Submission on Boarding Houses

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Amanda Bresnan MLA ACT Greens Health Spokesperson Member for Brindabella

Addressing Wood Heater Pollution in the ACT

Exposure Draft Legislation: Environment and Construction Occupations Legislation (Wood Heaters) Amendment Bill 2012 Consultation Paper 1 June 2012

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Consultation

TheACTGreensareseekingfeedbackondraftlegislation:theEnvironmentandConstructionOccupationsLegislation(WoodHeaters)AmendmentBill.Membersofthepublic,retailers,industryandanyotherinterestedpartiesareencouragedtocomment.HowtoMakeaSubmissionEmail:Bresnan@parliament.act.gov.auMail:AmandaBresnanMLAACTLegislativeAssemblyGPOBox1020CanberraACT2601Closingdateforsubmissionsiscloseofbusiness,17August2012.Pleaseincludeyournameandthenameofyourorganisation(ifany)withallsubmissions.Pleasespecifyifyoudonotwantyourresponsetobepubliclyavailable.

Anelectroniccopyofthedraftlegislation,andthisdiscussionpaperisavailableat:

http://www.legislation.act.gov.au/ed/db_45134/default.asp

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SummaryoftheDraftBillandConsultationPaper

TheACTGreenshavereleaseddraftlegislationcalledtheEnvironmentandConstructionOccupationsLegislation(WoodHeaters)AmendmentBillforcommunityconsultation.ThechangesproposedinthedraftlegislationareintendedtoreducetheproblemsassociatedwithpollutionfromwoodheatersintheACT.KEYPOINTS

ThedraftBilldoesNOTbanwoodheatersorrequireanyonetoreplaceexistingwoodheaters.

ThedraftBillwouldestablishnew,stricteremissionsandefficiency

standardsthatwoodheatersmustmeetbeforetheycanbesoldintheACTorinstalledinanACTresidence.

Overtimethiswouldmakeanimportantcontributiontoreducingthe

particulatepollutioncreatedbywoodheatersintheACT,aswellastheamountofwoodneededforfuel.

ThestandardswouldbringtheACTinlinewithjurisdictionsthatareleadingthewayinreducingwoodsmokepollutiontohelpaddresshealthandenvironmentalproblems.

o Theproposed1g/kgemissionsstandardwouldreduceparticulateemissionsperkgofwoodburnedfromtheaveragenewwoodheaterbyapproximately34%;

o The65%efficiencystandardwouldreducetotalwooduseover15yearsbyabout10%;

o Thecombined1g/kgemissionsstandardand65%efficiencystandardwouldreduceparticulatematterpollutionover15yearsbyupto65%.

Themeasuresarenecessarybecauseof:

Thenegativehealthimpactscausedbywoodsmokepollution.

o 70%ofparticulatematterpollutioninCanberracomesfromwoodheaters–whichislinkedtolungdisease,heartdiseaseandotherserioushealthproblems.

Thenegativeenvironmentalimpactscausedbywoodpollution.

o Themethaneandsootinwoodsmokeisanacuteproblemcontributingtoclimatechange.

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o Firewooduseimpactsonbiodiversityandendangeredwoodlands,withonly5%offirewoodsoldtotheACTcomingfromsustainableplantations.

Canberraissusceptibletowoodsmokepollutionproblems.

o Particulatematterlevelsinwinterare3timeshigherthanthe

warmermonths,andincreasetoadegreesignificantenoughtocauseshortandlongtermhealthproblemsforthepopulation.

RegulationofwoodheatersintheACT(andnationally)remains

inadequate.

o Thenationalemissionsstandardforwoodheatersallows4timesasmuchpollutionastheleadingjurisdictions,andthereisnonationalefficiencystandardatall.

Thisconsultationpaperrecommendsadditionalmeasuresforaddressingwoodsmokepollution,including:

o Introducingmobileairqualitymonitoringtoinformandimproveresponsestothepollutionproblem;

o Improvinglocalenforcementoptionstoensurepeopleusewoodheaterscorrectly;

o ImprovingthewayairqualitydataandthehealtheffectsofwoodsmokearecommunicatedtoCanberrans;

o Expandingthewoodheaterreplacementprogramtoincludelowemissionselectricheating,andanincreasedsubsidy.

Thisconsultationpapersuggestsseveraladditionalmeasuresforcommunitydiscussion,including:

o Ensuringallnewwoodheatersaresoldwithinformationaboutthehealthimpactsofwoodsmoke;

o Phasingoutnon‐compliantwoodheatersbysettingadatebywhichallwoodheatersintheACTmustmeetastandard;

o Phasingoutnon‐compliantwoodheatersbyrequiringtheirremovaluponthesaleofthepremises;

o Allowingtheinstallationofnewwoodheatersonlywhentheyarereplacingexistingwoodheaters,untilsuchtimeasanewhealth‐basedstandardhasbeendevelopedforreal‐lifeemissions;

o Usingmarketmechanismstoreducewoodheateremissions,suchasasalestaxorlicensingofwoodheaters.

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1. Whyisthislegislationneeded?

1.1 HealthImpactsofWoodSmokeTheprimarymotivationforproposingthislegislationistoreducethenegativehealthimpactscausedbywoodsmokepollutioninCanberra.Woodsmokecontainsparticlematterpollution,alsocalledPM10(fine)andPM2.5(ultrafine).PM2.5isnowconsideredthemosthealth‐hazardousformofairpollution,anditisthoughttoberesponsibleforabout20timesasmanyprematuredeathsasthenextworstpollutant,ozone.1WoodheatersareresponsibleforthemajorityofPMpollutioninCanberra.In2010/11theyproducedover70%ofPMpollution(theremaindermostlycomesfrommotorvehicles).2ItiswellestablishedthatPMpollutionhasseriousimpactsonhumanhealth,3including:

increasedmortality,particularlyrespiratoryandcardiovasculardiseases;

inflammationoflungs; increasedrespiratoryillnesssuchas

bronchitisandasthma; adverseeffectsoncardiovascularsystem; increasedmedicationuseandhospitalisation.

TherisksfromPMpollutionarehighestforchildren,olderpeople,andpeoplewithheartdiseaseoralungdisorder.4Itisestimatedthat1in5Australiansalreadyhavealungdisorder(includingasthma,chronicbronchitisandemphysema).5RecentAustralianresearchhasdemonstratedadirectlink

1DepartmentofEnvironment,ClimateChangeandWaterNSW,ActionforAir:Update2009,2009,http://www.environment.nsw.gov.au/resources/air/actionforair/09712ActionforAir.pdf2NationalPollutionInventory,2010‐11(http://www.npi.gov.au)3Forexample,see:DepartmentofEnvironmentandHeritage,AustralianGovernmentHealthImpactsofUltrafineParticles:DesktopLiteratureReviewandAnalysis,2004(http://www.environment.gov.au/atmosphere/airquality/publications/health‐impacts/pubs/health‐impacts.pdf)4Forexample,researchshowsthatchildrenwhogrowupwithairpollution(includingPM2.5andelementalcarbon)arelesslikelytodevelopfulllungfunction:WGauderman,etal,“AssociationbetweenAirPollutionandLungFunctionGrowthinSouthernCaliforniaChildren:resultsfromasecondcohort”AmJRespirCritCareMed166,(2002),76;WGaudermanetal,“Theeffectofairpollutiononlungdevelopmentfrom10to18yearsofage”(2004)NEJM351,10575DrJamesMarkos,AustralianLungFoundation,SubmissiontoReviewoftheNationalEnvironmentProtection(AmbientAirQuality)Measure–AirQualityStandardsDiscussionPaper,2010,http://www.lungfoundation.com.au/images/stories/docs/education/AAQ_NEPM_submission.pdf

“Particlepollutionfromallsources,andespeciallyfromwoodsmoke,isharmfultoourlungs....Overmanyyears,exposurehassimilarlong‐termconsequencestoenvironmentaltobaccosmoke,includingtheriskoflungcancerandheartdisease.”–DrJamesMarkos,AustralianLungFoundation

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betweenparticlematterpollutioncausedbydomesticwoodheatersandrespiratoryillnesses.6Numerousinternationalscientificandmedicalstudieshavealsoidentifiedarangeofotherpotentialimpactsofwoodsmokeonhumanhealth,including:

