Evaluation

Reports 2006

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Minerals and Metals Program (MMP) - Evaluation (E06001) October 23, 2006

• 1. Background
• 2. Program Resources
• 3. Methodology
• 4. Relevance/Rational
• 5. Success/Impacts
  • 5.1 Supplementary Cementing Materials (SCMs)
  • 5.2 Enhanced Recycling (ER)
  • 5.3 Concrete Roads (CR)
  • 5.4 Studies/Monitoring for Greenhouse Gas (GHG) Reduction Potential (STU)
  • 5.5 Life Cycle Analysis (LCA)
  • 5.6 Overall impact of the MMP
• 6. Cost-effectiveness
• 7. Design and Delivery
  • 7.1 Strategic Plan
  • 7.2 Rigorous Selection Procedure for Proposals
  • 7.3 Communication strategy and dissemination activities
  • 7.4 Governance structure
• 8. Conclusion
• 9. Recommendations and Management Responses
• Annex A: Logic Models – Figure 1 and Figure 2

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NOTE TO READER: Since the conclusion of this evaluation, the Minerals and Metals Program (MMP) has been extended until March 31, 2007. The Enhanced Recycling (ER) Component received $505 K and the Supplementary Cementing Materials received $236 K.

1. BACKGROUND

The Minerals and Metals Program (MMP) supports initiatives that enhance mineral and metal recycling practices by matching funds of partners and other collaborators. As well, MMP assesses alternate production processes, focussing upon those industries in the minerals and metals sector with high greenhouse gas (GHG)-emitting activities.

The Program is managed by a Steering Committee of representatives from Natural Resources Canada (Chair), Environment Canada, and Industry Canada and program specific Advisory Committees consisting of experts in the field and other representatives from industry, government and non-governmental organizations. Daily operations are overseen by a secretariat, which is part of the CANMET Mineral Technology Branch of the Minerals and Metals Sector of Natural Resources Canada (NRCan).


The Minerals and Metals Program is one of a suite of 45 measures included in Action Plan 2000 - actions that targeted key sectors accounting for 90 percent of Canada's GHG emissions. The MMP was allocated $10 million over the five-year period of 2001-02 to 2005-06 to reduce GHG emissions by 1.65 Mt by 2010. MMP initially targeted four areas:

• Supplementary Cementing Materials ($1.1 million);
• Enhanced Recycling ($3.4 million);
• Studies & Monitoring for GHG Reduction Potential ($2 million); and
• Concrete Roads ($3.5 million).

At the end of the fiscal year 2003-04, the Minerals and Metals Program was restructured, partly as a result of the winding down of the Concrete Roads area of the Program, to allocate the funds to two distinct program areas:

• Enhanced Emission Reductions (EER) for Minerals; and
• Metals and Enhanced Recycling.

Enhanced Emission Reductions (EER) for Minerals and Metals

The EER is a result of the amalgamation of the former Supplementary Cementing Materials, Concrete Roads and Studies & Monitoring for GHG Reduction Potential programs. The Steering Committee of the MMP decided that the final two years of the Program would be best served by combining resources to allocate funding to projects based on their GHG reduction potential and to streamline some of the Program's operational functions.

The Enhanced Emission Reductions for Minerals and Metals Program aims to reduce GHG emissions from the Canadian Minerals and Metals Sector by:

1. examining areas where improved understanding can enhance current programs and potentially lead to new emission reduction opportunities in high GHG-emitting industrial sectors (e.g., steel production, mining and smelting operations); and
2. working to increase the use of supplementary cementing materials (e.g., fly ash from coal burning power stations and blast furnace slag from steel-making operations) in concrete production, thus contributing to the reduction of the "CO₂ (carbon dioxide) signature" associated with the production of every cubic metre of concrete.

Enhanced Recycling (ER)

The objective of ER is to reduce annual GHG emissions by 700,000 tonnes per year (tpy) of CO₂ equivalent by 2010 through increasing aluminum and steel recycling by 100,000 tpy and 200,000 tpy, respectively. To meet this objective, the Enhanced Recycling Program aims to increase Canada's potential to recycle all materials, particularly minerals and metals through:

• analyzing and developing options for optimizing recovery and recycling infrastructure, policies and practices;
• identifying regulatory and economic inhibitors and drivers for recovery and recycling;
• applying life-cycle analyses to product and material streams to understand the costs and benefits to recycling; and
• establishing a National Recycling Network to facilitate the dissemination of knowledge and information among the industry's many and disparate stakeholders and participating in various regional and national communications opportunities.

