CONFIDENTIAL AIR/WATERPOLLUTIONIN CANADA A PUBLIC RELATIONSASSESSMENTFOR IMPERIAL OIL LIMITED ,.. PAGE AI R/WATE R POLLUT ION I N CAN ADA 1 PUBLI C ATTITUDES TOWARDPOLLUTION 6 MASS MED I A COVERAG E OF POLLUTION 8 POLLUTION LEGISLATIONAND CONTROL 9 POLITICAL/GOVERNMENTAL ACTIVITIES AND TRENDS 12 BUSINESSIMPLICATIONSFOR IMPERIAL 16 SUMMARY - PUBLIC RELATIONSIMPLICATIONS 19 TABLES 22 Not e : This repor t was prepar ed i n co - operation TDC Activity on Protect io n of the Environment. with the A few selected references ar e cit ed in foot notes; a complete bi b l io2raohv is available upon request. * Imperial Oil Limited. Public relations Dept. 628.5 1/ Air/water pollution in Canada: a public rel lations assessment for Imperial Oil Limited (bv) Frank T. LeBart. (Toronto) 1967. *>2o.J0 I I ~eBart/p j , 1967 _,,. ) I AIR/WATER POLLUTIONIN CANADA Air and water pollution are problems in all cities in an industrirtl c lvl lization. Canadian cities are no exceptions. However, Canadian cltf<'H 11r.1• favou r ed, in many cases, by satisfactory meteorological conditions and adequate water resources.l Further, the Canadian population, with the exception of a few major urban areas , is widely dispersed across a vast geogr aphic ar e a. The se f a ctors all help to mi nimize and postpone -- but not el i mina t e - - pro b lems of pollu t io n. A nati onal c onfe renc e on "Pol lut i on a nd Our Environme n t " held in November of 1966 i n Montreal under sponsorship of th e Canad ia n Coun c il of Resou r ce Ministers, b roadly concluded: 1. "Generally the concentrations the critical levels but there potential pollution. of pollutants are locations in Canada ar e we ll be l ow where there i s act ua l or 2. "With the anticipated increases in population and the mass and complexity of wastes, continuing strenuous efforts in all fields will be required to improve or even maintain these conditions. 3. "The situation in the U .S .A. is much more serious, but it is being attacked vigorously. The results of these programs will provide invaluable guidance and information for the Canadian effort. 4. "There is cause for concern and a major increase in Canadian efforts to protect the environment but there is no need for alarm or hysteria. 11 Looking to the future, the Ontario Government, for example, predicts 16 million inhabitants in southern Ontario by the year 2000 and studies conducted by Dr. Doxiadis for Detroit Edison forecast a Great Lakes megalopolis stretching from Chicago to beyond Montreal by the end of the century. Confirming this trend towards urbanization, a report on the 1966 census issued by the Dominion Bureau of Statistics on September 11, 1967 indicated that 7 36 of every 1,000 Canadians are now living in urban centres compared with 696 of every 1,000 in 1961. Projected population growth and urbanization of this magnitude pose challenges to future air/water pollution control. Water Pollution In Canada, water pollution is caused primarily by sewage; industrial wastes of many varieties (e.g. acids, alkalis, ammonia, cyanides, oil, phenols, saw and pulp mill effluents and tars); runoff of sediments, fertilizers, insecticides, weed killers and pesticides; and there is growing concern about "thermal pollution" in some areas where industrial plants are returning large volumes of heated water to rivers. 1 Vancouver and Sarnia cating meteorological 2 From a summary prepared are examples conditions. of cities by H. R. Holland. that must cope with compli- 2 -2Looking at Canada as a whole, the dwnping 0£ ruw or semi-treated sewage by municipalities is probably the most important single cause of water pollution in heavily populated areas. However, some progress is being made to correct this situation, especially in Ontario where the Water Resources Commission and a provincial formula for financing sewer plant construction have been effective. In B.C. the Department of Municipal Affairs recently announced that legislation will be proposed which will enable the Pollution Control Board to compel municipalities to build sewage treatment plants within a specified time. Considerable information and data on the pollution of rivers and lakes, including the Great Lakes, exist and further studies, surveys and research are underway. Water pollution and its causes, although complex, can be detected and measured in many of its forms; consequently realistic objectives can be established. There are, however, broad areas of scientific disagreement. These include, for example, the role of viruses and bacteria in treated sewage and other effluents; the actual effect of insecticides, pesticides and other chemicals (in what concentration?) on fish and biological processes; and the extent to which sewage, using present treatment techniques, can safely be recycled for drinking water. Finally, water quality criteria need to be defined for use of water in agriculture, by aquatic life, as drinking water, by industry and in recreation.3 Air Pollution There are approximately 35 types of atmospheric contaminants of some importance.4 In large municipalities, all of these pollutants occur in varying degrees from trace amounts to fairly large concentrations. Examples of the more significant include the following: Aldehydes - Aldehydes, especially formaldehyde, are introduced into the city air from incinerator smoke, stack gases and by automobile and diesel exhausts. Some aldehydes may be created by the oxidation of hydrocarbons after they are emitted into the atmosphere. The concentration of aldehydes is rarely high enough to cause coughing or choking but may be pungent and irritating. Carbon Monoxide - Automobile exhaust contributes about 97 per cent of the total CO in a city and is the principal source at ground level. While carbon monoxide in sufficient concentration over a long enough period of time is highly toxic, little authoritative data exist on the significance of CO as a pollutant of a city's environment. Fluorides - Fertilizer and aluminum manufacturing activities are the principal sources of fluorides in Canada. Fluorides in fairly low concentrations can cause damage to vegetation, including agriculture crops. 