Turn It Off: Reducing Vehicle Engine Idling
Final Report

Prepared by
Mckenzie-Mohr Associates
Lura Consulting
January 2001

Executive Summary

While a wide array of public activities contribute to greenhouse gas emissions, one stands out for the potential ease with which it can be altered. This activity involves having motorists turn their engines off while parked and waiting in their vehicles (e.g., when picking children up from school or when waiting to pick up commuters from transit "Kiss and Ride" parking lots). While other activities, such as commuting, clearly play a more critical role regarding emissions, engine idling behaviour is far more amenable to being altered. Further, broad public participation in this activity can be used in future campaigns to leverage more meaningful and challenging changes in behaviour. Additionally, reducing engine idling has the added benefit of lowering smog emissions and promoting the health of those individuals who are frequently exposed to emissions from idling engines.

Project Funders and Partners

The Turn it Off project involved a unique, multi-sectoral partnership that was initiated by Environment Canada, Ontario Region, and developed in conjunction with McKenzie-Mohr Associates and the Ministry of the Environment. Project funders included the Federal Government's Climate Change Action Fund, the City of Toronto (Toronto Atmospheric Fund), the Ontario Ministry of Environment's Drive Clean Office, and Environment Canada, Ontario Region. Representatives of these agencies sat on the Turn it Off Steering Committee, which provided direction and guidance to the Project Implementation Team (PIT) of Lura Consulting and McKenzie-Mohr Associates. In turn, the PIT worked very closely with local municipal and community partners to develop and implement the project. These local partners included:

• City of Toronto (Works and Emergency Services; Health Department);
• Toronto District School Board;
• Toronto Catholic District School Board; and
• Toronto Transit Commission.

Project Objectives

The overall objectives of the Turn it Off project were to:

• Examine ways to reduce engine idling by members of the public while they wait in their vehicles;
• Increase community awareness of the importance of reducing greenhouse gas emissions from individual actions, such as engine idling;
• Develop knowledge and expertise in the use of the innovative approaches of community-based social marketing;
• Promote voluntary compliance with the City of Toronto's Idling Control By-Law; and
• Provide the foundation for future community-based programs to address engine idling.

Approach and Methodology

The Turn it Off project used the unique methodologies of community-based social marketing (CBSM) to encourage members of the public to avoid idling their engines while waiting in their vehicles. CBSM is an innovative approach to facilitating behaviour change, emphasizing personal contact and communications, and provides an attractive alternative to traditional information-intensive public outreach campaigns. It involves identifying the barriers to an activity, designing a strategy to overcome these barriers using knowledge from the social sciences, piloting the strategy to ensure that it is successful, and then implementing it on a broader scale. This project followed a series of sequential steps in developing and applying CBSM strategies at community locations (schools and Toronto Transit Commission "Kiss and Ride" parking lots) in the City of Toronto:

1. Barrier Identification: Existing research on barriers and motivations relating to the behaviour of engine idling while waiting in a vehicle was reviewed and consolidated. This research indicated that an effective social marketing strategy would need to:
   • remind drivers to turn off their engines;
   • clarify the brief length of time that a vehicle should be idled for before being turned off (10 seconds);
   • develop community norms that support turning off an engine as the "right thing to do"; and
   • be delivered during warmer months, as comfort and safety are important reasons for why idling occurs seasonally.
     
     
2. Strategy Design: Two CBSM techniques were considered to encourage motorists to avoid idling their vehicle engines while waiting. Prompts or signs are visual or auditory aids that remind people to carry out an activity that they might otherwise forget. It was envisioned that signs would be placed in close proximity to where motorists idle their vehicles to remind them to turn their vehicle engines off. Second, commitment strategies were considered. Gaining a commitment to turn off a vehicle engine could potentially be a powerful factor in reducing idling, especially if these pledges were public. Further, making these commitments public might assist in the development of community norms that turning off an engine is "the right thing to do."
   
   
3. Focus Groups: Focus groups were conducted to seek feedback on the proposed strategies; Three focus groups were held in the City of Toronto in early May. Two of these sessions involved drivers who drop off/pick up children from schools, and one involved drivers who drop off/pick up passengers at a TTC "Kiss and Ride" area. The primary purpose of these sessions was to obtain feedback from typical drivers on the proposed strategies and communications materials for the pilot. The participants made a variety of suggestions regarding the graphics and communications that had been proposed. One of the most significant contributions regarded the anti-idling pledge card that had been prepared. Participants expressed concerns that drivers may feel uncomfortable about signing the pledge cards due to privacy issues.
   