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2. PROGRAM RESOURCES

Table 1: Minerals and Metals Program Projects and Budget, 2001-02 to 2005-06

Component	Number of Projects	2001 -02	2002 -03	2003 -04	2004 -05	2005 -06	Total (by Component)
Concrete Roads (CR)	7	$82,000	$216,000	$627,000	$273,000	$222,000	$1,420,000
Enhanced Recycling (ER)	37	$303,000	$792,000	$1,133,000	$652,000	$847,000	$3,727,000
Supplementary Cementing Materials (SCMs)	15	$52,000	$223,000	$468,000	$359,000	$317,000	$1,419,000
Studies and Monitoring for Greenhouse Gas (GHG) Reduction Potential	29	$254,000	$500,000	$1,529,000	$468,000	$683,000	$3,434,000
Total (by Year)	88	$691,000	$1,731,000	$3,757,000	$1,752,000	$2,069,000	$10,000,000
Salaries *		$65,000	$124,000	$338,000	$294,000	$180,000	$1,001,000
* Salaries were included in the $10 million budget.

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3. METHODOLOGY

This summative evaluation is a requirement of Treasury Board and covered the period from April 2001 to November 2005. The objective is to provide evidence-based findings to assess the performance of the MMP with respect to relevance/rationale, success/impacts, cost-effectiveness, and design and delivery.

Multiple lines of evidence were used in this evaluation to address the issues identified:

• document review;
• 51 interviews with federal and provincial officials, industry association members, industry members, not-for-profit organization members and a municipal official; and
• eight case studies based on a random sample from the 88 projects funded by the Program.

The limitation of this evaluation is that the findings are largely based on information gathered during interviews with key informants. Of the 51 respondents, 49% were recipients of program funding. Thus, their answers might be biased in favour of the Program. As such, viewpoints derived from the interviews should be interpreted with this in mind. Among the 51 respondents were 45 Advisory Committee members. Since Advisory Committee members are very knowledgeable, it was appropriate to interview them. However, since 33% of all Advisory Committee members have also been project recipients, it was difficult to avoid the presence of project recipients in the study sample.

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4. RELEVANCE/RATIONALE

The need for Canada to reduce its GHG emissions underpins this Program. Canada signed the Kyoto Protocol and aims to reduce its GHG emissions. The continuing relevance of the MMP is illustrated by the succession of action plans put in place by the Canadian Government:

• Action Plan 2000 implemented a range of programs targeting key sectors across the economy, such as transportation, buildings, renewable energy and cleaner fossil fuels, small and medium-sized enterprises, agriculture, minerals and metals, and forestry. ¹
  
  
• The 2002 Climate Change Plan for Canada set emission reduction targets affecting companies in the mining and manufacturing, oil and gas, and thermal electricity sectors. The plan outlined how emission reduction targets would be set, the mechanisms enabling these targets to be met, and the preferred regulatory option for implementing the system. ²
  
  
• The 2005 Climate Change Plan stated that investments should promote innovation and support new technologies. The plan asserted that innovation feeds economic growth, creates new opportunities, and provides long-term improvements to our environmental performance. ³

The MMP appears to be unique as a non-R&D (research and development) program focused on knowledge and information gathering and dissemination in the minerals and metals sector. Overall, interviewees had a good or high appreciation of the MMP (96% of interviewees) and its projects (84% of interviewees). Most of those interviewed considered the MMP to be extremely relevant, given the challenges faced by Canadian industry. Close to 70% of interviewees found that the sample of eight projects effectively addressed the GHG reduction needs of Canadian industry.

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5. SUCCESS/IMPACTS

The evidence examined for this evaluation indicates that the MMP has sponsored projects that addressed highly relevant issues for Canada, and that these would not have been undertaken without the MMP's financial support. Overall, about 80% of interviewees believed the Program achieved its intended results to date. Of these, 61% believed the Program did so at a high or good level. For individual projects, 100% of interviewees consider that their projects achieved proposed objectives. Of these, 84% believed their projects had a high success.

Based on the sample of eight projects out of the 88 projects in total, it appears that a significant majority of projects generated benefits for Canadian organizations. Overall, about 90% of interviewees believed the Program translated into direct or indirect benefits to Canadian organizations in the minerals and metals sector and has generated much useful information and knowledge.

One of the most important outcomes of the projects funded by the Program is that they have contributed to raising awareness of GHG-related issues, thus making the subject of climate change more prominent in the agendas of their stakeholders. Most interviewees believed that the Program and individual projects have effectively raised awareness of climate change. This was achieved through the creation of active networks of stakeholders (Enhanced Recycling, Supplementary Cementing Materials, Concrete Roads and Studies/Monitoring for GHG Reduction Potential Advisory Committees) sharing knowledge and expertise in each of the MMP's areas, and through various activities aimed at information and knowledge transfer.