3 4 Proceedings of the national conference on "Pollution and Our Environment" - Canadian Council of Resource Ministers, Montreal, Oct. 31-Nov. 1966, page 151. "S ources of Pollutants" - H.A. Belyea, F.W. Taylor and R.J. Morse. A paper prepared for a one-day symposium of the Institute of Combustion and Fuel Technology (Quebec Branch) of Canada - Montreal. Nov. 30, 1966 4, -3 In sufficient concentrations over extended periods of time they car be t oxic t o human s an d animals . Fluorides are persistent and may be har.:1ful as trac e elements in water , milk or vegetation when consumed by nu mans and anima ls . However, fluorides in small quantities are generally considered ben eficial (e.g. fluo r idation of water for dental health). Hydrocarbons - Thr ough ev apo r a ti ve l oss es an d exh aust emi ssions , the autoTTni:e mobile is a major sour c e of hydrocarbons (85 per cent i n Tor onto5J. hydrocarbons are re l at iv ely lo w in to x icity in the con centrat ion s found in a city's atmosphere, they do contribute to smog under certai n a tmosph er ic conditions. Hydro gen Sulphide - Hydrogen sulphide is emitted by combustion of f ue ls an d from pulp mills, cement plants , sewage treatmen t plants, gas p l ants , oil refineries and production , tanneries, dye manufacturers and pollu ted s treams. Hydrogen sulphide causes tarnishing of silver and copper, may darken painted buildings and, in sufficient concentration, such as und er i nversion conditions, can be highly odorous and harmful to health. Lea d - Lead h a s re c eived considerable attention in the U. S. from public offi ci al s and t he mass media. Thi s doe s no t appe ar t o be true in Canada. No s tories ori g ina ted by Canadia n s our ces have app ea red in the 23 key ne wspa p ers mon itored by the IOL Public Relations during the past two years. The r e a ls o are relatively few references to lead in the Canadian technica l li ter a ture . Results of an ex t en s iv e sur vey con ducted by Dr. T. J. Hal ey , a toxi col og ist at th e Un iver s i t y of Califor n ia , indicate that the U.S. ha s a "highl y -leade d" envi ro nmen t but t ha t c hr onic lead pois onin g po ses no p r ob lem . Ac cor din g to Dr. Hal ey, u s e of leaded gaso lin e does not ap p ear to af f ect heal th; only a small pe r cen tage of lead inha l ed is in part i cles of a siz e the l ungs wi l l ret a i n . Mos t of the in fo od, not by inhala t ion. lead retained in the hwnan body is received Dr. Haley's study indicates that lead bod y burdens hav e remain ed s teady during the past 30 years and that the incidence of ac ut e le ad poi s oning has actually decreased. Oxides of Nitrogen - Ox ides of nitrogen are emitted fro m combusti on of all types of fuels such as coal, oil and natural gas. They contri bu te to photochemical smog and may be toxic in sufficient concentrati on over a long period of exposure. This smog, first noted in Los Ange l es , i s produced by chemical reactions of hydrocarbons, especially olefins, wi th nitrogen dioxide in the presence of bright sunlight. Photochemica l smog causes haze, eye irritation and plant damage. Sulphur Oxides - Sulphur oxides are produced primaril y by the combu stion of fossil fuels containing sulphur. Sulphur dioxide is the c ommon form. The concentrations required to give acute health effects are r el atively high even in the presence of suspended particulates. Sa fe l evels for continuous exposure have not yet been established firmly but th ey may be approached or even exceeded in large metropolitan and industr i a l centres. Sulphur trio x ide is also produced in combustion and some s ul phur dioxide is oxidized to this form in the air. (Sulphur dioxide, oxygen and sunlight, with particulate matter acting as a cata ly st, react under certain conditions to form S03.) Sulphur trioxide, i n t ur n, 5 Ibid -4- r dil with water vapour to form sulphuric acid. The resulti ng sn e ~·tremely irritating in very low concentrations. Products ·ulphur o.-ides can also cause damage to building exteriors, fabrics rt treasures. ·t, ther Pollutants - Other pollutants of varying degrees carcinogens (polynuclear aromatic hydrocarbons ~ nsiderable attention in the literature), organic and ri es, coarse and suspended particulates and air-borne •iruses, fungi, spores and pollen). i elude of importance have received inorg anic chloor ga nis ms (ba c teria, All sizeable concentrations of population and ind u stry i n t he country have actual or potential ai r pollution problems. Genera l l y concentrations are at the nuisance level wit hout r ead ily de te c table health effects. But with continued growth, cont r ol of emi s si ons wi l l become essential. 'lbe petroleum indust r y, di r e ctl y or i ndirect ly , is a major contributor to many of the key forms of poll ution. This fact is well known by government ai r pollu t ion con t r ol and health officials and is widely documented, albe i t not alway s ob j ectivel y , in the technical and medical lite r atu r e . Unfo rt unat ely , air pollution is an ar ea highl y charged with emotion and one ch ar a cterized by a lack of meanin gf ul data and rational guidelines. It is a sub j ect on which intelligent, wel l-informed and rational individu a l s can disagree with good intentions. The health aspect of air pol lution is especially critical in this r e spect. The medical data whic h do exist are based on relatively high concentrations as they may appl y to specialized industrial plants or may be studied in laboratory exper iments. There has been a tendency by some to extrapolate from these data to a community's atmosphere without making the essential distinction between acute toxicity due to high concentrations versus the unknown effects of continuous exposures at low concentrations. Concentrations utilized for industrial hygiene purposes cannot be readily extrapolated to ambient air quality. Collection of basic data on air pollution in all major urban areas in Canada with existing techniques should be given a high priority. These basic data are essential for the creation of meaningful objectives and control programs. In addition, more technical knowledge and data are needed in such areas as: 1. Effects of air pollution 2. Meteorological 3. Chemical 4. Improved and standardized cation of pollutants. 