IncreasedriskoflungcancerduetoDNAdamagecausedbycompoundsinwoodsmokecalled‘polycyclicaromatichydrocarbons’(PAH);7

Increasedcognitivedecline,duetoparticulatepollutionenteringthebrain;8

Increasedriskofstrokeevenfromexposuretoparticulatematterpollutionatlevelsthataregenerallypermittedbyauthorities;9

Geneticandepigeneticdamageinbabiesandyoungchildren,andincreasedrisksofattention/hyperactivityproblems,anxietyandasthmaduetoexposuretoPAH.10

Forresidentswholiveinthevicinityofwoodsmoke,itisveryhardtoavoidPMpollution.TheparticlesinPM2.5pollutionaresosmallthatitisverydifficulttokeepoutofpeople’shouses.Thehealthimpactofwoodsmokehasacorrespondingeconomicimpact.TheannualhealthcostofwoodheateremissionsintheACTisestimatedat$56million.11ArecenteconomicanalysiscommissionedbytheNSWGovernmentconcludedthatuseofwoodheatersinNSWentailscostsofmorethan$8billion‐morethan$22,000foreverywoodheaterinthestateoveritsanticipatedyearsofuse.12Thesehealthcostsareextremelyhighbecauseofthelimitedprogressinreducingwoodheateremissionscomparedtoothersourcesofpollution.Overthepast20years,asresearchhasshownthatthehealtheffectsofPM2.5pollutionaremuchmoreseriousthanpreviouslybelieved,newstandardshave

6ThestudyshowedhowthenumberofGPrespiratorycaseswasrelatedtothelevelofparticulatepollution:LKhan,KParton,DHoward,“EconomicCostofParticulateAirPollutioninArmidale:ClinicalEventSurvey”(2007)EnvironmentalHealth7(2),117PernilleHøghDanielsen,etal,“Oxidativestress,DNAdamage,andinflammationinducedbyambientairandwoodsmokeparticulatematterinhumanA549andTHP‐1celllines”(2011),ChemicalResearchinToxicology,24(2),1688JenniferWeuve,etal,“ExposuretoParticulateAirPollutionandCognitiveDeclineinOlderWomen”(2012),ArchInternMed172(3),2199GregoryA.Wellenius,etal,“AmbientAirPollutionandtheRiskofAcuteIschemicStroke”(2012)ArchInternMed172(3),22910FPPerera,etal“PAH/AromaticDNAAdductsinCordBloodandBehaviorScoresinNewYorkCityChildren”(2011)EnvironHealthPerspecthttp://ehp03.niehs.nih.gov/article/info:doi/10.1289/ehp.1002705;FPPerera,etal“RelationofDNAMethylationof5‐CpGIslandofACSL3toTransplacentalExposuretoAirbornePolycyclicAromaticHydrocarbonsandChildhoodAsthma”(2009).PLoSONE4(2):e4488.doi:10.1371/journal.pone.000448811DLRobinson,“AirpollutioninAustralia:reviewofcosts,sourcesandpotentialsolutions”(2005),HealthPromotionJournalofAustralia16(3),213.Estimationsofthehealthimpactvary.AfederalGovernmentscopingpaperonwoodheatersalsosaidthatthehealthimpactsarisingfromwoodheaterparticleemissionsare‘conservativelyestimatedtobe$190millionperannum’:EnvironmentProtectionHeritageCouncilBriefingDocument,NationalApproachtoReducingWoodheaterEmissionsScopingPaperonRegulatoryOptions(ReproducedatAustralianAirQualityGroupWebsite:http://tinyurl.com/7omeon4)12Economicappraisalofwoodsmokecontrolmeasures,ReportbyAECOMcommissionedbytheNSWGovernment,2011http://www.environment.nsw.gov.au/resources/air/WoodsmokeControlReport.pdf

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beenintroducedforvehicleemissions.13Thesehavenotbeenmatchedforwoodheaters,despitetheaveragewoodheaterintheACTemitting46kgofPM2.5peryear‐asmuchas460newdieselcarseachtravelling20,000km.141.1.1 Statementsfromexpertsaboutthehealthimpactsofwoodsmoke

13Forexample,theEuro5standardof0.005g/kmrequiresadieselcartravelling20,000kmperyeartoemitjust0.1kgofPM2.5:http://en.wikipedia.org/wiki/European_emission_standards14DRobinson,Australianwoodheaterscurrentlyincreaseglobalwarmingandhealthcosts(2011),AtmosphericPollutionResearch2,267

“Woodsmokecontainsparticulatematterandgaseouspollutantssuchascarbonmonoxideandoxidesofnitrogenwhichadverselyaffectrespiratoryhealth.WoodsmokeexposurecancauseacuteexacerbationsinpeoplewithasthmaandChronicObstructivePulmonaryDisease.Further,woodsmokeexposurecaninitiatecoughandchronicbronchitisandalsomayaffectthenormallungdevelopmentinchildren.MinimizingwoodsmokeexposureforAustraliancommunitieswillhaveapositiveimpactoncurrent&futurehealthofthosecommunities.”ProfessorRichardRuffinAM,EmeritusProfessorofMedicine,UniversityofAdelaide

“Smokefromwoodfirescanhaveasignificanthealthimpactparticularlyinpeoplewithpre‐existinglungconditions.Pollutionadverselyaffectsasthmatics,particularlychildren,anditalsohasasignificantimpactonpeoplewithEmphysemaandChronicBronchitis(COPD).ThiseffectonCOPDwasverywellshowninLauncestonandreducingthenumberofwoodfirestherehasbeenofsignificantbenefit.ItwouldbegoodifwecoulddothesameintheACT.”DrMarkHurwitz,ClinicalAssociateProfessorandDirectorofRespiratoryandSleepMedicineatTheCanberraHospital

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Iam73yearsoldandsufferfromC.O.P.D.(ChronicObstructivePulmonaryDisease).Iamonhomeoxygenforapproximately16‐18hoursaday.IleadasfullalifeaspossibleinordertoremainconnectedtothecommunityanditisimportantgivenmylungconditionthatIremainasactiveaspossibleinordertokeepmylungsfunctioningtoalevelthatwillmakemylifeliveableandmaintainmyindependence.However,manyoftheactivitiesIenjoyinsummerarecurtailedinwinter,whichinturnhasanadverseeffectonmyhealth.Duetothepollutionduringwinterandinparticular,woodsmoke,mybreathingdifficultiesareexacerbated.Thereareanumberofhomesusingwoodheatinginmyarea,whichmeansthatIcan’tleavewindowsopeninmyhousebecausesmoke,evenifIcan’tseeit,isevidentbymylimitedbreathingcapacity.ThereforeIneedtousemoreoxygen,viaanoxygenconcentrator,inordertobreathe.ThisincreaseddependenceonoxygenlimitsthetimeIcanbeawayfromhome,andseriouslylimitsmysocialcontacts....ToquotetheLungFoundation;“Whenyoucan’tbreathe,nothingelsematters”.Tuggeranongresident

1.1.2 StatementsfromCanberransaboutthehealthimpactsofwoodsmoke

“Smokefromwoodheaters…isarealandsignificanthealthhazard…[we]recommendusingalternativemethodsforclimatecontrol.”TheAustralianLungFoundation

“Exposuretowoodsmokecancausesignificantbreathingproblemsforpeoplewithasthma.Wesupportworkingwiththecommunitytominimiseexposuretowoodsmoketohelppeoplebreathebetter.”DebraKay,CEOAsthmaAustralia

Submission on Boarding Houses

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“AsachildandteenagerIhadsarcoidosisofthelungsleadingtootherlong‐termhealthissuesbestdealtwithbyhealthyliving.AsoftenaspossibleIliketoexerciseinfresh‐air.Inthemid1970’sImovedtotheTuggeranongValleywithitsmountainviewsandcleanair.Now,undercertainatmosphericconditions,thesmellofwoodsmokeisacrid.DuringthewoodsmokeseasonIexperiencecoarseirritationandburningsensationsintheupperrespiratorytract,sinusandeyes.Thisnoticeablydisruptsmysocialactivities,readingandwork.Thesootyparticlesalsodepositontheroofandbonnetofmycar.”Tuggeranongresident