According to the committee members, prior to the MMP, the contribution of SCMs (Supplementary Cementing Materials) and recycling to sustainability and GHG reduction was not recognized. As a result of the Program, information exchanges among members of several sectors have helped to develop a broader understanding of the issues and have encouraged greater collaboration in the industry, thereby fulfilling one of the short-term goals of the Enhanced Emission Reductions (EER) and Enhanced Recycling (ER) components. See Appendix A – Figure 1: Logic Model of the EER Component and Figure 2: Logic Model of the ER Component.

5.1 Supplementary Cementing Materials (SCMs)

Action Plan 2000 aimed to increase the use of supplementary cementing materials (SCMs), primarily fly ash from coal-fired power stations and slag from steel blast furnaces and other industrial processes. Production of portland cement (used to make concrete and mortar for construction, concrete pipes, etc.) releases large amounts of CO₂ – almost one tonne of CO₂ for each tonne of cement produced. Fly ash and blast furnace slag, if properly treated and handled, can replace cement. Up to 25% can be used quite readily in most cement applications; in some circumstances 50% or more of the cement can be replaced.

SCMs are waste products of their industrial processes, therefore, no CO₂ emissions are associated with them, and their use to replace cement avoids the CO₂ emissions associated with cement production. It also avoids the need to dispose of the SCMs as waste products. Other benefits are that the long-term strength and durability of the resulting concrete is often improved, while its cost is lowered.

The impediments to wider use include:

• the traditionally conservative approach to innovation in the construction industry;
• the need for improved design, engineering and site supervision when using SCMs, and
• some technical obstacles, principally a slower initial set of the concrete, which can prolong the construction period.

The Program was expected to result in an increase of 500,000 (tpy) in use of SCMs by 2010, with the associated GHG reductions of 450,000 CO₂ per year.

Prior to Action Plan 2000, SCMs were not incorporated in Public Works and Government Services Canada's (PWGSC) National Master Specification (NMS) for the construction industry. Following the implementation of the SCM component in 2001, the NMS included the use of SCMs, and in 2005 PWGSC introduced new standards comprising recommendations about mandatory minimum proportions of SCMs. In addition, a project by PWGSC under the SCM component led to the creation of a best practices guide for using SCMs.

From 1999 (just before initiation of the MMP) to 2003, the proportion of SCMs (e.g., fly ash) used in concrete has increased by about 32% ⁴. Although it is difficult to directly attribute recent increases in the use of SCMs to the MMP, the evidence indicates that the most significant increase appears to have occurred between 2001 and 2003, concurrently with the MMP.

Altogether, the projects carried out under the SCM component appear to have been quite successful in fulfilling most of the component's intended outputs, short-term outcomes, intermediate outcomes, and partially long-term outcomes (e.g., changes to standards, specifications, and guidelines that encourage and facilitate the use of SCMs, contributions to the adoption of LCA (Life Cycle Analysis) in the building industry, and informed decision-makers with strong network support and shared practices).

5.2 Enhanced Recycling (ER)

Action Plan 2000 aimed to increase recycling of minerals and metals, especially steel, aluminum and magnesium. Production of these metals is very energy intensive, with significant associated emissions of CO₂. Production of primary aluminum also results in emissions of perfluorocarbons (PFCs), which are very potent greenhouse gases (GHGs). Steel and aluminum are already recycled to a large extent; about 50% of Canada's steel production and 30% aluminum production come from recycled material. However, there is strong potential for increased recycling with major GHG-reduction benefits. For example, about 0.1 tonne of CO₂ or equivalent are emitted in producing one tonne of aluminum from recycled material, as opposed to about 5 tonnes in producing virgin aluminum. The comparable figures for steel are 0.5 and 1.5 tonnes, which is still significant. The goal of the Program was to increase recycling of aluminum by 100,000 tonnes/year (tpy) by 2010, and of steel by 200,000 tpy by 2010, yielding total GHG reductions of 700,000 tpy of CO₂ equivalent.

Under the ER component, one project – Adding Residential Scrap Metal to Municipal Recycling Programs – has been very successful. The Ottawa Valley Waste Recovery Centre (OVWRC) in Pembroke, Ontario, conducted a pilot project that assessed the feasibility of adding scrap metal to an existing curbside recycling program in the participating municipalities. The project contributed to the long-term outcome of reducing GHG emissions with an estimated contribution to GHG emission reductions of about 275 tonnes of CO₂-equivalent over one year. The project has been so successful that it became self-sustainable and was expanded in a regional rollout (about 19,000 households). If the expertise gained in this project was used in a national rollout, the ER component would contribute significantly to reducing Canada's GHG emissions.