5. Improved factors reactions control on human health, affecting air in the atmosphere methods techniques agriculture and property. pollution. which contribute for measurement and equipment. new pollutants. and identifi- -sA Committee on Air Pollution Control of the Canadian Standards Association is currently working on development of an acceptable set of guidelines and obj ectiv e s for air pollution control. The committee (comprised of 1/3 industri a l member s, 1/3 provincial officials and 1/3 resea r ch personnel from branches of federal government) is approaching the problem in terms of ambi ent a ir quality rather than emissions standards. H. R. Holland is a member of th e committee. In Ca nada , t here is c ons i derab l e disagree ment as t o whether t here i s a s erio u s po l l u tion prob l em or not. There is even more disagreement on stan dar d s of air and water quality and as to the priority pollution contro l shou ld b e giv en in rel ation to ot her economic and national goa l s. In urging improved budget management and an improved assessment of spending priorities for all levels of government, the Economic Council of Canada, in its fourth annual review, made the following recommendation as reported by the Globe and Mail (September 18, 1967): "Anti-pollution measures will require large investment ... and governments should plan ahead for this in their spending programs -- just as they should have been able to foresee the needs of education and not been forced to deal with it as a crisis." Industrial corporations would be well advised to assume a similar posture. The effect of air and water pollution on human health, property, agricultural crops and vegetation, domestic animals and wild life and other aspects of our environment and the way the public, the mass media and governments react to these effects, real or imagined, will have a profound impact on the future of the oil and chemical industries. -6PUBLIC ATTITUDESTOWARD POLLUTION An accurate assessment of the present state toward pollution is not possible. The data not been published. of Canadian public opinion do not exist or at least have However, the Canadian Council of Resource Ministers conducted an informal survey in preparation for its 1966 conference on "Pollution and Our Environ(1) there are great differences in individual attitudes ment" and concluded: (2) there is no strong public demand to assign pollution conand awareness; trol a high priority for the allocation of public funds; (3) the problems of public education on the necessity, cost and benefits of controlling environmental quality are formidable. A conclusion of the conference, however, was that a vigorous educational campaign on all aspects of the pollution problem is essential. As one step in that direction, the Council has established National Resources Reporting Awards for excellence in reporting on pollution in the various media. The above informal survey results do not agree entirely with Imperial's own studies conducted during the summers of 1965 and 19676. These data indicate: (See table 1) Air and water pollution is an important government action absolutely essential. problem; 47% consider additional People who live in the Maritimes, the Prairies and British Columbia are more concerned about pollution in 1967 than they were in 1965. Ontario residents are less concerned in 1967. However, they are also less concerned about the other issues as well. This may reflect more satisfaction with what the government is doing in these areas. In pollution control, Ontario is a leader. For example, it just recently extended control of air pollution with a new act that could become a model for other provinces. _(.See table 2) . 81% of Canadian men currently associate pollution with specific industries, compared with only 66% in 1965. This suggests a greater awareness of pollution as a public issue. There continues pollution with to be low agreement on the industries most responsible no more than 20% mentioning any one industry nationally. The oil industry, while among the top five blamed for pollution, reasonably well in comparison with other major industries. , Automobiles and buses pollution in Canada, are not widely considered 6 "Canadian Attitudes Towards the Oil Industry" fared to be a major source Air/water pollution as a major national issue has It is into focus in the u.s. during recent years. tention devoted recently to at th e grea t ainoun t Of media of communication and government officials at Canadian concern about the problem, for of been brought more sharply reaso~able to assume that pollution by the U.S. mass 11 · a levels will increase - Summer 1965 and SUIIUller1967 -7The most recent indicate: Table 3: siderable data, as reported 72-75% of people living amount of air pollution by Louis Harris7, in cities and suburbs where they live. Table 4: 53-49% of people in cities compared with a few years ago. Table 5: 45% feel that available motor vehicle and suburbs exhaust feel causes feel air from the U.S. there is a con- pollution is worse most air pollution. Table 6: Only 44% would be willing to spend $15 per year in increased taxes to finance a federal program to control air pollution; 46% would op(While not wholly comparable, this question most closely pose s~ch a move. approximates a question used by Imperial, i.e. consider additional government action "absolutely essential" - see table 1. It is interesting to note that the percentage response is also similar -- 44% in the U.S . vs. 47% in Canada.) To the extent there are similarities between U.S. and Canadian opinion, the Harris data are significant. Attitudes toward the existence of air pollution and the feeling that air pollution is worse compared with a few years ago, clearly mirrors increased attention devoted to pollution by U.S. mass media. The fact that automotive pollution, which was not considered a problem a few years ago, is named the number one offender by 45% of the people (compared with 8% in Canada) is affirmation of the impact of the mass media. However, the public attitudes expressed in table 6 are also significant and tend to support the findings of the Canadian Council of Resource Ministers. A majority of the people apparently do not feel strongly enough about air pollution to invest their own tax dollars in the problem. Unfortunately, due to a misunderstanding of basic economics, the public may be far more willing to invest the "profits of big corporations" in pollution control. There is, however, considerable tolerance for polluted air as a necessary part of local industrial operations. In answer to the following question posed by the Harris Survey, 63% agreed, 25% disagreed and 12% were undecided: "It has been argued that if industry is to provide jobs in an area, it is likely to cause some air pollution; therefore, some air pollution has to be put up with. Do you agree with this point of view?" Discussions with probably prevail 7 Louis Harris, various experts in Canada. New York Post, in Imperial July 24, 1967 suggest that similar attitudes -8- MASS MEDIA COVERAGE OF POLLUTION In tne absence of specific public opinion data it is difficult to assess bjectively the impact of the mass media. How;ver, one fact is clear: the anadian press has been devoting a considerable amount of attention to poletion subj~cts. During 1966, 368, an average of about 1.0 per day, signi~n pollution were clipped from the 23 key newspapers monitored ficant stories b; :he I~L ~ub~i: Relations Department. During the first eight months of 961, 33 significant articles were clipped which raises the daily average to .