“Ourmembersareparticularlyaffectedbyairpollutioninthecoolermonths.Thesmellofwoodsmokemakesithardtobreathe,andlimitsthetimeourmemberscanbeoutsideandtheactivitiestheycanbeinvolvedin.Whentheirbreathingisaffectedbysmoke,itcanbehardforthemtolookaftertheiractiveyoungchildrenorgrandchildren.Inmostcasesinourgroup,peopleaffectedbywoodsmokehavemodifiedtheirlives,sealedtheirhousesaswellastheycan,andlimitedtheactivitiestheydo.Butthatshouldn'thavetohappen.Itisaworrytousthatwoodsmokeaffectsthelungssothattheyarenotworkingaseffectively.Wealsoknowthateachtimeweareaffected‐andmaybeevenhospitalised‐ourlungfunctiondecreases.Wealreadyhavebreathingdifficultiesanddonotwanttoexacerbateit.”StatementfromtheCanberraLungLifeSupportGroup

Woodfiresmokemakesmefeelunwell.IliveinCampbellandmosthomesintheneighbourhoodhavechimneyswhichbeltoutsmokeonanyAutumnandWinternight.WhatIhatemostiswakingupinthemiddleofthenightcoughingand/orhavinganasthmaattackasthesmokeentersmyhome.Thishappenseverytimeoneofmyneighbourslightstheirfire.Mychildsuffersfromasthmaandallergiesandheisaffectedaswell;hiseyesinparticularburnandsting.IamnotabletosealmyhomeandmakeitairtightsoIhavenochanceofkeepingthesmokeout.ThesmokeinvadesmywholebedroomandsometimesIcansmellitonmysoftfurnishings,bedding,clothesandtowelsfordaysafter.Icancompareittohavingasmokerinmyhome,itisthatunpleasant!Campbellresident

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1.2 CanberraissusceptibletowoodsmokepollutionproblemsAsaninlandregionwithpopulatedvalleys,coldwinters,andasignificantnumberofresidentialwoodheaters,Canberraisparticularlyaffectedbywoodsmokepollution.InareasliketheTuggeranongValleywoodsmokebecomestrappedbytemperatureinversionswhichcausesittolingerclosetothegroundandincreasesitsconcentration.TheNationalEnvironmentProtectionCouncil,whichistheFederalbodyresponsibleforairquality,acceptsthatCanberrahasawinterparticlepollutionproblemduetowoodheateremissions.15ThisisclearlydemonstratedbycontinuedPM2.5monitoring,whichshowsparticlelevelsduringthecoldermonthsoftheyearareabout3timeshigherthanthewarmermonths.16DuetothetoxicityofPMpollution,thisincreaseisenoughtocauseseriousimpactsonCanberrans’health.A2012studyindicatedthatincreasingPM2.5concentrationsby3microgramspercubicmeterofair(approximatelythesameamountasCanberra’sincreasesduringwintermonths)wasassociatedwitha9%increaseindeathsfromischemicheartdiseaseand3‐4.5%increaseinalldeaths.17 AnalysesoftheairinTuggeranong(fromtheMonashairmonitoringstation)alsoshowthattheadvisorystandardsforPM2.5andPM10pollution18havebeenexceededonnumerousoccasionsduetowoodsmokepollution.19Although,Canberra’sstationaryairmonitoringstationsrecordagenerallygoodlevelofairquality,thereareparticularlocationsthatarepollution‘hotspots’duetohighernumbersofwoodheatersandnearbytopographythatpreventsthedispersalofsmoke.InordertogetthefullpictureofPMpollutioninCanberra,theACTGovernmentshouldalsoemploymobileairmonitoringtoestablishpatternsofairpollutionandidentifypotentialhotspots.Thiscanbedoneusingamobilenephelometer(ameasuringdeviceforPMpollution),whichcanbeattachedtoacar.

15NEPC,AnnualReport2007‐08,p192.16HowardBridgmanforACTHealth,PreliminaryAssessmentofWintertimeAirQualityintheTuggeranongValley,ACT,December21,200917DCrouse,etal,“RiskofNon‐accidentalandCardiovascularMortalityinRelationtoLong‐termExposuretoLowConcentrationsofFineParticulateMatter:ACanadianNational‐levelCohortStudy”(2012)EnvironHealthPerspect120(5).NotethatQebec,Canada,hasasimilarcompositionofPM2.5pollutiontoCanberra,suggeststhatsimilarchangestomortalitycouldbeexpectedinCanberraduetowoodheaters.18Thestandardsarecalledthe‘NationalEnvironmentProtectionMeasures’andaresetbyaFederalbodycalledtheNationalEnvironmentalProtectionCouncil.19Seeforexample:HowardBridgmanforACTHealth,PreliminaryAssessmentofWintertimeAirQualityintheTuggeranongValley,ACT,December21,2009;NEPC,AnnualReport2007‐08,p192;NEPCAnnualReport2009‐10,p196.Exceedancesinclude11in2009and5in2007.

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Mobilemonitoringwillprovidemoremeaningfulspatialpollutioninformation,whichcanbeusedtoinformpolicyresponsestowoodsmokeproblems.Itcouldinformthegovernmentaboutthebestareastotargeteducationcampaigns.If(asdiscussedbelow)theACTadoptsadditionalcontrolsonwoodheaters,suchasrestrictingtheirinstallationinparticularareas,thisspatialpollutiondatawillguidethesepolicies.Asdiscussedbelow,theinitiativesproposedinthedraftlegislation(increasingtheefficiencyandemissionstandardsofwoodheaters)wouldsignificantlyreducetheparticulateemissionsfromwoodheatersintheACT,withacorrespondingimprovementtoCanberrans’health.

1.3 EnvironmentalImpactsofWoodHeaters1.3.1 WoodheateremissionsareashorttermclimateforcerIntroducingtheemissionsandefficiencystandardsproposedinthedraftlegislationwouldmakeimportantimprovementstotheenvironmentalproblemscausedbywoodheaters.Primarily,theseimprovementsareareductionintheamountofgreenhousegasesemitted(includingemissionsthatcauserapidatmosphericwarming)andareductionintheamountofwoodrequiredforfuel.

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Itissometimesclaimedthatcomparedtoothertypesofheating,woodheaterscontributelesstoatmospherictemperaturerise,andthereforewillcauselessclimatechangeimpacts.However,therelationshipofwoodheaterstoclimatechangeiscomplex.Itdependsonvariousfactorssuchaswherethewoodissourced,theefficiencyofthewoodheater,andthelevelofemissionsofthedifferentkindsofgreenhousegases.CO2istheprincipalgreenhousegas.Iffirewoodisonlyharvestedfromasustainablesource,itcanbeconsideredtobeCO2neutral.Unfortunately,most

firewoodintheACTdoesnotcomefromsustainablesources(seebelow).Inaddition,withoutanexistingstandardforwoodheaterefficiency,manyheatersrequirealargeamountofwood,whichamplifiestheircontributiontoCO2emissions.InadditiontoCO2,woodheatersproduceblackcarbon(orsoot)andmethane.Theseareknownas‘short‐livedclimateforcers’.Anewunderstandinghasemergedabouttheseriousimpacttheseemissionshaveonglobalwarming.Themainproblemisthattheycauserapidchangestotemperature,pushingtheclimatetowardsdangeroustippingpointsbeforewehaveachancetoreducelongertermgreenhousegasessuchasCO2.A2009studyindicatedthatblackcarbonemissionsfromindustry,cars,farmingandwoodfuelburninghavebeenresponsibleforhalfthetotaltemperatureincreasesintheArcticinthelast130years.20ASwedishstudyfound

thatmethaneemissionsfromolder–styleSwedishwood–heaters(similartonewerwoodheatersinAustralia)couldcauseuptotwiceasmuchglobalwarmingasusingoil–fuelledheating.21Climatescientistsarenowcallingforurgentactiontocurbemissionsfromblackcarbonandmethanebecauseitwillhavearapideffecttoreduceanddelaytemperaturerises.22A2011UnitedNationsreportfocusedontheimportanceofreducingshortlivedclimateforcers‐especiallyblackcarbonandmethane–andassessedover2,000measures.Itrecommended16keyactions,includingphasingoutwoodheatersthatburnlogs(comparedtowoodpelletswhichburn

20JohnVidal,“AlGorecallsonworldtoburnlesswoodandfueltocurb'blackcarbon'”,TheGuardian,28April2009,http://www.guardian.co.uk/environment/2009/apr/28/black‐carbon‐emissions21LSJohanssonetal,“Emissioncharacteristicsofmodernandold–typeresidentialboilersfiredwithwoodlogsandwoodpellets”(2004),AtmosphericEnvironment38,4183Citedin:DRobinson,Australianwoodheaterscurrentlyincreaseglobalwarmingandhealthcosts(2011),AtmosphericPollutionResearch2,267.22Above,n19,JohnVidal.

