce frequency by 25% on
all other routes
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Southeast
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90
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Remove: 45, 145
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0
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-100%
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Reduce frequency by 25% on
all other routes
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East
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2330
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Remove: 137, 193
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1840
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-21%
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Reduce frequency by 25% on
all other routes
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Transitway Routes
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2440
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Reduce frequency by 25% on
all rapid transit routes
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1840
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-24%
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Table 2 illustrates the service reductions by geography to indicate how
a 25 per cent overall reduction would affect each area of the city. In each area, to achieve the directed
savings, some routes would have to be cut completely (e.g. routes 123, 141,
etc. inside the Greenbelt) while the others would operate 25 per cent less
frequently. None of the Transitway routes (95, 96, 97, etc.) would be
eliminated, but their frequency would be reduced by 25 per cent.
Revenue (or service) kilometres are the distance traveled by public
transit vehicles while in service. In the reduced service scenario detailed in
Table 2, non-revenue kilometres (for example, when the bus is driven back to
the garage at the end of a run) could also be reduced, but that distance is
somewhat marginal compared to the number of revenue kilometres traveled.
While Table 2 shows kilometres traveled during the morning only, the
nature of the service reductions on each route would apply throughout the day.
Thus, individual routes noted in the table would actually be removed in
totality, while all other routes would have their frequency reduced by 25 per
cent all day long.
If Council directs staff to
reduce fuel usage by 25 per cent - through a reduction by 25 per cent of
revenue (or service) kilometres
- there would likely be a decrease in public transit ridership of between 10
per cent and 15 per cent. This would
translate into a loss of 32,000 to 48,000 passengers per day.
Currently, OC Transpo relies on
revenue for 50 per cent of its operating budget. A loss in ridership of this magnitude would generate a
substantial loss in revenue, which could further negatively impact the overall
operations of the service.
Municipal Fleet
As per Council’s direction to identify Municipal Fleet fuel consumption,
Table 3 illustrates the quantity of total fuel of municipal vehicles use
compared to other branches. For
example, Surface Operations account for 55.5 per cent of the entire Municipal
Fleet fuel consumption, however, if viewed within the overall City fuel
consumption, this amount only accounts for less than 11 per cent of the City’s
overall fuel consumption.
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Municipal Fuel Consumed January through July 2008
(Non-Transit Service Vehicles
20% of Total City Fuel
Consumption)
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Branch
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Total Litres
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Percentage
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Surface Operations
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3,821,436
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55.51%
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Solid Waste
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610,157
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8.86%
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Paramedics
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567,302
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8.24%
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WWS
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529,646
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7.69%
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Fire
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465,916
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6.77%
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TPO
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327,588
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4.76%
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Bylaw
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168,195
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2.44%
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RPAM
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103,335
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1.50%
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Motor Pool
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100,655
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1.46%
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Building Services
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40,686
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0.59%
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Infrastructure
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40,386
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0.59%
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Others *
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31,978
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0.46%
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Library
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27,727
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0.40%
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Fleet Services
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18,972
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0.28%
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IT Services
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14,976
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0.22%
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Utilities
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10,226
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0.15%
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Financial Services
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5,375
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0.08%
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Totals
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*
includes: City Clerk, Mayor, Public Health, Cultural Services, City of Ottawa
Housing Branch, Long Term Care
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Future Opportunities for Transit and
Municipal Fleet
There are a number of
opportunities to find fuel efficiencies in the immediate and long-term future
in the City’s fleet and these will be explored, as directed by Council, through
the review of the Fleet Emissions Reduction Strategy by the end of Winter 2009.
In addition, Council has directed staff to return by Fall 2009 with a Green
Fleet Policy that will outline changes to the City’s procurement practices and
favour the purchase of new and emerging green technologies.
In terms of procurement and fuel usage, the City plans to introduce
"life cycle costing" which will take into account overall lifecycle
costs and not just initial purchase cost.
The life cycle costing method takes into consideration the total life
cycle costs of ownership (i.e. depreciation, maintenance, fuel, etc.) of a
vehicle in determining which vehicle to purchase. Using life cycle costing tends to help ensure only fuel-efficient
vehicles and equipment is purchased, as fuel is a significant life cycle cost.
Municipal staff continually plans, studies, and modifies routes to
maximize use of their vehicles and minimize deadheading – ie. SOPs – snow
plowing; SWS – garbage collection.
Staff are analyzing the results of the Garage Efficiency Study to
explore potential benefits of constructing remote maintenance facilities to
minimize travel distances to maintenance facilities.