   Based on the feedback from the focus groups, the following communications approaches were developed:
   • "No Idling" Signs – A minimum of four temporary signs were prepared for each location to encourage drivers to turn their engines off while waiting. These signs were mounted on concrete bases in order that they could be placed in highly visible locations at each site.
   • "No Idling" Window Stickers – Commitments in this project were obtained and made public by asking motorists to place a sticker in their window that said "For Our Air: I Turn my Engine Off When Parked."
   • Information Card – Motorists from whom commitments were sought were also provided with an information card that indicated that reducing idling would save money, reduce air pollution and decrease greenhouse gas emissions.
   
   
4. Strategy Application – The testing of the CBSM techniques involved three stages: baseline data collection; implementing the interventions; and collecting follow-up data.

Baseline Data Collection

Baseline measures taken for ten days to determine the frequency with which motorists idle their vehicle engines while waiting at 12 locations (6 schools and 6 TTC Kiss and Ride sites). The duration of idling was also measured. These measurements were taken using random time sampling. Random time sampling involves selecting random, small time intervals (e.g., 30 minutes) during which the behaviour of motorists at parking lots is observed. In identifying time periods for measurements, consideration was given to times when motorists were most likely to idle their engines (e.g., end of the school day; end of work day at TTC Kiss and Rides).

Interventions

Following these baseline measurements, the CBSM techniques were tested by randomly assigning the six sites in each category (school and TTC) into three groups of two. Two schools and two TTC sites had signs prominently placed in locations where motorists frequently idle (signs only condition). Two schools and two TTC sites also received the signs but in addition commitments were sought from motorists. These motorists also received the information card. Finally, two schools and two TTC sites received neither the signs, commitments or information cards. These four sites served as a control against which changes in the other conditions could be compared.

Follow-Up

Once the strategies had been implemented, follow-up measurements were obtained for ten days, again using random time sampling. All measurements in this project were made between the last two weeks of May 2000 and third week of July 2000. The intervention was delivered first at the schools and then at the TTC locations.

A small team of "project monitors" was hired to collect baseline data, implement the interventions, and conduct the follow-up measurements. These monitors were carefully trained to collect and record data, and to properly identify idling vehicles (e.g., look for exhaust, vibrating tail-pipe or antenna, vehicle noise). Data recording forms and "tip sheets" were prepared to assist monitors and ensure a consistent approach to data collection.

Pilot Results and Recommendations

Overall, in the course of this project 8435 observations of motorists' idling behaviour were made. Given the large number of observations made, these findings are likely indicative of what would occur if this project were implemented on a larger scale. During the baseline period, 53% of motorists were observed idling, suggesting that significant opportunity exists to reduce idling through the application of community-based social marketing.

The combination of commitment and signs reduced idling by 32% and idling duration by a staggering 73%. The signs by themselves did not reduce idling incidence or duration. Analysis by site location (school or TTC) revealed that the combination of signs and commitment was particularly effective in school settings. In total, 2377 observations were made of motorists' idling behaviour at the school sites. At school sites the combination of signs and commitment reduced engine idling by 51% and duration by 72%. In total, 6058 observations were made of motorists' idling behaviour at the TTC sites. As with the schools, the combination of signs and commitment was the most effective strategy in reducing both idling incidence and duration. At TTC Kiss and Ride sites the combination of signs and commitment reduced engine idling by 27% and duration by 78%.

The combination of signs and commitment had a significant and consistent impact upon idling incidence and duration. Since baseline observations revealed that over 50% of motorists idled their vehicle, this strategy has considerable potential for reducing emissions from idling. Given the particular success of this pilot at schools, we suggest that priority be given to the preparation of a toolkit that provides schools in Toronto and beyond with the knowledge and communication materials necessary to enable them to quickly implement anti-idling initiatives. We further suggest that individuals be hired, perhaps through the presently developing provincial and territorial climate change hubs, to coordinate and assist schools and other sites with the implementation of anti-idling programs. The above-mentioned toolkit will also be of value to municipalities and community groups that want to take action on the issue of idling in their communities.