TheUnitedNationsrecommendedurgentactionon‘shorttermclimateforcers’suchas

blackcarbonandmethaneemissions,inordertoprevent

dangerous,rapidglobalwarming.

Oneofitskey

recommendationsistophaseoutwood‐burning

technologyinindustrialisedcountries

likeAustralia.

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muchmorecleanly)inindustrialisedcountrieslikeAustralia.23Thereportalsorecognisedthepublichealthbenefitsoftakingthisaction.Accordingtothereport,implementingthese16measurestoaddressblackcarbonandmethaneemissionscouldslowtheincreaseinneartermglobalwarmingbyaround0.4°Cby2050.Thegraphbelowshowshowimplementingmeasurestoreducemethaneandblackcarbon(suchaslimitingwoodheateremissions)isacriticalsteptodelaytemperaturerisesandallowtimetoreducelongerlivedpollutantssuchasCO2.Withoutthesemeasures,theplanetislikelytowarmbeyond2°Cby2050,whichriskstriggering‘tippingpoints’suchasthelossofpolarandalpineenvironmentsandthemeltingofpermafrost.24Asdiscussedbelow,theefficiencyandemissionsstandardsproposedinthedraftlegislationwillmakeanimportantdifferenceinreducingboththeCO2emissionsandthe‘shorttermclimateforcers’emittedbywoodheaters.

1.3.2 BiodiversityimpactsofusingwoodforfuelInadditiontoemittinggreenhousegases,usingwoodforfuelhasanegativeimpactonbiodiversity.AminorityoffirewoodusedintheACTcomesfromsustainablesources.AmajorsourceforACTfirewoodiswoodlands.25WoodlandsaresomeofAustralia’smostthreatenedecologicalcommunities,particularlyasmosthavealreadybeenextensivelyclearedforagricultureandhaveslowgrowthrates.Usingtimbersharvestedfromsustainablehardwood23UnitedNationsEnvironmentProgram,Near‐termClimateProtectionandCleanAirBenefits:ActionsforControllingShort‐LivedClimateForcers,201124Keepingtheglobaltemperatureatlessthana2degreeriseisthegoalsetbyclimatenegotiatorsinCopenhagen,2009,asameanstoavoidthemostdevastatingeffectsofglobalwarming.Someclimate scientistssuchasJamesHansenarguethatthisisinsufficienttopreventdevastatingclimateimpactsandweneedtolimitwarmingevenfurther.25DonDriscolletal,ImpactandUseofFirewoodinAustralia,2000,p14

Effectofproposedmeasurestoreducemethane&blackcarbon

EffectofmeasurestoreduceCO2 Noaction

ProjectionsforglobaltemperatureºC

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plantations(orother‘wastewood’suchasresiduesfromeucalyptforestryoperations)isanimportantwaytoreducetheimpactonwoodlandcommunities,aswellasreducingtheoverallgreenhouseimpactofusingwoodasfuel.TheACTCommissionerforSustainabilityandtheEnvironmentreportedin2007thatonly5%ofthealmost13000tonnesoffirewoodsoldtotheACTwasplantationtimber.40%wassalvagedtimber.55%wasnonplantationtimber.26Mostofthenon‐plantationtimberforfirewoodusedintheACTissourcedfromoutsidetheACT,particularlyfromwesternandsouth‐easternNSW.27Individualfirewoodcollectionbyconsumersalsothreatensbiodiversity.Removingdeadwoodisrecognisedasaseriousecologicalproblemasitdestroysessentialhabitatforavarietyofnativeanimals.InAustraliaabout290vertebratespeciesusetreehollows.Suitablehollowscantakebetween120and200yearstoformineucalypts.Removingdeadwoodalsodamagesthesoilbyremovingnutrientsthatareimportanttoitshealthandtheecosystem.28In2005,theFederalThreatenedSpeciesScientificCommitteerecommendedthatthe‘continuinglossofnativehollow‐bearingtreesandcoarsewoodydebrisduetofirewoodharvestingpractices'belistedasa‘KeyThreateningProcess’undertheEnvironmentProtectionandBiodiversityConservationAct1999.Despitethisrecommendation,thethenFederalMinisterfortheEnvironmentandHeritagedidnotagreetothischange,statingthattheexistingmechanismsinplaceweresufficient.29

26http://www.environmentcommissioner.act.gov.au/publications/soe/2007actreport/indicators/harvestingnativespecies0727http://www.environmentcommissioner.act.gov.au/publications/soe/2007actreport/indicators/harvestingnativespecies0728NSWGovernment,RemovalofDeadWoodasaKeyThreateningProcess,AnOverview,http://www.environment.nsw.gov.au/resources/nature/factsheetKtpDeadwoodRemoval.pdf29http://www.environment.gov.au/biodiversity/threatened/ktp/firewood‐harvesting.html

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Manyfirewoodmerchantshavesigneduptoa‘VoluntaryCodeofPracticeforFirewoodMerchants’designedtoimprovethesustainabilityoftheindustry(thoughthisprogramendedin2011).Therearestillanumberofimprovementstobemade,particularlyinsourcingwoodfromsustainablesources,andthiswillrequireanincreaseintheamountofsustainableplantations.Inthemeantime,astrictefficiencystandard–asproposedinthedraftlegislation–willassistinminimisingtheamountofwoodthatisusedinwoodheaters.1.4 RegulationofwoodheatersintheACT(andnationally)remainsinadequate1.4.1 Deferringtothenationalstandard

Currently,theACTdeferstonationalstandardsthatgoverntheuseofwoodheaters.TheACTmandatesthatwoodheatersforsalemustbecertifiedtocomplywiththenationalemissionsstandard,whichspecifiesmaximumallowableparticleemissionsof4gperkilogramofwoodburnt(4g/kg).Thereisnominimumnationalefficiencystandard.

Thesenationalstandardsareinadequateanddonotaddressthehealthandenvironmentalproblemscausedbywoodheaters.Theyarethesamestandardsthathavebeeninplacewithoutchangesince1999.Theallowableemissionsof4gofparticulatematterper1kgofwoodburnedisover4timesmorethantheemissionsstandardsallowedinleadingjurisdictions.Thenationalstandardsdonotsetaminimumefficiencylevelforheatersdespiteleadingjurisdictionsadoptingemissionsstandardsofupto65%.

Examplesofactiontakeninotherjurisdictions

* Waverly and Holyrod councils (Sydney): banned wood heaters * Various NSW local councils: using development control plans to control or prevent wood heater installations in particular areas (eg Camden Council, the Hills Shire Council, Manooka Valley, the Oran Park and Turner Road Growth Precincts). * Armidale Dumaresq Council (NSW): new wood heaters must meet an emissions standard of 3g/kg; 2.5g/kg for certain areas. * New Zealand: From 2005, all wood heaters installed in the urban environment must meet an emissions standard of 1.5g/kg and an efficiency standard of 65%. * Canterbury (Christchurch, NZ): New wood heaters must meet an emissions standard of 1g/kg and an efficiency standard of 65%. In most areas, new wood heaters cannot be installed except as replacements for more polluting wood heater models. From 2010, the use of solid fuel burners that are 15 years or older is banned between 1 April to 30 September each year. * Otago (NZ): by 1 January 2012, all wood heaters had to meet an emissions standard of 0.7 g/kg and an efficiency standard of 65% for new and existing heaters (or 1.5g/kg for heaters installed before 2007). This means old non-compliant heaters had to be removed. * Lincoln County and Sacramento (USA): ban on wood heaters. * Southern California – wood heaters not allowed in new houses. * Mammoth, Washoe County and Oregon (USA): phasing out wood heaters by removing them when the house is sold. * Montreal, Canada: Banned the installation of wood heaters (new or as replacements) from 2009.