According to many interviewees, the main benefit of the ER component was to raise the profile of recycling and to highlight its relationship to reduced GHG emissions. As for the SCM component, many of the expected outputs, short-term outcomes, and intermediate outcomes of the ER component have been accomplished to date (e.g., active networks and information exchange, improved understanding of Canadian impediments to recycling and, although at a small scale and based on estimates, GHG emission reductions have been achieved). See Appendix A – Figure 2: Logic Model of the ER Component.

5.3 Concrete Roads (CR)

Action Plan 2000 aimed to reduce greenhouse gas emissions from Canada's heavy goods vehicles by increasing the proportion of concrete roads used by such vehicles. Concrete roads are much more rigid than conventional asphalt roads, and heavy vehicles encounter significantly less rolling resistance on them. The resulting fuel savings were expected to be in the order of 15%, which would reduce both the overall cost of transportation and emissions of greenhouse gases. The GHG reductions, given appropriate design decisions, were estimated to reach 500,000 tonnes/year by 2010.

The Program was not funding actual road construction, instead it provided education and information about concrete roads. As well as emphasizing the GHG benefits of concrete roads, the Program provided information about the overall benefits of concrete roads, as follows:

• on a life cycle basis, they are cheaper than asphalt roads;
• requiring less maintenance on average, there is less traffic disruption, which saves both fuel and time for transportation; and
• their lighter colour reduces lighting costs, making them inherently safer.

The main benefit of the concrete roads project was that it identified the fuel-saving advantages and disadvantages of different pavement materials (i.e., concrete, composite, and asphalt) in different conditions. This information will be highly significant to provincial ministries of transportation for the selection of surface types to use in different areas.

For example, the Ministère des Transports du Québec plans to integrate the knowledge generated in its Life Cycle Analysis (LCA) model. The model will be used to determine which surface type has the lowest laying costs, maintenance and operation costs, and various other advantages and disadvantages, such as eco-efficiency.

The study also revealed that surface type was not as important as its quality in reducing GHG emissions. As such, the study identified a better way through which GHG emissions could be reduced—by increasing pavement quality irrespective of the type of pavement—and recommended further research in this direction. The project also generated interest internationally (e.g., transportation ministry in France is awaiting the final report of the concrete roads project).

The Concrete Roads component was wound down after its initial objective—to validate fuel savings from running heavy vehicles on concrete instead of asphalt roads—had been reached. Some interviewees argued that the component had not been useful because the fuel savings on concrete versus asphalt roads were not as significant as expected. However, those who gave a negative score to this project may not have considered that its goal was to verify the results of the first phase. Although perceived as a negative outcome, the goal of verifying results of the first phase was accomplished, confirming that the fuel savings on concrete versus asphalt roads were not as significant as expected. In addition, although the contribution of this area to the reduction of GHG emissions will not be as significant as expected, the "Effect of Pavement Type on Vehicle Fuel Consumption" project produced some interesting results mentioned above.

5.4 Studies/Monitoring for Greenhouse Gas (GHG)
Reduction Potential (STU)

Action Plan 2000 aimed to increase knowledge of opportunities for reducing GHG emissions in the minerals and metals sector, beyond those targeted in the other three components (SCMs, ER and CR). There remain many areas where there is insufficient knowledge of actual GHG emissions and where the potential to reduce GHG emissions exists. For example, more knowledge is required on the actual methane emissions from coal mines and on improving the efficiency of ventilation systems in underground mines (i.e., ventilation consumes 30% of all electricity used in underground mines).

There was no direct reduction in GHG emissions arising from this component. Instead, the Program examined areas where improved knowledge and understanding can enhance current programs, and potentially lead to new programs that will reduce GHG emissions.

5.5 Life Cycle Analysis (LCA) (also known as
"Cradle-to-Grave")

The concept behind Life Cycle Analysis (LCA) models is to encourage people to think of waste (materials at the end of the life of a product) as resources. One of the initial objectives of the Program common to all components, and that received marginal attention, is the development, adaptation, and promotion of LCA models for subsequent adoption by decision makers. Only 40% of interviewees believed the Program played a role in the development and/or adoption of LCA models in the minerals and metals sector, and of these respondents, most were unable to provide a single example of the use of LCA in the MMP. While used in certain MMP projects, LCA models were not a major aspect of the Program.