The wider dissemination of this project should be accompanied with further refinement of the strategy. For example, commitments are most likely to be effective when made to individuals we know. This suggests that commitments made by drivers of taxis, buses, and trucks, for example, are most likely to be successful when made to a colleague (or fleet operator) and when accompanied with public displays of this commitment (such as the window sticker that was used in this project). We suggest that further piloting be done with motorists that were not studied in this pilot (bus drivers, truckers, etc.) and with non-municipally controlled locations (such as hotels and taxi-stands). These pilots would allow for further refinement of the community-based social marketing strategies and the eventual dissemination to a much broader audience.

By coupling the community-based social marketing strategy with a media advertising campaign, it may be possible to quickly influence the behaviour of large numbers of individuals and in so doing quickly develop new norms in which turning off an idling engine is perceived as the socially appropriate thing to do. Accordingly, we suggest that a media advertising and communications campaign be developed, perhaps as part of NRCan's single issues campaign.

The findings from this project clearly indicate that personal contact is an essential part of curbing idling – as evidenced by the fact that the signs by themselves were not effective in reducing idling. While personal contact and the obtaining of commitments will need to remain as a central aspect of future anti-idling initiatives, these initiatives could be bolstered by a background media campaign. We envision the development of media materials (radio, television and print materials) that provide a backdrop for community-based initiatives. That is, the media materials could dispel myths regarding how long a vehicle should be idled before being turned off. Further, it could help to establish this behaviour as the normative or "right thing to do".

We suggest, given the importance of personal appeals in changing behaviour, that the advertisements themselves utilize personal appeals that encourage motorists to make a personal commitment to reduce idling. These advertisements should also be branded along with the community-based materials so that a clear connection is made between the backdrop advertising and the community initiatives. As with all CBSM initiatives, the use of these advertisements should be piloted in different communities in conjunction with the sign and commitment approach researched here to find which combination of advertisements and personal communications is most effective.

In Summary

A successful anti-idling campaign can serve as a catalyst for public involvement in the reduction of greenhouse gas emissions in Canada. Idling in Canada is ubiquitous. Its prevalence provides an opportunity to engage millions of Canadians in an activity that has a direct relationship to climate change and air quality. This project clearly demonstrated that this behaviour can be quickly and cost-effectively altered through the use of community-based social marketing approaches. By combining such local approaches with a national anti-idling campaign it is possible to change the behaviour of millions of Canadians and to use this behavioural change as a foundation for increasing Canadians' knowledge of climate change and the role each of us plays in its abatement. As such, a national initiative to curb idling may mark for many a personal transition that leads to engaging in other climate friendly activities as well as supporting policies that reduce emissions.

1.0 Introduction

While a wide array of public activities contribute to greenhouse gas emissions, one stands out for the potential ease with which it can be altered. This activity involves having motorists turn their engines off while parked and waiting in their vehicle (e.g., when picking children up from school or when waiting to pick up commuters from transit "Kiss and Ride" parking lots). While other activities, such as commuting, clearly play a more critical role regarding emissions, engine idling behaviour is far more amenable to being altered. Further, broad public participation in this activity can be used in future campaigns to leverage more meaningful and challenging changes in behaviour. Additionally, reducing engine idling has the added benefit of lowering smog emissions and promoting the health of those individuals who are frequently exposed to emissions from idling engines.

1.1 Project Funders and Partners

The Turn it Off project involved a unique, multisectoral partnership that was initiated by Environment Canada, Ontario Region, and developed in conjunction with McKenzie-Mohr Associates and the Ministry of the Environment. Project funders included the Federal Government's Climate Change Action Fund, the City of Toronto (Toronto Atmospheric Fund), the Ontario Ministry of Environment's Drive Clean Office, and Environment Canada, Ontario Region. Representatives of these agencies sat on The Turn it Off Steering Committee, which provided direction and guidance to the Project Implementation Team (PIT) of Lura Consulting and McKenzie-Mohr Associates. In turn, the PIT worked very closely with local municipal and community partners to develop and implement the project. These local partners included:

• City of Toronto (Works and Emergency Services; Health Department);
• Toronto District School Board;
• Toronto Catholic District School Board; and
• Toronto Transit Commission.

The PIT gratefully acknowledges the involvement of these organizations and individuals who made the Turn it Off project possible.

1.2 Project Objectives

The overall objectives of the Turn it Off project were to:

• Examine ways to reduce engine idling by members of the public while they wait in their vehicles;
• Increase community awareness of the importance of reducing greenhouse gas emissions from individual actions, such as engine idling;
• Develop knowledge and expertise in the use of the innovative approaches of community-based social marketing;
• Promote voluntary compliance with the City of Toronto's idling-control by-law; and
• Provide the foundation for future community-based programs to address engine idling.