~, a ~0% increase in rate of coverage . The nature and source of the coverage are summarized in table 7. The following is a summary of conclusions which is summarized in table 7: based on a study of the coverage Less than 10% of all pollution coverage in 23 key Canadian newspapers during 1966-67 has been favourable or helpful to industry. Further, most of this coverage appears in financial pages which are not apt to be widely read by the general population. Conversely, 90% of all coverage has been generally unfavourable to industry either directly or indirectly by urging more stringent government regulation. 2. Surprisingly, relatively little pollution coverage is based on actual "pollution events". This category accounted for only 3% of all coverage increased sharply to 23.5% during during 1966; however, this percentage 1967 due to the widespread coverage accorded the Torrey Canyon disaster (55 stories out of a total of 77). 3. Government statements, actions, studies and programs generate about one third of all pollution news coverage. Goverrunent agencies are the big newsmakers in the pollution field. 4. Feature stories "crusading" for of all coverage. 5. Societies and other to ind us try. 6. of pollution d. su rp risingly ' accounted . for only b5.5-7% d. us newspapers are widely read y Cana ian e itors coverage. However, ··arable indirect influence on editorial policy, and probably have c~nsi.el etc in the pollution field. editoria s, ., feature stories, 7. Political 7% of all in Canada U.S. and editorials which tend to be critical of indust:y or more goverrunent regulation account for about one-fifth organizations are generating news which is unfavourable developments, statements and citizen.a:tion~ coverage. Organized citizens compared with the U.S. or complaints account for groups have been far less about active e that a continuation of the present trend of news b. d opinions about the nature, cause and control It is reasonable to assum ult in iase . 1 ht the public, and legislators, e d.itors an d coverage can on Y res about pollution based on the information which of pollution. It is obvious t.a society members will form opinions is most readily available to them. -9- POLLUTION LEGISLATION ANDCONTROL The control of air and water pollution is exercised primarily at the provincial and municipal levels of government under specific legislation and bylaws and broad public health powers. With the exception legislation, most of the key pollution acts at the of t~e ~lbertan provLncial level.h~ve been passed since 1960 (see table 8). All provinces have specific water pollution legislation· however the degree 1 1 . ' ' of actua reg~ ation and control varies considerably. Eight provinces -- New Brunswick and Quebec excepted -- have air pollution legislation (in various forms), Quebec has been considering air pollution legislation for some time, but there has been, as yet, no notice of the introduction of any law. Ontario and Alberta are most advanced in air pollution legislation and control. Ontario, due no doubt in part to the extent of its industrial development and urbanization, has led the way in pollution control. The Ontario Water Resources Commission is doing an aggressive, effective job. More importantly, the Air Pollution Control Act passed this year by the Ontario legislature establishes far reaching powers over the control of atmospheric pollution. The primary features of this act which will probably become a model for other provinces are as follows:8 "Authority to control quiring a certificate new stationary sources of air pollution by reof approval before new sources may be created. '~uthority to control through investigations Minister. and regulate all sources of air pollution by provincial officers and orders of the "Establishment of an Air Pollution Control Advisory Board to review recommendations of a provincial officer and after a hearing to report with its recommendations to the Minister. in the Minister, after inv~stigatioi:i, to "Authority continuance of the discharge of any air contaminant and h . . cases were sue h dl.·scharge creates an immediate to the health of the public and a delay in following cedures under the Act would prejudicially affect the order the disin unusual serious danger the ~sual propublic. · · f or a bard of negotiation to negotiate the settlement "Provision o db · . f hose crops or livestock are damage y air of clal.llls o persons w . pollution resulting in economic loss. 1 d regulate the discharge of air contami. "Author1.ty to contr~i ~n by setting standards of emission and nant~ :rom motor v:ic~e:sto be equipped with systems or devices to requiring motor ve h enission of air contaminants. prevent or lessen t e h ality of fuels that may be used for t e qu 't Y or for industrial processes. "Authority to regulate or electr i c1. heating, generating. s tam e . . ion of air pollution problems and for "Provision for 1.nvest1.gat ams in the field of air pollution. research and educational progr 8 "Pollution Control - Provincia 1" - IOL Law Department, Sept. 18, 196 7 -10"Authority to prescribe the b" to be · con t ro 1 ling, regula t am ing ient air quality criteria use d in the emission of any air· con t ami· na nt or cont amin ant s or . prohibiting the standards thereof. into the outdoor atmosphere an d Provincial control by municipalities." and regulatio n of a;r • pollution rather than While the Act is c ompr ehensive i n all respects, the sections