Within the SCM component, the "LCA Sustainability of High Performance Concrete Structures" project specifically addressed LCA. The project aimed to develop a LCA model of SCM concrete structures to determine the sustainability of their use in the construction industry. The analysis balanced the climate change benefits of the replacement of cement with the durability of the SCM concrete structures. The findings suggested that structures with SCMs had longer lives than conventional concrete structures.

In the ER component, three projects specifically addressed LCA:

• "Characterization of the Stocks and Flows of Nickel",
• "By-Product Synergy - Greenhouse Gas Life Cycle Analysis", and
• "Sustainable Design for Buildings: A National Standard". ⁵

The latter project was aimed at promoting sustainable design practices and the efficient use of materials and resources in building construction. Thus, the Canadian Standards Association (CSA) and members of the CSA Technical Committee have developed a Guideline on Sustainable Design for Buildings. The guideline provides direction on methods to reduce construction waste and to enhance recycling through sustainable design principles and practices that ease material disassembly and recovery in the demolition of buildings. The guideline, which could eventually become a standard, is applicable to new and existing buildings and takes into account LCA concepts according to the ISO 14040 series of standards, design approaches, and design criteria to maximize material recovery and minimize waste.

The SCM and the ER component have filled the objective of promoting LCA models, a short-term outcome of both the EER and ER components (see the EER and ER logic models presented in appendix A – Figure 1 and Figure 2).

5.6 Overall Impact of the MMP

Despite the information, knowledge, and solutions brought about by the MMP, the majority of interviewees were in agreement that the impact on GHG emission reductions has not been measured but that the results generated by many projects had significant potential to reduce GHG emissions.

About 60% of the key informants felt that the targeted audiences had not applied the solutions for reducing GHG emissions that had been developed or promoted under the Program. The lack of implementation was likely, at least in part, due to the lack of a systematic communications strategy.

At this stage, it is not possible to determine the extent to which the MMP achieved its long-term goals; 72% of respondents indicated that the impact of the Program in terms of GHG emission reductions have not been measured, and there is virtually no evidence of actual measurements of the MMP's GHG emission reductions (with the exception of the OVWRC project). In the absence of performance indicators collected on an on-going basis, it is difficult to ascertain the Program's level of success based on the targeted 1.65 Mt GHG reductions by 2010.

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6. COST-EFFECTIVENESS

Close to 90% of interviewees believed that the small- and medium-size projects funded under the MMP constitute a good approach for NRCan to help Canada meet its commitments under the Kyoto Protocol.

According to almost 100% of interviewees, cost sharing was seen as an important, if not essential, aspect of the Program. Based on Program data, the estimated leverage in the MMP more than met the target of matching funds from partners. The aggregate contribution from partners for all projects during the five years was estimated at an average of $4.19 for each $1.00 of program funding. However, data for actual funds leveraged were not collected after the completion of the projects.

Some concerns were expressed with respect to the accuracy of leverage estimates due to the difficulties in monitoring in-kind contributions. Some respondents believed that in-kind contributions were not always as important as stated in project proposals, so the leverage achieved is likely below that estimated in project proposals.

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7. DESIGN AND DELIVERY

The overall performance of the MMP would have benefited from a different design and delivery structure. The major limits in the design and delivery of the MMP were due to the lack of:

• a strategic plan for two of the four components of the Program;
• a rigorous selection procedure for proposals; and
• a well-defined communications strategy for disseminating the Program's information.

Once projects were approved, quality control mechanisms were applied in the monitoring of the projects. For instance, the MMP implemented mechanisms (such as milestone payments and review of reports prior to making final payments) to ensure that projects were delivered as planned and that performance standards were respected. About 70% of interviewees mentioned that projects were monitored by the Secretariat and evaluated at their completion by the project's specific component Advisory Committee (i.e., ER, SCM, CR or STU).

7.1 Strategic Plan

Many interviewees believed that the Program never had a proper strategic plan. In addition, only half of the key respondents felt that the four Advisory Committees established priority areas for funding prior to defining project themes and requesting proposals. In fact, the SCM and CR components developed five-year strategic plans identifying keys areas for funding support, whereas projects in the other components (ER, STU) were selected on an ad-hoc basis.

Despite the lack of well-established priority areas for funding support in two of the four components, interviewees believed that Advisory Committee members have been effective (42% of interviewees) or highly effective (30% of interviewees) in putting forward ideas for projects under the MMP. Many interviews revealed that the heterogeneous composition of the Advisory Committees produced a wide range of projects addressing many aspects of GHG emission reductions through the use of the minerals and metals industry. In addition, 72% of interviewees at the project level believed that Advisory Committees have been effective at ensuring that projects offered great value-for-money.