In
the future, staff will continue to evaluate electric, low-speed vehicles, or
hydrogen-fuelled vehicles, for City operations and possibly pilot test these
vehicles if the evaluation proves beneficial.
As well, testing of green trucks, including light-duty, medium-duty and
heavy-duty vehicles -- targeting those that idle excessively such as delivery
trucks and garbage packers will be investigated. For additional examples of current and
proposed municipal initiatives to reduce fuel consumption please see Document
2.
Reducing fuel within
Transit Services will be difficult to implement due the resulting service
reduction, decreased ridership, and reduced revenue. Having said that, it
should be noted that Transit Services is integrating new fuel-efficient buses
into the OC Transpo fleet by acquiring 202 diesel-electric hybrid buses.
The new buses will be phased in and fully
operational by September 2010. The
hybrid buses will result in significant fuel savings. Using a $1.32 per litre price for diesel fuel and assuming that
each bus travels 70,000 kilometres per year, the following estimated fuel
savings are anticipated:
Ø 2009
(2 hybrids all-year + 95 for 0.33 of year) = $ 760,000
Ø
2010 (97 hybrids all-year + 105 for 0.33 of year) = $
3.0M
Ø
2011 (202 hybrids all-year) = $ 4.6M
The figures indicate that once
the full hybrid bus fleet is in service, there will be an estimated annual fuel
savings of $4.6 million.
Transit
Services currently spends considerable efforts towards operational efficiency.
On an on-going basis, the performance of all routes is monitored. Alterations of routes and services are
addressed through public consultation, with the objective of creating
sustainable occupancy rates on board the buses. Similarly, on-going efforts are
spent on optimizing our service delivery model and the proportion of revenue to
non-revenue kilometres.
To
find further fuel savings, Transit Services is lobbying the Province to change
existing regulations to allow the use of coloured diesel (diesel used on
off-road vehicles such as tractors) in buses.
Such change could potentially produce 14.3 cents per litre in savings in
road tax as coloured diesel is not subject to the same provincial and federal
taxes on fuel. Currently, the City is
rebated a very small portion of tax (approximately $29,000 per year) but if the
recommended change were to occur savings could reach about $5.7 million per
year.
In terms of ongoing initiatives,
Transit Services is implementing a bus plug-in program at the new garage on
Industrial Avenue and applies protocols for outdoor bus storage. These
practices eliminate the need for buses to idle all night in the colder months,
and reduces fuel consumption by 50 per cent by only plugging in the buses two
hours prior to their departure.
Transit fleet is undertaking a diesel fuel conversion, from No.1 to
No.2, which is expected to generate two to five per cent fuel economy. This conversion involves the reprogramming
of some electronic engines for their fuel type. Exact savings are being
verified through testing at the National Research Council of Canada and
Environment Canada. Due to engine and
emission control technology variations, and climate variations (-35 to +35 C),
the testing will provide an approximate fuel economy reduction for our fleet,
estimated at $860, 000 per annum.
Transit Services has also initiated
a tire pressure and temperature tracking project for transit buses that has
good potential to ensure bus tires are maintained at proper pressures, not only
saving fuel but also reducing tire wear.
OC Transpo’s Annual Report
includes a set of operational metrics that collectively are designed to
increase the overall efficiency, total consumption and environmental impact of
transit operations.
CONSULTATION
FINANCIAL IMPLICATIONS
Adoption and implementation of
this policy should result in savings during 2009 which may impact future
budgets. It should be noted that many
other jurisdictions have introduced fare surcharges to offset rising fuel
prices.
SUPPORTING DOCUMENTATION
Document 1 Eco-Driving Policy
Document 2 Municipal Initiatives to Reduce Fuel Consumption
DISPOSITION
ECO-DRIVING POLICY DOCUMENT
1
FUEL EFFICIENCY - RESPONSE TO
MOTION 39/17
RENDEMENT
DU CARBURANT - RÉPONSE À LA MOTION NO 39/17
Councillor Wilkinson noted the
report indicates reducing idling time, however it does not make reference to
the City of Ottawa’s idling by-law. The
councillor was also concerned that the report indicates the only way to reduce
fuel consumption for the transit system is by cancelling routes and suggested
that there are other options that can be looked at. She pointed out that there are some efficiencies that can be done
with some routes, but cancelling them when ridership is increasing does not
make sense. She explained that the
intent of her initial Motion was to start looking at not only fuel consumption,
but also how it affects the air quality.
David Gladstone, Friends of the
O-Train argued that
the O-Train is three times more fuel efficient then a bus and suggested that if
was extended on existing railway lines it would reduce a number of congestion
issues throughout the city. He
indicated that the increase in fuel cost is encouraging the use of public
transit and therefore, cutting bus service would simply discourage the transit
use.