Authorised by the ACT Parliamentary Counsel—also accessible at www.legislation.act.gov.au 16

Movestostrengthenthenationalstandardshavefailed,makingitimperativethattheACTtakesactionitself.In2007,themajorityoftheAustralian/NewZealandStandardsCommitteesupportedreducingthewoodheateremissionsstandardfrom4g/kgto2g/kg.30Italsoproposedaminimumefficiencystandardof50%.31However,thepolicyofStandardsAustraliaisthatmajorstakeholders(suchasindustryorcommunityrepresentatives)canvetochangestoastandard.32Inthiscase,thewoodheaterindustryrepresentativesvetoedtheproposedemissionandefficiencylimits,meaningnochangesweremade.33Theneedforarevisedstandardthatactuallyreflectsreal‐lifeemissionswasalsoconsidered,butthisworkwasabandoned,possiblyduetoindustryveto.

Thisvetoprocessobviouslymakeschangeatthenationallevelverydifficult.OnewaytoovercomethisobstacleandensureACTresidentsreceivethehealthandenvironmentalbenefitsofimprovedwoodheaterstandards,istotakeindividuallegislativeaction,suchasthechangesthatareproposedinthedraftlegislation.Inrecognitionoftheenvironmentalandhealthimpactsofwoodheaters,someAustraliancouncilshaveimplementedstandardsthatarestricterthanthenationalstandards.Variousinternationaljurisdictionshavedonethesame,orbannedwoodheatersaltogether(seesidebar,above).NewZealandhasalreadytakenaction,ignoringtheemissionslimitintheAustralian/NZstandardandsettingitsownstandardsforwoodheateremissions.AllwoodheatersinstalledinNewZealand’surbanenvironment34mustmeetaminimumemissionstandardof1.5g/kgandefficiencyofatleast65%.35SomeregionsofNewZealandgofurther.InOtago,from1January2012,allwoodheatershadtomeetanemissionsratingof0.7g/kganda65%efficiencyfornewandexistingheaters(or1.5g/kgforheatersinstalledbefore2007).Thismeansoldnon‐compliantheatershadtoberemoved.361.4.2 InsufficientACTmeasuresSince2004,37theACTGovernmenthasrunaprogramwhichallowsresidentswithwoodheaterstoreceivearebateforupgradingtogasheating($800foraductedgassystemand$600forfluedgasinstallations).ActewAGLfundstheprogram.

30StandardsAustraliaSolidFuelBurningAppliancesCommittee,MinutesofMeeting16and17March2007(ReproducedatAustralianAirQualityGroupWebsite:http://tinyurl.com/7axeeav)31Ibid32DrJohnTodd,“RegulationofresidentialwoodsmokeinAustralia”(2007)CleanAirandEnvironmentalQuality41(3),1533EnvironmentProtectionHeritageCouncilBriefingDocument,NationalApproachtoReducingWoodheaterEmissionsScopingPaperonRegulatoryOptions(ReproducedatAustralianAirQualityGroupWebsite:http://tinyurl.com/7omeon4)34Thestandardsapplytowoodheatersinstalledonblockslessthan2hectaresinsize.35NZMinistryforEnvironment:http://www.mfe.govt.nz/laws/standards/woodburners/36OtagoRegionalCouncil:http://www.orc.govt.nz/Information‐and‐Services/Air/Clean‐Heat‐Clean‐Air/37http://www.hansard.act.gov.au/hansard/2008/week10/3778.htm

Authorised by the ACT Parliamentary Counsel—also accessible at www.legislation.act.gov.au 17

Thisrebateprogramoffersanincentiveforpeopletoconvertfromwoodheatingtogasheating.Itappearstohavehadaminorpositiveeffect.AccordingtoAustralianBureauofStatisticsdata,thenumberofhouseholdsinCanberrausingwoodheatersasthemainsourceofheatinghasgonefrom2.9%(2005)to3.9%(2008)to2.3%(2011).38However,theprogramsuffersseverallimitations.ThereisastrongcasethatitisnotsufficienttoaddresstheproblemsposedbywoodheaterpollutioninCanberra.TheprogramdoesnothingtopreventtheinstallationofnewwoodheatersinACThomesortoensurethattheseheatershaveappropriateemissionsandefficiencystandards.Whilesomehouseholdsareconvertingfromwoodheatingtogas,otherhousesarebuyingandinstallingwoodheatersinadditiontotheirexistinggasorelectricity,ornewhousesarebeingbuiltwithwoodheatersinstalled.Thereportedincreaseinwoodheatersalesinrecentyearssuggeststhisisthecase.39TheABSdataalsosuggeststhattheoveralluseofwoodheatersasasecondarysourceofheatinghaschangedlittle.Canberrahouseholdsusing“other”sourcesofenergyinsidethehouse(whichincludes“wood”and“oil”)hasgonefrom7.8%(2005)to8.4%(2008)to7.6%(2011).40ThissuggestsoveralltherehasnotbeenasignificantreductioninthenetnumberofwoodheatersinCanberra.Inaddition,aswoodheatersarenottaxedundertheFederalgovernment’scarbonprice,thereisapotentialthatmorepeoplewilllooktousewoodheatersorkeepexistingones.

ArecentsurveyofTuggeranongresidentsindicatesthatarebateincentiveprogramisinsufficientfordealingwithwoodheaterproblems.60%ofsurveyedhouseholdsthatcurrentlyhavewoodheaterssaidthatnothingwouldmotivatethemtoreplacetheirwoodheater(includingrebates).Ofthe39%whosaidarebatemightmotivatethemtoreplacetheirheater,only40%saidthattheexistingrebatewasattractive.41Thisleavesjustasmallportionofthepopulationthatisreceptivetotherebate:thosewhodonotalreadyhavegasheatingandthesmallpercentageofthosewhoareattractedtotheexistinglevelofrebate.

InthisscenarioitisveryimportantthattheACTintroducesappropriateemissionsandefficiencystandardsforallnewwoodheaters.

38HowevertheABSadvisesthatthe2011figure“hasarelativestandarderrorof25%to50%andshouldbeusedwithcaution”.ABS,EnvironmentalIssues:EnergyUseandConservation,March201139See,forexample,variousnewspaperarticlesdiscussing“a20%increaseinwoodheatersales”andrecordfirewoodsalesin2011:HenriettaCook,‘WarmthofWoodKeytoCapital’sHearth’,TheCanberraTimes,1May2011,p1;JacquelineWilliams,“WhereThere’sWood,There’saCosyFire”,TheCanberraTimes,30July2011,p340ABS,EnvironmentalIssues:EnergyUseandConservation,March201141SurveyconductedbyACTGovernmentinDecember2010:ACTLegislativeAssembly,SelectCommitteeonEstimates,2011‐12,AnswertoQuestiononNoticeE11‐403,20June2011

Submission on Boarding Houses

Authorised by the ACT Parliamentary Counsel—also accessible at www.legislation.act.gov.au

2. ProposalsintheDraftBill

ThedraftbillmakesamendmentstothreepiecesofexistingACTlegislation.

ConstructionsOccupations(Licensing)Act2004 ConstructionsOccupations(Licensing)Regulation2004 EnvironmentProtectionAct1997.

2.1Newemissionsstandardandefficiencystandard(Clause10–amendedsections2.4(5)(b)and2.4(5)(c))ThekeyproposalinthedraftBillistorequirethatallnewwoodheaterssoldorinstalledintheACTmeetnewemissionsandefficiencystandards.ThisproposalwillallowthecontinuedsaleandinstallationofwoodheatersintheACT.However,itwillrequirethatanynewheatershavetomeetdesignstandardsthatwilllimittheamountofpollutiontheyproduce.Thestandardwillalsoallowtheuseofwoodpelletheaters.ThedraftBillproposesanemissionsstandardof“1g/kg”.Thismeansthatawoodheatermayonlyaverage1gofparticulateemissionsforevery1kgofwoodburned,undercontrolledtestingconditions.Thisis¼ofthecurrentemissionsstandardapplicableintheACT,whichallows4g/kg.Thedraftbillalsoproposesanefficiencystandardof65%.Theefficiencystandardreferstothepercentageoffuelthatisconvertedtoheatbythewoodheater.Itisakeyfactorintheamountofwoodsmokeemissionsthatawoodheaterproduces.Ashighefficiencyalonedoesnotguaranteereducedemissions,itisimportantthatthisispairedwiththeemissionsstandard.TheaveragecurrentefficiencyoftherangeofwoodheatersonsaleinAustraliaisapproximately60%.42HoweverthereisnocurrentminimumefficiencyratingnationallyorintheACT.TheseproposedstandardsaremuchstrongerthantheexistingstandardsthatapplyintheACT.TheywouldputtheACTonparwiththemostprogressivejurisdictionsaroundtheworld.ThestandardwillbetheequivalentofChristchurch,NewZealand(1g/kgemissions;65%efficiency,wherenewwoodheaterscanbeinstalledonlyasreplacementsforoldermodels),andslightlybelowthatofOtago(0.7g/kgemissions;65%efficiency).ItisexpectedthatthecombinationofthesestandardswillmakeasignificantdifferencetowoodsmokeemissionsinCanberra.Basedonpreviousanalysesofemissionsandefficiencystandardsitisestimatedthat:43