7.2 Rigorous Selection Procedure for Proposals

The absence of a rigorous project selection procedure increased the risk of subjective and self-interested assessment of project proposals. Close to 70% of interviewees stated that Advisory Committee members were not provided with a formal grid for benchmarking proposals, and many interviewees appeared to have used their own sets of evaluation criteria. Despite this, interviewees contended that the main criteria used by most members were objective. These criteria included:

• fit with the program's mandate (i.e., implication for GHG emissions, not R&D);
• capacity of the proponent to achieve the work;
• project's budget;
• leverage;
• novelty (i.e., not a replication);
• current lack of information; and
• cost per ton of CO₂ equivalent reduction.

Close to half of the selected projects came from committee members' proposals, and selected projects largely involved individuals and organizations in Ontario. Federal departments were awarded nearly 47% of projects (half of which were executed by CANMET Mineral Technology Branch, NRCan's science and technology arm in the Minerals and Metals Sector) while 19% of the projects were awarded to industry or universities. This is balanced by the fact that more than 50% of the projects involved associations representing interests from all regions across Canada.

The lack of competition in the selection process may be partly explained by the decision not to provide for a formal and widely diffused Request for Proposals, which may have resulted in the involvement of a wider spectrum of Canadian stakeholders from the minerals and metals sector. Consequently, there is no assurance that selected projects offered the best value-for-money, as competition was almost non-existent. The document review identified only a few instances of competing proposals.

About 18% of proposals were rejected (19 out of 107 proposals): 10 by Advisory Committees and 9 by the Steering Committee. One explanation for the relatively small number of proposals is that the committee chairs pre-screened proposals to ensure that they fit the mandate of the Program prior to submitting them to Advisory Committees. It would have been advisable to involve other members from government and from non-governmental organizations (e.g. universities, industry, and associations) in the pre-screening of proposals.

Some respondents believed that a formal process for soliciting proposals would have increased competition for program funds, resulting in more creative and valuable projects. On the other hand, some interviewees worried about the increase in associated administrative costs and some committee members said they would not have continued if they had to review a larger volume of proposals.

7.3 Communication Strategy and Dissemination Activities

The main approach for diffusing project results was through committee members. Although many of the stakeholders involved in the committees were located in Ontario, at least 15 associations were represented on Advisory Committees so that the Program had a chance to reach key audiences throughout Canada. Many committee members considered associations to be the best vehicle for knowledge dissemination to specific audiences. However, some association members raised the issue of their limited resources, which were often insufficient to allow the many reports on projects funded by the Program to be thoroughly reviewed in order to select those most pertinent to their members.

Significant dissemination efforts occurred under the Supplementary Cementing Materials (SCMs) and Enhanced Recycling components. Under the SCM component, proponents conducted outreach activities and developed a number of communication tools such as:

• SCM website presents general information on the Program, its objectives, the funded projects, and the results of these projects;
  
  
• The Association of Canadian Industries Recycling Coal Ash (CIRCA) produced a video series on coal combustion products (CCP) as SCMs;
  
  
• CIRCA fact sheets provide technical information on the use of CCPs for specific applications);
  
  
• CIRCA prepared a web-based educational unit for use by Civil Engineering students; and
  
  
• CIRCA, with support from the MMP, is conducting a National Seminar Series on SCMs.

Under the Enhanced Recycling (ER) component, diverse dissemination activities have been conducted such as:

• The ER website provides general information on the Program, its objectives, and the projects it funds and their results;
  
  
• The R-Net Recycling Technology Newsletter used as a platform to publish information pertaining to the ER component;
  
  
• Consultations that were conducted across Canada on the development of a Canadian Resource Recovery Strategy; and
  
  
• Fact sheets that establish links between recycling and the reduction of GHG emissions are available on the ER website.

Although the other Program components did not specifically make information dissemination a priority, some outreach projects were conducted in all of them. For the Concrete Roads (CR) component, some information is available on the website of the Cement Association of Canada under "transportation". This component was halted and the committee decided to downplay outreach until finalisation of the report on Effects of pavement structure on vehicle fuel consumption.

Some dissemination activities occurred in the Studies and Monitoring for GHG Reduction Potential (STU) component, including publications, conference presentations and guidance manuals. However, the dissemination approaches were not as diversified and there was no website, making it difficult for industry stakeholders and the public to access information. A single website could have been created for the whole Program with links to relevant websites such as the Climate Change website. Many of those interviewed had little knowledge about the work of other committees, and the current websites (i.e., the ER and SCM websites) are not well-known, even to some Advisory Committee members.