David Jeanes, Transport 2000 spoke in detail to the report and
the more salient comments noted were as follows:
·
The
report refers to the benefits to hybrid buses but does not include any good
news stories how the hybrid buses are going to help with fuel consumption. The National Research Council has done a
study of the expected savings, on most routes that use the Transitway and the
savings would be minimal
·
the
report demonstrates precise fuel consumption for bus transit but only estimated
fuel consumption for light rail
·
Federal
and Provincial infrastructure funding for transit depends on ridership
increase. Any measure that would reduce
ridership would be working against the ability to attract senior government
infrastructure funding
·
The
report proposes removing all bus service to Riverside South, the same area that
the City was going to build light-rail
·
The
report should have addressed how to better schedule drivers and buses to keep
them moving and reduce time spent idling
·
The
O-Train consumes 1/3 the fuel than buses per passenger moved so there could be
a significant savings if the percentage of transit passengers moved over distance
were to be handled by economical additions to the O-Train.
Tim Lane made the following points on how to save fuel:
·
Reduce
fuel wastage by having peak hour buses heading west laying over at Bayview,
instead of the Pinecrest garage
·
Articulated
buses should only be used on routes that have a heavy ridership
·
The
new Route 98 route from Tunney’s Pasture to South Keys makes no sense since the
O-Train, which is one stop away from Tunney’s, is the faster choice
·
Running
a bus straight down Hunt Club Road to the transitway would reduce the
congestion at the Greenboro park and ride
·
The
report proposes to cut Route 143 which serves the area around Greenboro Station
but only comes once an hour; most commuters either walk or drive to Greenboro
rather then wait for this bus.
Responding to questions
posed by Councillor Cullen, Nancy Schepers, Deputy City Manager, Infrastructure
Services and Community Sustainability, explained that staff will continue to
look for ways to optimize bus routes and minimize deadheading. She further explained that the report uses
cost per passenger kilometre because it reflects vehicle, fuel and maintenance
costs. While the councillor found the
information helpful, he acknowledged that Committee and Council has no
intention of cutting service.
Councillor Desroches stated that there is a great deal of support for
peak hour routes, but concern has been raised about the frequency of off-peak
routes. He wondered whether staff was
moving towards a policy where increasing the frequency will be postponed if the
ridership has not reached the desired level?
Alain
Mercier, Director of Transit Services explained that the
Council-approved policy is related to the impact on ridership based on
financial performance; the branch presents alternatives where the system can be
strengthened and they can look at the performance of certain routes to identify
those that are not economical. He
further explained that the changes are part of the Transplan process.
Councillor Desroches asked staff what progress has been made of lobbying
the provincial government about the use of coloured diesel. Mr. Mercier advised that he would be
reporting back with more information to look at tax rebates relating to using
coloured diesel.
Councillor Bloess pointed out that the
Committee was looking for ideas and suggestions for fuel economy and he wanted
to see more ideas e.g., reviewing routes that are not performing; reviewing the
equipment used on the routes, et cetera.
He mentioned that the right approach is to discuss the routes that are
not performing and evaluate whether they should be adjusted during the budget
process. The councillor suggested the
report should also clarify what fuel consumption is between buses and the O-train,
especially when the bus fleet carries more people.
Councillor Doucet asked whether
there was a single point of contact for energy-related questions from the
public and from councillors and the Deputy City Manager advised that there is a
group looking at optimizing service and she would report back with a point of
contact for questions.
Moved by M. Wilkinson
That Recommendation 1 be amended by referring to the idling bylaw, to
read as follows:
1. Receive
for information the Eco-Driving Policy and direct staff to incorporate it into
the Corporate Policies, by referring to the idling bylaw;
CARRIED
Moved by M. Wilkinson
That Recommendation 2 be referred back to staff to continue to look at
options to reduce fuel usage without cutting bus routes
CARRIED
That the Transportation Committee recommend
Council:
1. Receive
for information the Eco-Driving Policy and direct staff to incorporate it into
the Corporate Policies, by referring to the idling bylaw;
CARRIED
2. Receive
for information the implications and potential impacts of the options required
to reduce fuel consumption of City-owned vehicles by 25% and refer this report
for consideration in the 2009 Budget process;
REFERRED
TO STAFF
3. Direct
staff to continue with options to reduce the amount of CO2 gases being emitted
by City-owned vehicles as part of the Fleet Emission Reduction Strategy in Q1
2009.
CARRIED