of great' . est signif icanc e ar e. th e new ones wh ich establish speci fi c authority to regu 1ate auto motive emi ssions and transfer al l control to the provinci a l level . The ot her powers had existed either directly or indire c tly i n previous legislation and have been updated and made more specif ic. Under pr ovisions of the Act, Ontario Health Minister Mathew Dymond announced on September 21st that exhaust controls will be mandatory on al l 1969 model automobiles sold in Ontario. He also announced that plans are under way for inspection facilities and roadside spot checks to ensure effective operation of the devices. Although air/water pollution cial and local level, there include: is regulated principally are some areas of federal at the provincontrol. These Pollution problems which involve both Canada and the United States are handled by the International Joint Commission under terms of the Boundary Waters Treaty of 1909. The IJC has been increasingly active in recent years on both air and water pollution "references". Under the Canadian provide for control Shipping Act, regulations have been issued which of oil pollution and emission of smoke from vessels. The Navigable Waters Protection Act of 1952 prohibits the throwing of sawdust, edgings, slates, bark, rubbish, stone, gravel, earth, cinders, ashes into any rivers, streams or other waters, any part of which is navigable or flows into navigable waters. An amendment passed in 1967 places financial responsibility on owners for removal of wrecks or their cargoes. The National Harbours Board issues lution in Canadian harbours. regulations which control pol- The National Energy Board Act provides authority to review the design of pipelines and power to issue regulations to protect the public safety; immediate and follow-up detailed reports on spills are also required. Emissions of smoke from locomotives and other r~ilway installations are regulated by General Order No. 838, issued in Feb~ua:y 1959 under the Railway Act, by the Board of Transport Commissioners of Canada. -11- In addition, the Fisheries Act and Criminal Code apply to pollution specific cases and the Income Tax Act provides for a fast write-off for installation of certain water pollution control equipment. in -12POLITICAL/GOVERNMEN'l'AL AC'I'l. ! r '11 J·.', P ;I) nm If ' In addition to existing 1 i 1 . . ·dr/. to receive considerable atteg s atlon i , • ,,.tt 1·r: i,<1! lution matters continue cials and politicians, U ent on J:rorn po I lt I <.:u1 parties, government offi'i f at a 11 , b y municipaliti p until r<·c ut.:I· 1 J • Y, r0 utl .0n has been regulated stringent regulations and es· Al 1 curr<;nt rlty paaf;ing increasingly from ~ t~ces · The (cd~ru I gov£:rnrnent also has broad authority and responsibil These powers likely will ~ es including in t·<.!r[Jrr1·.tf ncial regulation. e exercised jointly with the provinces concem.ed. The following logical order, and trends: In a plenary the following selected eve t are indicat~v! of of the last 12 rnonths, presented current political/governmental session poli· cy on 0 ctober decisions: 11, 1966' the Liberal Party in chronoactivities adopted · · That a joint feder 1 established to a provincial water.advisory board be immediately with respect to pollution make reconunendations fl oo d control fisheries · · · ' th b ~ , irrigation, etc., with a view to making e est possible use of all the waters of Canada. Tha~ in view of the national dimension of the problem of water polnegotiations be undertaken between the federal and luti?n,.that ~ro~in~ia~ go~ernments to give to the federal government exclusive Jurisdiction in this field. (The provinces will probably continue to reject this as an alternative.) That federal tax incentives as well as water pollution be established for installation control equipment. In the Speech From the Throne, the Water Act to combat pollution and eration of provincial governments, the health of the nation which is contaminants in the air. of air federal government proposed a new Canada indicated that it intends to seek coopuniversities and industries to promote injured by intensifying accwnulation of Jean-Luc Pepin informed a meeting of the On April 11, Resources Minister Association for Great Lakes Research that a new Canada Water Act aimed at federal-provincial cooperation to control water pollution will be presented to parliament in the fall. In addition, the Act will stimulate joint federal-provincial agreement on research, planning and development of water programs. He stated that the Act would be "in the spirit of co-operative federalism". Also in April Prime Minister Lester B. Pearson and Opposition Leader John Diefenbaker in a rare moment of public accord, agreed that a federal-proIn Co~ons, Mr. vincial conference on air pollution should be calle~. uch a Diefenbaker asked whether the government would consider calling earson replied that a conference had been considered Mr. P con f erence. " d d " and that the consideration would be spee e up · 7 askatchewan Water Resources Commission conducted a th e S May , . · d ivi · · dua 1 s an d organizations · · ·ngs to secure views o f in . h series of pub 1 ic. earicorrective i d d d d b measures requ re an stan ar s to e used on water pollution, i 's control program to be established 1a the administration of the prov nee Dur i ng early -13- under a new law passed during the 1967 session of the legislature. On May 5 a National Advisory Council on Water Pollution Control was · · 1 · · Proposed at . a . meeting of provincia resource ministers by Federal Resou:c:s Mini~ter Jean-Luc Pepin. It is expected to be approved by in a meeting this fall. the ministers On June 25th, the B.C. Conservatives at their quarterly policy meeting recommended the creation of a federal pollution research agency to explore the problems of air, water and soil pollution across Canada. On June 29th, Premier Daniel Johnson announced that the Quebec government plans to create a research centre to study the utilization and quality of water, to amend laws concerning water and to launch a campaign to educate the public about the need to conserve water. On July 25th, more than 500 delegates to the Canadian Federation of Mayors and Municipalities unanimously supported federal-provincial programs to reduce pollution of Canada's natural resources and endorsed full use of municipal