The MMP would have benefited greatly from a systematic approach to information and knowledge dissemination. About 80% of interviewees were aware that activities had been carried out under the Program to disseminate the information and knowledge generated and that organizations in their sector had been touched by dissemination activities. However, about 70% of interviewees believed that other means of dissemination would have been more effective. In fact, some respondents were concerned about the possibility that if the Program is not extended some of the final project reports would never be disseminated.

Interviewees made some suggestions that would help improve the dissemination of knowledge and information. For example, they suggested making seminars/workshops interactive on the web to give access to a wider audience across the country.

7.4 Governance Structure

In terms of managing the MMP, 91% of interviewees believed that the secretariat did a good job at coordinating the Program's activities while minimizing its burden on the program's financial resources. Some interviewees mentioned that the secretariat was stretched in terms of human resources, and 33% of interviewees thought it needed more resources.

The Program, through the creation of four Advisory Committees (i.e. ER, SCM, STU, and CR) plus a Steering Committee, led to the establishment of active networks of stakeholders working collectively on the issue of reducing GHG emissions.

According to the interviews and the documentary evidence, there was a lack advertisement to identify possible committee members outside the group and there were no public calls for proposals for projects under the MMP. This meant that there was excessive reliance on a relatively small group of people to propose, select, and execute projects. Some committee members felt that the Advisory Committees had neither appropriate regional nor linguistic representation. In fact, about half of the members of Advisory Committees were from Ontario.

Advisory Committee members were responsible for suggesting project themes, and many subsequently submitted proposals following up on these themes. Committee decisions over funding recommendations were not based on anonymous votes but were the subject of open discussions involving all committee members including committee members who were defending their own proposals, thus increasing the potential risk of conflicts of interest. Seventy-eight percent of the committee members interviewed felt that each committee member had the same influence in recommending proposals; 85% of interviewees indicated that they had not had any difficulty in expressing their views regarding the value of proposals.

Advisory Committee members were recipients in about 45% of the projects funded by the MMP. In this context, it was not surprising to find that about 25% of interviewees believed that Advisory Committees have experienced situations involving potential conflicts of interest. Some interviewees stated that the final decisions for funding support were made by the Steering Committee, thus minimizing the risk of conflicts of interest arising from Advisory Committee members evaluating their own proposals.

The absence of a rigorous selection procedure for proposals contributed to the appearance of conflict of interest. Well-defined selection criteria, ensuring a fair and transparent selection process would reduce the appearance or the potential for conflicts of interest.

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8. CONCLUSION

The evidence indicates that the MMP has made progress towards the goal of reducing GHG emissions, but actual GHG emission reductions have yet to be realized. The cost-effectiveness and quality of projects would likely have improved with a more competitive selection process. A governance structure recognizing the distinction between project proponents, Advisory Committee members and Steering Committee members would have removed the possibility and appearance of conflicts of interest. There is also evidence to suggest that the Program's impact would have been greater if a more extensive and systematic communications strategy had been in place.

Eighty percent of interviewees believed that the next step towards achieving the MMP's objective of reducing GHG emissions lies in the outreach work that will lead to the implementation and uptake of research findings and solutions. According to most interviewees, discontinuing the Program at this point would be a great waste of all the useful information, knowledge, and solutions that have been developed so far. In fact, 92% of members interviewed feel that the Program should be extended, and 68% would like to see it expanded.

To guarantee its continued relevance and to achieve the targeted reduction of 1.65 Mt by 2010, the MMP needs more specific objectives and more strategic planning focussed on adoption of research results (i.e., implementing solutions developed under the MMP). This would be facilitated by an annual compilation of the potential GHG reductions from each project in a document that would identify promising solutions and best practices.

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9. RECOMMENDATIONS AND MANAGEMENT RESPONSES

Recommendation #1: Deployment Strategy

It is recommended that the ADM (Assistant Deputy Minister) of the Minerals and Metals Sector ensure that the Minerals and Metals Program communicate the results of its completed projects in order to encourage decision-makers to implement projects that will result in GHG reductions.

Management Response

Accepted. The Program was extended until March 07, under the Supplementary Cementing Materials (SCMs) component, the interim funding is to specifically conduct two activities. The first is the dissemination of existing results through focus group meetings with owners and specifiers across the country. The second is the development of a mechanism to calculate GHG reductions due to the use of SCMs in the construction sector, followed by a review of the current situation of SCMs use in cement/concrete. This would allow for an assessment of the impact of Program impact on CO₂ emissions in the cement/concrete industry. The Technical Advisory committee has reconvened. Proposals for these activities are in progress.