42BDAGroup,WoodheaterParticleEmissionsandOperatingEfficiencyStandards:CostBenefitAnalysis,June200643BDAGroup,WoodheaterParticleEmissionsandOperatingEfficiencyStandards:CostBenefitAnalysis,June2006

Authorised by the ACT Parliamentary Counsel—also accessible at www.legislation.act.gov.au 19

The1g/kgemissionsstandardwouldreduceparticulateemissionsperkgofwoodburnedfromtheaveragenewwoodheaterbyapproximately34%;

The65%efficiencystandardwouldreducetotalwooduseover15yearsbyabout10%;

Acombined1g/kgemissionsstandardand65%efficiencystandardcouldreduceparticulatematterpollutionover15yearsbyupto65%.

Theproposedstandardswillmakeanimportantcontributiontoreducingpollution,itsnegativehealthandenvironmentalimpacts,andtheamountofwoodusedforfuel.Inchoosingthisstandard,wehavealsotakenintoaccounttheavailabilityofwoodheatertechnologythatcanmeetthesestandards.Thesestandardsshouldoperateasaninterimsteptowardsstrongeraction.Pollutionfromwoodsmokeisunhealthyinanyamount.AswoodheaterexpertProfessorJohnToddwrites,“Wemustdevelopanewgenerationofwoodheatersthatburncleanlywhenusedinpeople’shomes....Thenextgenerationmustbe1g/kgorlessinordertoachieveacceptableairqualityinareaswithahighproportionofwood‐users,andideallyweshouldaimforafurtherorderofmagnitudeimprovementto0.lg/kg”.44

2.1.1 Willtherebeenoughheatersthatmeetthisstandard?

Thetechnologytomanufacturewoodheatersthatwouldmeettheproposedstandardsalreadyexistsandisinwideuse.Currentlythereare10approvedwoodheatermodelsavailableontheAustralianmarketthatmeetboththe1g/kgemissionsstandardandthe65%efficiencystandard.45TheNewZealandexperienceprovidesanexampleofhowrapidlytheindustrycanadapttochangedstandardsinwoodheaters.InFebruary2012,NewZealandhas128woodheatermodelsthatmeetitsnationalstandardsof1.5g/kgemissionsand65%efficiency.Inaddition,108modelsontheNZmarketwouldalreadymeetthestandards

44DrJohnTodd,“It'sTimeforMoreActiononReducingWood‐smoke”(2008),CleanAirandEnvironmentalQuality42(4),1745ListofcertifiedwoodheatersfromwebsiteoftheAustralianHomeHeatingAssociation:http://www.homeheat.com.au/certified.php

Keyconsiderationsforcomment:‐Istheemissionsstandardof1.0g/kgappropriate?‐Istheefficiencystandardof65%appropriate?

NewZealandalreadyhas108woodheatermodelsonthemarketthatwouldmeetthe

efficiencyandemissionsstandardsproposedinthisdraft

legislation.

Authorised by the ACT Parliamentary Counsel—also accessible at www.legislation.act.gov.au 20

proposedinthisdraftlegislation.46Thisdemonstratesthatthetechnologyexiststomakehigherqualitywoodheaters,andthatthewoodheaterindustrycanreadilyadapt.

2.2Enforcementofthestandards:salesandinstallationsThedraftlegislationproposestoenforcethenewstandardsbyregulatingboththesaleandinstallationsofwoodheaters.Therewillbenewobligationsforretailerssellingwoodheatersandforbuildersinstallingwoodheaters.Byregulatinginstallationinadditiontosales,itishardtocircumventthelegislationbyimportingnon‐compliantheatersfromotherjurisdictions.IntheACT,woodheaterscanonlybeinstalledbyalicensedbuilderandtheinstallationmustbecertifiedbyabuildingcertifier.2.2.1Retailers(Clause9,amendedsection2.4(1))TheexistingEnvironmentProtectionAct1997makesitanoffenceforapersontosellawoodheaterforuseonresidentialpremisesunlesstheequipmentcomplieswithexistingAustralianStandard4013(whichincludestheemissionsstandardof4g/kg).Thedraftlegislationamendsthisrequirementsothatapersonmaynotsellawoodheaterforuseonresidentialpremisesunlesstheheatercomplieswiththenew1g/kgemissionsstandard,andthe65%efficiencystandard.ThewoodheatermustalsocomplywiththeotherelementsofAustralianStandard4013.Ifthelegislationispassedintolaw,theACTGovernment(throughitsOfficeofRegulatoryServices‐ORS)willneedtoundertakeaneducationcampaignforretailers,toensuretheyareawareoftheirnewobligations.ORSwillalsoneedtoundertakecompliancechecksandenforcementoncethelegislationisoperational.

2.2.2Builders(Clause4–Newsection87A;Clause5–newitem2.1.33)

ThedraftlegislationalsoamendstheConstructionsOccupations(Licensing)Act2004andtheConstructionsOccupations(Licensing)Regulation2004.Itmakesitanoffenceforabuildertoinstallawoodheateronresidentialpremisesunless

46http://www.mfe.govt.nz/laws/standards/woodburners/authorised‐woodburners.html#list

Keyconsiderationsforcomment:‐Whatissuesariseinrelationtowoodheaterretailersandmanufacturers?

Authorised by the ACT Parliamentary Counsel—also accessible at www.legislation.act.gov.au 21

theheatercomplieswiththenew1g/kgemissionsstandard,andthe65%efficiencystandard.Failuretofollowthisrequirementmeansabuildercouldbefinedamaximumof10penaltyunits($1100),andnon‐complianceisagroundforoccupationaldisciplineunderbuildinglicensingsystem(meaningthebuildercouldloseupto3demeritpointsfromtheirlicense).

Ifthelegislationispassedintolaw,theACTGovernment(throughACTPLA)willneedtoundertakeaneducationcampaigntoensurebuildersareawareofthisnewobligation.ThenewrequirementswouldbemanagedbytheConstructionOccupationsRegistrar,whoisalreadyresponsibleforlicensingandminordisciplinarymattersrelatingtobuilders.

2.2.3EPAmustmaintainlistofcompliantheaters(Clause10–amendedsections2.4(3)and2.4(4))

Toensurethatitwillbeeasyforretailersandbuilderstoknowwhichmodelsofwoodheatercurrentlycomplywiththestandards,thedraftlegislationrequirestheACTEnvironmentProtectionAgencytocreateandpublicisealistofcompliantwoodheatersatleasteverysixmonths.ThisissimilartotheapproachtakeninNewZealand,wheretheauthoritypublishesan‘authorisedlist’ofallwoodheatersthatmeetthestandard.Underthedraftlegislation,itwouldonlybeanoffenceifaretailerorbuildersoldorinstalledaheaterthatdidnotcomplywiththestandardandthatwasnotonthelistproducedbytheAgency.