power to curb litter and halt contamination of air and water. Premier John Robarts of Ontario also announced in July that he will call a provincial pollution control conference in December to cope with air, soil and water pollution problems. The conference, a follow conference~ will be a~tend~d by :epresenup to the Montreal national tatives of government, industry and private agencies, including farm groups. On August 1st, Alberta announced the establishm~nt o: a 64-man prollution control committee under the direction of Health · 1 i v nc ia po h. h · b · · d Minister J. Donovan Ross. The committee, w ic is e~ng organize will look into all aspect~ of air, wate: and into 11 subcommittees It will also consider the possible need for increased · soil pol 1ution. control and new legislation. H 1th Minister Gordon Grant of Saskatchewan Also on August l~t, e~ fa seven-member air pollution advisory of IOL's Regina refinery is a nounced the appointmen committee; A.G. Stewart, manager member. an- ° c p llution Control Board launched a three On September 6th, the B, • ~ tructed the Board to bring in recomins b 1 year stu d Y· Th e government . t the pollution problem by Octo er , mendations for a solutio~ Wot r Resources Minister Ray Williston has 1970. Lands, Forests an a e rts and the Board has been authorized aaked for six month progress rtepol proposals at any time during the . llution con ro . f to make speci ic po t 0 the provincial cabinet. next three years, directly la early September, lollowing resolution: the Progressive Conservative Party adopted the -14T~e Federal Gov~rnment must, in determining priorities for expenditures and actions, give full consideration to the special problems of urb~n areas relating to air, water and land pollution, mass transportation, conservation and recreational facilities in accordance with the future planning requirements of these area~. On September 26th, Premier Louis J, Robichaud outlined the Liberal Party platfonn for the October 23rd general election in New Brunswick. A major plank was a pledge to "carry out aggressive pollution control programs". On October 6th, Mr. Heward Grafftey (Brome-Missisquoi) referred in the House of Cormnons to the build-up of air pollution in Montreal due to the increased automotive traffic caused by the transit strike and asked if the government had speeded up its study of the exhaust control regulations established by Washington "so we could have a national standard as quickly as possible"• Mr. A. J. MacEachen, Minister of National Health and Welfare, replied to the affinnative. In the October 17th election in Ontario, the NDP, which increased its position from 8 to 20 seats and extended its strength in urban areas, offered the following policy statement as a part of its program for a "New Ontario": "New Democrats believe that government should accept the responsibilities brought by progress. That is why a New Democratic goverrunent would be ready with plans to: Protect impure Ontario from pollution water, excessive noise in all its and general forms -- dirty unsightliness.( air, ..• )" on October 24th, Federal Health Minister Allan J. MacEa~hen informed.the Hose of Conunons about the government's plans for a national clean air ac~ to set air quality standards throughout Cana~a. He indicated t~at the federal government must take a lea~ing role.in ~he control of air pollution and must be ready to assist in co-ordinating the work of the er agencies involved. Mr. MacEachen stated that a . . . prov i nces an d o th national clean air act might include. Air quality by an efficient criteria, emissions standards monitoring system. A uniform approach Technical assistance tote h con trol of motor vehicle to provincial control 'f' a ir pollution Researc h into speci h i.c lth livestock, pollution on human ea ' Financial pollution Possible of this program, assistance research, creation° to provinces, f an advisory and their maintenance pollution. agencies. problems (e.g. d effect of ) vegetation an property • universities and others for council. apparently was triggered in part by reaction th" presented on Sunday evening, October program "Air of Dea ' to 22nd. -15On October 26th, the Ontario cabinet proclaimed the Air Pollution Control Act of 1967, more than two months ahead of the original target date of January 1, 1968. This action also appeared to be triggered by reaction to the CBC television program "Air of Death". -16- BUSINESS IMPLICATIONS FO The manner in which Im R IMPERIAL per· 1 pollut ion problems ca h ia and the oil ing and retention of ntop ave eff ect industry handle air and water empla direct on expan, d , i nvestor attit ud es gooyees, the company'markets, profits , r ecru i tb' verrunent rel t' s a ility to grow and pany s overall business an public rel a ions -- in short, the carnations posture. ~nufa cturing d Major capital investment required to cotn ro 1 air and for existing petroleum ansdarechem· t forecas ts were prepared f ica 1 manufactur· . wa er pollution or Jersey's Rf' . ing units. The following e ining Coordination:9 PERIOD 1967/1970 1971/ 1986 Total In addition facilities, to be 10 per ment of $25 requirements $12MMduring AIR - $Ji 10,050 WATER- $M TOTAL- $M 5,560 15,610 28,900 17 ,300 46,200 38,950 22,860 61,810 to the above. the future co~~ve:tment :osts required to improve existing cent of new~ s otr environmental protection are expected .nves ment. Assumi million for the net ng an average annual invest20 would be $50 mill~on. ~ea:s, the total.minimum additional 1960-67.) This compares with expenditures of Marketing ~oduc~ composition will also be affected by pollution requirements. can have a major impact on process invesbnent and operatis, in turn, ing costs. For example, it is estimated that it would cost IOL $250-300 MM in new technology to remove lead from gasoline and sulphur from fuel oil summarizes anticipated effects of pollution trends on key · The folloybng products: Gasoline - The automotive emissions problem continues to attract considerable attention in the U.S. It does not appear to be at the crisis stage in Canada; however, significant pollution of the air by automotive exhausts is a Canadian fact of life and numerous newspcper articles and editorials and statements by government officials have made it a public i1aue. Public pressure to reduce or eliminate lead, and speed up development of automotive gas turbines and the electric car are examples of howpublic relations/government relations aspects may a~f~ct this market. Volatility (possibly after 1971) and hydrocarbon composition may also •• affected. ' problems in the Manufacturing Department 1 "Survey of Pollution Contro Ltd " H, R. Holland, January 30, 196 7 (includes of Imperial Oil Enterprises im·rove both air and water quality for each proposed capital projects to P of Imperial refineries.) forecasts prepared by Technical Services lased in part on product quality of a J'oint meeting of the Technical of IOL Marketing Dept. an d minutes duct Quality committee, Decemb er 20, 1966. """··-,-~ _ __ .......