Under the Enhanced Recycling component, the interim funding will be used to disseminate the existing reports by translating and uploading all reports to the Enhanced Recycling web site and by attending and presenting at conferences and meetings. The plan for moving forward in this fiscal year has four elements:

1. the identification of products and materials that demonstrate significant GHG emission reductions via increased recycling;
2. the development of commitments (in-kind and/or financial) with partners to actually move forward;
3. the preparation of implementation plans for each of the targeted materials/products; and
4. the establishment of tracking systems to measure program performance (i.e. recycling tonnage increases and GHG emission reductions).

The Enhanced Recycling Advisory Committee has also been reconvened and it will assist in all aspects of the extended program including the distribution of key findings and lessons learned.

Date of completion: March 2007.

Recommendation #2: Selection procedure for proposals

It is recommended that the ADM of the Minerals and Metals Sector ensure that the Minerals and Metals Program implement a formal selection procedure for proposals with well-defined criteria and solicit project proposals more broadly. Future project proposals should include a communication component as well as the potential for GHG reductions.

Management Response

Accepted. The Program was extended for the wrap-up of the two existing components. If new projects are undertaken, a plan will be developed to clarify governance, identify the types of projects that will be considered and establish a formal selection process, including conflict of interest guidelines. Projects will be required to include a plan for disseminating results and estimates of GHG emission reductions associated with the project.

Date of completion: March 2007.

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APPENDIX A: LOGIC MODELS

Figure 1: Logic Model of the Enhanced Emission Reductions (EER) Component - Chart Format

(Text Format)

Figure 1: Logic Model of the Enhanced Emission Reductions (EER) Component - Text Format

(Chart Format)

Activities Working to change concrete standards and specifications Increasing the available knowledge and understanding of ways to reduce GHG (greenhouse gas) emissions in the mine & mineral sector by gathering data and providing analysis and technical information Conducting seminars, disseminating ananlysis results and developing networks Outputs Modification of existing standards and guidelines that encourage the use of SMCs (Supplementary Cementing Materials) in particular applications Techniques for lifecycle analysis Sound data on current GHG emissions in mine & mineral sector and on SCM availability and quality Increased knowledge of the benefits of SCM use in particular applications among target audiences Analysis of opportunities to further reduce GHG emissions from mine and mineral sector activities Seminars, workshops and information dissemination Short-term outcomes LCA (Life Cycle Analysis) adopted by decision-makers Availability of quality SCMs accepted by decision-makers Improve knowledge of source and extent of GHG emissions Improved understanding of further opportunities to reduced GHG emissions Presentation and imformation transfer to networks and stakeholders Intermediate outcomes Changes made to standards and specifications Informed decision-makers, with strong network support, and shared practices Long-term outcomes Reduction in GHG emissions and Increased use of SCMs Implementation of improvements in existing programs, as well as proposals for new programs as well as foundation for future decision-making

Figure 2: Logic Model of the Enhanced Recycling (ER) Component - Chart Format

(Text Format)

Figure 2: Logic Model of the Enhanced Recycling (ER) Component - Text Format

(Chart Format)

Activities Providing technical and economic information Establishing a National Recycling Council and other networks Outputs Sound data on recycling practice and opportunities, including LCA (Life Cycle Analysis) Information on recycling practice in other countries Analysis of obstacles to increased recycling Council meetings, seminars and information dissemination Short-term outcomes LCA adopted by decision-makers Practices from other countries adapted to Canada Improved understanding of Canadian impediments to recycling Active networks and information exchange Intermediate outcomes Informed decsion-makers, with strong network support, and shared practices Long-term outcomes Infrastructure in place for inhanced recycling / Significant increase in recycling Reduction in GHG (greenhouse gas) emissions

 

¹ Government of Canada. 2000. Government of Canada Action Plan 2000 on Climate Change, Catalogue no. M22-135/2000E, 18 pages.
² Government of Canada. 2002b. Climate Change Plan for Canada, Catalogue no. 0-662-33172-9, 74 pages.
³ Government of Canada. 2005. Moving Forward on Climate Change: A Plan for Honouring our Kyoto Commitment, Catalogue no. En84-15/2005, 55 pages.
⁴NRCan MMS' Canadian Mineral Yearbook, November 2005.
⁵Enhanced Recycling: Project Summaries