2.2.4Jurisdictionalissues(Clause6–newsection167)

ApplyingastandardtowoodheatersintheACTthatdiffersfromotherjurisdictionsraisesissuesundertheMutualRecognitionAct1992(Cth)(MRA)(andtheequivalentACTlegislation).TheMRAoperatestoensurethatgoodswhicharelegaltosellinonejurisdictionareabletobesoldlegallyinanyotherAustralianjurisdiction.However,theMRAallowsajurisdictiontoestablishexemptionstothisruleincertaincircumstances.TheACTmayunilaterallyenactatemporaryexemption(foroneyear)foraparticulargood,providedthisisdoneforhealth,safetyorenvironmentalgrounds.Asthereasonforintroducinghigheremissionsandefficiencystandardsforwoodheatersisforhealthandenvironmentalreasons,thedraftlegislationdeclaresatemporaryexemptiontotheMRA.ItdeclaresthesamefortheTrans‐TasmanMutualRecognitionAct1997(Cth),whichistheequivalentlegislationgoverningthesaleofgoodsbetweenAustraliaandNewZealand.Underinter‐governmentalarrangements,declaringanexemptionundertheMRAwilltriggeraprocesswheretherelevantCouncilofAustralianGovernmentsMinisterialCouncilmustdecidewithin12monthswhetherto

Authorised by the ACT Parliamentary Counsel—also accessible at www.legislation.act.gov.au 22

resolvetheissuebyharmonisingnationalstandards,toallowapermanentexemption,ortoreverttomutualrecognition.47Thisisanadditionalbenefitofenactingthedraftlegislationasitwillstimulatenationalactionregardingtheintroductionofappropriatewoodheaterstandards.2.3Commencementafter1year(Clause2)Thisdraftlegislationproposesacommencementdateof1yearafternotificationoftheAct,atthelatest.Thisisintendedtoprovidesufficienttimeforretailersandindustrytoadapttothechanges.

3. Additionaloptions

Thefollowingproposalsarenotincludedintheexposuredraftlegislation.However,theyhavethepotentialtocomplementtheproposalsinthedraftlegislation,ortoformthebasisoffutureregulationofwoodheatersintheACT.Wewouldappreciateanyfeedbackorcommentaryontheseoptions.

3.1Option1:SetadatebywhichallwoodheatersintheACTmustcomplywiththeefficiencyandemissionsstandard

Thisoptionwouldinvolvesettinga‘sunset’datebywhichallwoodheatersintheACT(orinspecifiedpriorityareas)mustmeetaparticularstandard.Itwouldrequiretheremovalofheatersthatarenotcompliantbyacertaindate:forexample,in5yearsfromnow.Therequiredstandardcouldbetheoneproposedinthedraftlegislation,anew,stricterstandard,oritcouldbetheremovalofwoodheatersaltogether.Inthiscircumstance,considerationshouldbegiventoexemptingruralpropertieswithoutaccesstootherformsofheating.Inconjunctionwiththisoption,theGovernmentmayalsorecognisethatcertainareasofCanberraarenotsuitableforwoodheatersatall(duetotheirurbandensityandinabilitytodispersewoodsmoke).

47P113‐114http://www.pc.gov.au/__data/assets/pdf_file/0007/85768/09‐chapter6.pdf

Keyconsiderationsforcomments:‐Pleaseprovideanycommentsabouttheadditionaloptionsproposedbelow,includingwhethertheyshouldoperateinconjunctionwiththeemissionsandefficiencystandardsproposedinthelegislation.

Keyconsiderationsforcomment:‐Isoneyearanappropriatephaseintimeforthenewstandards?

Authorised by the ACT Parliamentary Counsel—also accessible at www.legislation.act.gov.au 23

Thismethodofregulationhasbeenappliedinotherjurisdictions,suchasOtago,NZ,whereoldcompliantheatershadtobereplacedorremovedby1January2012.ThephaseoutdatemayvaryindifferentpartsofCanberra;forexampleifaparticularareahasveryhighpollution,itmayhaveashorterphaseouttime.TheGovernmentcouldimmediatelyapplystricterstandardsforwoodheaterstonewdevelopmentssuchasthenewMolonglosuburbs,astherearenodwellingstherewithexistingwoodheatersthatneedreplacing.SimilarcontrolsarebeingusedinnewdevelopmentsinNSW,wherewoodheatersareeithernotallowed,orneedtomeetstricterstandardsthanthenorm.CamdenCouncil,theHillsShireCouncil,ManookaValley,theOranParkandTurnerRoadGrowthPrecinctsareexamples.3.2Option2:Phaseoutofnon‐compliantwoodheatersatsaleorpremisesPhasingoutofwoodheaters,orthephasinginofimprovedemissionsandefficiencystandardscouldbeacceleratedbyarequirementtoremoveanynon‐compliantwoodheateronthepremiseswhenthepremisesaresold.Thenewownersofthehousewouldhavetheoptionofinstallinganalternativeheatingsystem,orinstallingacompliantwoodheater.TheaveragehouseinAustraliaissoldevery7years,whereastheaveragewoodheaterlasts17years.AsimilarmeasureisinplaceinseveralcountiesintheUSA(seeabove).3.3Option3:Limittheinstallationofwoodheaterstoreplacementsformorepollutingmodels,untilanewhealth‐basedstandardhasbeendevelopedUnderthisproposal,newwoodheaterscouldonlybeinstalledasreplacementsforexisting,morepollutingmodels.Thisiseffectivelyamoratoriumonnewwoodheatersinhousesthatdonotalreadyhavetheminstalled,untilanewhealth‐basedstandardforwoodheatershasbeendeveloped.Theproposalrecognisesthattheexistingprocessforcertifyingwoodheatersandmeasuringtheiremissionsremainsproblematic.In2008,theCSIROconductedtestsondifferentmodelsofwoodheaterandfoundtherewasnotalargedistinctioninemissionsbetweenwoodheatersthatwerecompliantwiththeexistingstandardandthosethatwerenot.48ResearchcommissionedbytheFederalGovernmenthasrecommendeddevelopingarevisedtestingmethodforcertifyingwoodheaters.Therevisedmethodisreferredtoasthe‘real‐worldprotocol’andtakesaccountofthewaythatpeopleoperatetheirheatersinpractice(ratherthanhowwoodheatersaretestedinalaboratory).49

48CMeyeretal,CSIROMarineandAtmosphericResearch,Measurementofreal‐worldPM10emissionfactorsandemissionprofilesfromwoodheatersbyinsitusourcemonitoringandatmosphericverificationmethods.2008,http://www.environment.gov.au/atmosphere/airquality/publications/emission‐factor.html.49DrJohnToddandMichaelGreenwood,ProposedChangestoAS/NZS4013–DeterminationofParticleEmissionsFactors(Commissionedstudyforthe

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Amoratoriumonnewwoodheaterinstallationsuntilanewmethodoftestingandanewhealth‐basedstandardareinplacewouldbethestrongestformofactiontoprotectresidentsfromunacceptablelevelsofpollution.Itwouldbelikelytostimulateactionatthenationallevelandinthewoodheaterindustryfortheintroductionofnewtestingmethodsandnew,stricterhealth‐basedemissionsstandards.Technologytoachieveasubstantialreductioninemissionsfromwoodheatershasbeendeveloped,suchastemperaturesensorstocontroltheairflow,ornaturalgasboostedcombustiontopreventsmoky,smoulderingfires.50susceptibilitytolingeringwoodsmokeIfthisoptionisimplemented,theGovernmentcouldpotentiallyrecognisethatsomeareasThephaseoutdatemayvaryindifferentpartsofCanberra;forexampleifaparticularareahasveryhighpollution,itmayhaveashorterphaseouttime.3.4Option4:MarketmechanismsInadditiontoregulationofwoodheaters,theACTcouldintroducemarketmechanismsdesignedtoreducethelevelsofwoodsmokepollution.Thesewouldrequireathoroughexaminationbeforeintroduction,includingoftheimpactthatpriceincreasescouldhaveonlowersocio‐economicgroups.Possibilitiesinclude:

introducingasalestaxonnewwoodheaters(potentiallytoincreasethepriceofmorepollutingmodelscomparedtolesspollutingmodels,inrecognitionofthedifferinghealthandenvironmentalimpacts),or

introducingalicensingfeeforownersofwoodheaters(whichwouldincreasethecostofowningandoperatingwoodheating,providinganincentivetouseotherheatingoptions.Licensingwouldalsoallowimprovedauditing,andcouldprovidefundsforwoodsmokeeducationprogramsandassistanceforresidentsexperiencinghealthproblemsbecauseofwoodsmoke).