~......-frt:ee and pro -17rbo Fuels - Percentage cont . recently has notribution of jet f anrgeon-General, William H. Stbeen considered ~~ls_t~ pollution is small sue u.s. House Commerce Comm ewart, testified gnificant; however, U.S. th tributors to the nati , it tee that "jet . on August 15, 1967 before con . on s mountin aircraft are significant are a maJ· g air pollution "11 S k i i on landing and takeoff '11 be eve or Visual b · mo e em ss ons lat ter wi n more critical f pu lie relations problem The or SSTs. · Diesel Fuels - Percentage cont 'b . 1 11 h ri ution of d · rela tive Y sma ; owever, diesel f l iesel fuels to pollution is odour problem. Lower sulphur conte~~ (Oar; an especially sensitive visual/ 2 % by 1975), improved smoke supressa nts, and mechanical or chem· · P 1 . d • As gas turbine be reqm.re truck 1.cab exhaust contro 1 devices will probably the pollution factor), increased c~m :c?m~ more popular (due in part to in more press fp tition between diesel and turbine t rucks may result f uel to improve ure or a lower gravity · diese 1 truck economy. ~1 . f. . Furnace Oil - Future changes in th e speci ications for furnace oils will . . be based on competitive activities and ai·r pollut. •d t. in0 cons1 era ions. Sulphur con~ent of E~so Furn ace Oil will drop to 0.4% by 1969-1973 and 0.2% by 19:8. A7r pol;utio~ control legislation could be a significant factor, in IOL s maJor marketing areas -- Montreal, Quebec and Halifax. especially Heavy Fuel Oils - Fuel oil desulphurization (in line with Mr. M. L. Haider' s recent announcement) and more extensive use of lighter grades in blending will be required. By 1985, sulphur content will be restricted to O.5-1.0%. Competitive, non-polluting forms of energy such as nuclear and hydroelectric will be promoted • Solvents - In line eliminate aromatics concerned. with recent California regulations, a requirement to could be imposed. The Canadian paint industry is · d t gents insecticides, pesticides Other products - Fertilizers' e er ' · direct interest will i h. h IOL has a direct or in h ot er pro d ucts n ": ic . d ossibly increased regulation. to come under public scrutiny an P ~her Corporate 0t her corporate considerations. and continue Functions function s are also . tl y affected direc by pollution control f O il and gas production imposed , regulation ° pollution • Due to strict conservation d industry practices' . ' although . by regulatory bodies and enlightenebeen brought under control ~n producing. a the most part, ears· very little is now perproblem, has, for lated for many Y 'b discharged into Brine disposal has been regu en pits and none ~ay ~ions to replace voidage. ~itted to be evaporated in op d to producing orma ulphide is vented i returne i hydrogens t a reams. Most brine s as contain ng field is being delineated Emission problems arise when gcurs when an oil delineation is completed, or flared. This most often y flared)· Once 1 Caas being produced is genera °~ 11 Journal of commerce - August 16 ' 196 7 -18- a gas conservation plant is usuall . clld other products. These pl t Y built which provides marketable gas moderately economic. However, fl aring is permitted ' as lo ng ans.are as it i h gas conservation is definitel s ~ot azardous to the public, when YE';1lle:onomic. There has been some public criticism of this practi ce. mission of 1 . su Ph ur d.ioxi ·d e f romp 1ants th at process non-associ· a t e d gas is also t · 1Y regu 1ate; d IOL d oes s rict ot operate this type f 1 n The .irect 1y i nv~ 1ve.d historic approach to consePant . and . hence . i s no t d. . rvation in oil production has led 1.n many d d . cases to cooperative actions an goo relationships between industry an d t h e government. ° In the transportation and supply field, tanker and pipeline operations h~ve b:en under close ~upervision for some time. IOL is doing a responsible ~ob. All new ships have sewage disposal equipment and studies are being.conducted r~ possibility of installing sewage disposal equipment on five older ships.12 Compliance with existing smoke regulations creates no problems, Imperial tankers ccmply with Jersey's clean seas policy which exceeds requirements of regulations and no major problems are anticipated in complying with possible future regulations re sulphur content of fuels. The Torrey Canyon incident, however, has increased world-wide concern about tankers and the potential problems of spills. The Torrey Canyon incident could lead to increased regulation of all phases of tanker operatio~. Pipelines have also been under attack in the U.S. and Europe and could come under closer Canadian scrutiny. Safety and pollution prevention design features may represent up to 25% of capital costs for some pipeline projects. In addition, facilities future. effective and tankage control in all of evaporation locations will arnia 12 Collingwood, Cornwa11 ' London, S average about $SM per ship. losses from marketing likely be required in the and Windsor. Installation would -19SUMMARY - PUBLIC RELATIONSIMPLICATIONS 1. Air/water pollution all major Canadian fuirther urbanization problem. 2. The petroleum industry is a major contributor to many of the key forms of pollution. This fact is well known by government air pollution control and health officials; however, the Canadian general public, based on IOL public opinion research data, are not unduly critical of oil. This situation could change quite quickly based on a single "major pollution event" or intensified mass media exposure as evidenced by reaction to CBC's "Air of Death". 3. Available public opinion research data on Canadian attitudes is inadequate. Improved and continuing collection of data should be a high priority. Such data might most appropriately be obtained by an industrial association since the information is non-proprietary and would be useful to industry in general. Available Canadian/U.S. information suggests: 4. 5. 6. 7. in Canada is an actual or potential problem in cities. Trends toward increased population and will complicate, extend and intensify this a. Pollution is an important public relations b. Automotive emissions public as a principal c. There is no urgent public demand to make pollution high priority for the allocation of public funds. d. There is some built-in tolerance for a degree of industrial air pollution which is considered acceptable in return for the benefits of industry. are receiving increased source of pollution. problem. attention by the control a The mass media are devoting increasing coverage to pollution. During 1966, an average of one significant story pe: day wa~ clipped from 23 key Canadian newspapers by IOL Public Rela~ions. The average has increased 40% to a rate of 1.4 per da~ during_ the first eight months of 1967 and will pr~bably continue t~ in. erage is unfavourable to industry by a ratio of Th is crease. cov b · · f t· ·1 bl to ri~g in or~a ionb a vai a e It is obviously desirable about 9 :l. . a 1ance. to editors, 1egis· 1a tors and the general public more into t of political/governmental activity directed Trends point toward There is a growinr a.i;ou~ and water pollution. O ~ir d trol with authority and responsibitoward the contro t . t regulation an con f icipalities to provinces. The federal mores ringen lity being t~alnls!~:~edpla;o: :~~e active role. government wi harged with emotion and one character. hl c . · h" makes opinions · · · a n area hig dYrational Po 11 ut i on is guidelines. Tis k of data an . ize db ya 1ac public opinion especially important. and the status of b oliticians and mass media is out of Y p Kerryn King, vice president of emPublic opinion, catalyzed control in the United States,t Texaco sums up the situation in ployee and public relations a ' -20t his way: " Consequently · , a maJor public relations problem facing the oil ind u s try, along with everyone else concerned with air and water con servation , is the fact that public and official concern and demands for action are increasing more rapidly than the actual gr owth of the problem and more rapidly than the ability of all le vels of goverrunent and industry to deal with it. 11 13 A s imi l ar s i tu ati on could happen in Cana da . (At pre sent, gov ern ment o f f icia l s and mass media appear to be ahead of public opinion . ) 8. The manner in which I mperial and the oil industry handle air and water pollution problems can have a direct effect on the company's markets, costs, profits and overall business and public relations posture. Investments of more than $100MMto control air/water pollution in manufacturing over the next 20 years and the prospect of profound effects on major product lines (investments of $250-$300MM to remove lead from gasoline and sulphur from fuel oil alone) are involved. Other functions such as producing and transportation will also be affected. Publicity concerning air/water pollution and possible restrictions on products such as gasoline, fuel oil, etc., can influence employee attitudes towards the future of the oil industry. This ~ill affect recruiting, morale and employee turnover. The same publicity can have an adverse effect on shareholder and investor attitudes. Due to continuing exposure to stories in the mass media, the general public could easily be persuaded to support increased pollution regulation and legislation. It could be encouraged to support the electric car, nuclear energy and other tech~ology favouring competitive fuels. A failure to handle the publi~ · t of this problem effectively could in relations aspec s . t·t result d chronic, difficult-to-change anti-oil industry at i u es. 9. · A public relati~~sc~r~; taking. The su Je 0 f it effective, because volume of coverage,h. preferable one in w ic active part. ram in pollution is not a simple undernegative by definition. Further, to be th 9·1 unfavourable news ratio and sheer m~st.be a program of considerable scope, h 0 ther companies and associations take an cannot be a substitute for good perforA a responsible corporate citizen, program 10. A public relations area. d sliberately mance int h e po llution want to harm human h eat1 h , ly would not e A Imperial obv i ous ld life or other Canadian resources. t property' vegetation' wi gram can only help to keep public and best a public relations pro that increased pollution control , i in contro 1 so ate functions can proceed on an legislative opin on measures affecting all corporble ba~is A properly planned and · orderly, econom i can d reasona 13 Public Relatiion~ Water Pollut on Journal, July _ page 12 1967 _ "Crisis of Concern: Air and -21executed public relations program might also help to retain and further improve Imperial's corporate reputation and position of leadership in Canadian industry. It is recommended that IOL develop and undertake such a program. TABLE 1 Consider Additional Gover nment Action "Absoluteli Essentia l" fo r : AutoAir and MiniMistreatmobile Water mum ment of Safety Child Pollution Wages Anima ls Features Welfare 1967 1965 1967 1965 1967 1965 1967 1965 1967 1965 ---% lo lo % lo % % lo % % -- All Canada Mari times ee -- 35 40 34 35 31 32 12 16 44 27 48 25 39 26 35 20 19 6 Quebec 60 58 44 65 41 52 40 51 14 19 Ontario 39 50 25 35 28 30 24 28 11 19 Prairies 41 30 37 24 34 25 29 21 7 16 British Columbia 54 45 35 28 28 30 37 28 11 8 Source: "Canadian Attitudes Towards the Oil Industry" - Summer, 196 7 r TABLE 2 ssociate air and water pollution with some industries more than others 1967 Percent of Canadian Men All MariOntCanada times Quebec ario Prairies % lo % % - British Columbia lo lo @ 83 83 78 76 88 66 62 60 71 63 79 1967 1965 19 20 32 29 19 20 12 19 11 6 49 38 1967 1965 15 15 6 10 11 16 22 17 16 14 7 8 1967 1965 13 11 6 16 6 7 22 17 5 6 19 9 1967 1965 etc. ewage, garbage, 1967 1965 and buses tomobiles 1967 1965 12 11 6 4 18 12 7 8 20 23 6 4 12 8 16 5 12 7 11 10 8 12 13 8 5 5 1 15 4 4 5 5 10 6 1965 ssociate air and water pollution with: per industry hemical teel il plants industry industry urce: . "Canadian Attitudes Towards 8 8 the Oil Industry" - Summer, 1967 TABLE 3 "Fr om what ' u n 1w l'r h tvt po llution ar un