3.5Option5:ProvidehealthinformationwithnewwoodheatersAspartofitspubliceducationcampaign,theACTcouldrequirethatallnewwoodheaterssoldcomewithinformationaboutthehealthimpactsofwoodsmoke.Thiscouldbeintheformofanoperatingmanual,althoughsomekindofpermanentlabelontheheaterwouldbepreferable.Operatingmanualsgetlostandareunlikelytobepassedontothenexttenantorownerofthehouse.It

CommonwealthDepartmentoftheEnvironmentandHeritage),2006,http://www.environment.gov.au/atmosphere/airquality/publications/pubs/particle‐emission‐factors.pdf50BDAGroup,WoodheaterParticleEmissionsandOperatingEfficiencyStandards:CostBenefitAnalysis,June2006;EnvironmentProtectionHeritageCouncilBriefingDocument,NationalApproachtoReducingWoodheaterEmissionsScopingPaperonRegulatoryOptions(ReproducedatAustralianAirQualityGroupWebsite:http://tinyurl.com/7omeon4)

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wouldbepermissiblefortheACTtointroducesuchalabellingrequirementunderitsexemptiontotheMutualRecognitionAct(discussedabove).TheStandardsAustraliaCommitteerecommendedin2007thatwoodheatersshouldbelabelledwithinformationaboutthehealthimpactsofwoodsmoke.However,thischangewasvetoedbytheindustryalongwiththeproposedemissionsandefficiencychanges.51

4. Additionalrecommendations

ThefollowingarerecommendationsofactionstheACTshouldtakeregardlessofwhetherthedraftlegislationorotherproposedoptionsareimplemented.4.1Recommendation:ImproveenforcementofandeducationaboutthecorrectoperationofwoodheatersThewayawoodheaterisoperatedmakesasignificantdifferencetotheamountofpollutionitproduces.Evenhighlyefficient/lowemissionsheaterscanproduceconsiderablepollutionifoperatedincorrectly(egbyusingunseasonedortreatedwood).Itisimportantthatthecommunityisnotonlyeducatedabouthowtominimiseemissionsfromwoodheatersandwhythisisimportantforourhealth,butthatthereareoptionstowarnandpenalise‘serial’offenders.TheNSWProtectionoftheEnvironmentOperationsAct1997Actprovidesanexampleofregulatorypowersthatlocalcouncilscanusetoenforcecorrectuseofwoodheaters.ThecouncilcanissueSmokeAbatementNoticestoahouseholdwhereithasbeengiveninformationoncorrectwoodheateroperationbuthasfailedtotakeactiontopreventexcessiveemissions.Thepenaltynoticeimposesafineof$200forindividuals(withamaximumavailablefineof$3300byacourt).52Thissmokeabatementnoticesystemwasdevelopedprimarilyfordealingwithwoodheaterpollution.Launceston,Tasmaniaprovidesanotherexampleoflocalenforcementaction.LocalGovernmentauthoritiesconductedtargetededucation‘smokepatrols’duringwhichtheysurveyedtheentirecityeverymonthandtargetedhouseholdswithsmokychimneys.Inthefirstinstance,anotificationcardwasleftinletterboxes,indicatingthatthetimethatunacceptablesmokelevelswereobserved.Thiswasfollowedbywarningletters,withthepossibilityoffinesforfurtherbreaches.53

51StandardsAustraliaSolidFuelBurningAppliancesCommittee,MinutesofMeeting16and17March2007(ReproducedatAustralianAirQualityGroupWebsite:http://tinyurl.com/7axeeav);52http://www.environment.nsw.gov.au/woodsmoke/smokeabate.htm53 Australian Research Institute in Education for Sustainability (ARIES), A Review of Air Quality Community Education: Key Findings, http://aries.mq.edu.au/projects/airquality/files/Air_quality_brochure220807.pdf

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TheACTlacksanappropriatemechanismforeducatingandpotentiallypenalisingresidentswhocontinuetousetheirwoodheatersinaharmfulway.TheGovernmentshouldmakeappropriatelegislativechangesandrolloutasimilarsystemofeducation/penaltiesasLauncestonandNSW.Ausefulinitiativetocomplementthesenewmechanismswouldbetoestablisha‘smokepollutionhotline’forresidentstoreportwherewoodheatersarebeingoperatedpoorly.ThiswouldhelptheGovernmenttargetitsenforcementandeducationactivities.CanberraresidentsconsistentlycomplaintoGovernmentaboutwoodsmokepollution,withtheGovernmentreceivinganaverageof43complaintsayear(overthelast9years),andsomeyearsitreceives50or100complaints.54

4.2Recommendation:ConductmobileairqualitytestingAsdiscussedabove,Canberrahasparticularlocationsthatarewoodsmoke‘hotspots’.InordertogetthefullpictureofparticulatematterpollutiontheACTGovernmentshouldemploymobileairmonitoringtoestablishpatternsofairpollutionandidentifypotentialhotspots.Thiscanbedoneusingamobilenephelometer(ameasuringdeviceforPMpollution),whichcanbeattachedtoacar.Anexampleofamobilenephelometerispictured.55TheGovernmentmaybeabletopurchasethisequipmentforongoinguse,ortoborrowtheequipmentfromanotherjurisdictionorauniversity.Conductingthismonitoringisimportantforprovidingmeaningfulspatialpollutioninformationtoinformpolicyresponsessuchaswheretotargeteducationandenforcement,andwhichareas(ifany)torestrictwoodheaterinstallations.

4.3Recommendation:ImprovecommunicationofairqualitymonitoringGiventheimportanceofairqualitytoCanberrans’healthandwellbeing,itiscriticalthattheGovernmentcommunicateairqualityinformationtothepublicinatimelyandcomprehensibleway.Currently,theACTGovernmentonlyreportsdataonACTairpollutionannually.

54 ACT Legislative Assembly, Answer to Question on Notice No.2307, May 201255 Picture from: Eleanor Setton, Mobile Air Quality: Targeting Local Issues (presentation), http://www.bc.lung.ca/association_and_services/documents/07Setton-MobileMonitoring.pdf

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Thiscanbeimprovedsignificantlyby:

IssuingPM10andPM2.5informationonadailybasis(usingtheairqualityindexcalculationusedbyNSW).ThiscouldbecombinedwithBureauofMeteorologyDataonlowwindspeeds,temperatures,andhumiditytoprovideforecastsofdayswhenpoorairqualityisexpected.

ProvidingACTairqualitymeasurementsfromtheairmeasurementstatementson‐lineandinrealtime,sothatresidentscancheckcurrentinformationatanytime.

Providinghealthinformationandwarningsinconjunctionwiththeaboveforecastsandrealtimedatatoimprovecommunityawarenessaboutairquality,particulatematterandwoodsmoke.

4.4 Recommendation:ExpandthewoodheaterbuybacksubsidyTheACTGovernment’swoodheaterreplacementsubsidy‐fundedbyACTEWAGL‐providesarebatetohouseholdsreplacingwoodheaterswithgasheating.GiventheimportanceoflimitingtheamountofwoodsmokepollutioninCanberra,thissubsidyshouldbeavailableforheatingoptionsotherthangas.Electricenergy‐efficientheatpumpsorreverse‐cycleairconditionerstypicallyconsumeathirdoftheelectricityofdirectresistanceheating,andgenerateasimilaramountofgreenhouseemissionsasgasheaterswith‘marketleading’energystarratings.56Theseformsofheatinggenerallyhaveahighup‐frontcost,buttheirgreaterefficiencyleadstolowrunningcosts.Thismakesthemagoodoptionforasubsidy.Giventheresultsofitssurveyonthewoodheaterreplacementsubsidy,theGovernmentshouldalsoincreasetheamountoftherebate.Only20%ofrespondentssaidthatthecurrent$600‐800rebatewasattractive,whereas67%ofrespondentssaidthatahigherrebaterateof$1200‐1500wasattractive.Oftherespondentswhowereattractedtoarebatetoreplacetheirwoodheater,83%saidthatiftherebateorincentivewasattractiveenoughtheywouldconsiderreplacingtheirwoodheaterwithin6monthstoayear.57Anincreasedrebate–eventemporarily–maybeaneffectivewaytoquicklyreplaceasignificantamountofwoodheatersinCanberra.Considerationshouldalsobegiventoprovidingasubsidytoswitchfromwoodheatingtopelletheating,asawayofappealingtoresidentswhowanttokeepsomekindof‘combustionheating’.Pelletheatersusuallyhavelowemissions(1g/kgorless)butarealsolesssusceptibletocarelessoperating,meaningtheemissionsareusuallylowallthetime.58

56Based on information from the Federal Government’s site for comparing heating options: http://www.energyrating.gov.au/compare-products/57SurveyconductedbyACTGovernmentinDecember2010:ACTLegislativeAssembly,SelectCommitteeonEstimates,2011‐12,AnswertoQuestiononNoticeE11‐403,20June201158DrJohnTodd,TrainingHandbookforWood‐SmokeMitigation,2003