1.3 Approach and Methodology

The Turn it Off project used the unique methodologies of community-based social marketing (CBSM) to encourage members of the public to avoid idling their engines while waiting in their vehicles. CBSM is an innovative approach to facilitating behaviour change, emphasizing personal contact and communications, and providing an attractive alternative to traditional information-based public outreach campaigns. It involves identifying the barriers to an activity, designing a strategy to overcome these barriers using knowledge from the social sciences, piloting the strategy to ensure that it is successful, and then implementing it on a broader scale. This project followed five steps in developing and applying CBSM strategies at community locations (schools and Toronto Transit Commission "Kiss and Ride" parking lots) in the City of Toronto:

1. Barrier identification – existing research on barriers and motivations relating to the behaviour of engine idling while waiting in a vehicle was reviewed and consolidated;
2. Strategy design – CBSM strategies and associated methodologies to test promising behaviour change approaches were developed;
3. Focus groups – focus groups were conducted to seek feedback on the proposed strategies;
4. Strategy application – CBSM strategies were applied at selected community locations where engine idling was occurring; and
5. Report and project transfer – the previous steps were summarized in this document along with findings on the most effective strategies and opportunities for broader implementation in Toronto and other Canadian municipalities.

2.0 Barrier Identification

Two studies were identified that had previously explored behaviours related to engine idling. (First study: Phase 5 Consulting Group (1998). Research related to behaviour that impacts fuel consumption. Report prepared for Natural Resources Canada. Second study: McKenzie-Mohr Associates, Lura Consulting, and Cullbridge Marketing and Communications (1999). Evaluation of barriers to participation by individuals in GHG reduction activities. Report prepared for the Public Education and Outreach Education Issue Table). Each is briefly reviewed below and summarized regarding their relevance to this project.

2.1 Public Education and Outreach

As part of the Climate Change Public Outreach Issue Table's 1999 barrier research project, a national survey was conducted to determine perceived barriers and motivations to turning off idling vehicle engines while waiting in a vehicle (to review the full report please see: www.climatechange.gc.ca). Frequency of idling is presented first, followed by information on who engages in the activity and finally barriers and motivators for reducing idling.

Frequency of Idling Vehicle Engines

Respondents to the national survey were asked how many times during the last week they thought they had left their engines running while waiting in their vehicles. In total, 39% of respondents reported idling their engines in these situations. On average, respondents reported leaving their engines running 2.5 times in the previous week (when respondents who did not idle while waiting were excluded, the number of times per week rises to 6.5). The number of times that respondents reported idling while waiting in their vehicles was multiplied by their estimate of how long, on average, they idled their vehicle while waiting. On average, respondents reported idling their cars for 13 minutes during the previous week.

Who Idles?

Frequency of idling was not related to gender, income, education, or year of car model. Younger respondents were more likely, however, to report idling.

Barriers to Idling

Idlers were found to be more likely than non-idlers to:

• report that in cold weather they idled the engine to keep themselves warm;
• be younger;
• be less likely to believe that turning a vehicle engine off when parked is the "right thing to do";
• believe it is easier on an vehicle's starter to let an engine idle;
• believe that for stops of a few minutes, it uses more gas to restart a vehicle than it does to keep it idling; and
• believe that it is good to warm a vehicle engine before driving.

These factors emerged from a larger number of potential discriminators.

Motivations for Reducing Idling

Identifying the barriers that inhibit people from turning off their engines is a critical aspect of developing an effective community-based social marketing strategy. However, it is also important to identify motivations for turning off engines. Accordingly, respondents were asked to rate the importance of several motivations for turning off their engines. In order of importance they were:

• believing that turning your vehicle engine off while parked is the "right thing to do";
• having friends and family who turn their vehicle engines off while parked;
• believing that turning off an idling engine whenever possible saves significantly on gasoline costs; and
• believing that you should turn your engine off even for very short stops.

2.2 Natural Resources Canada

In a study conducted for Natural Resources Canada by Phase 5 Consulting Group, idling was explored through the use of qualitative (focus groups) and quantitative (telephone survey) methods. Key situations in which drivers are likely to idle their vehicles include (based on the percentage of drivers who idle and time spent idling):

• warming the vehicle;
• waiting to pick someone up; and
• doing an errand.

For those that reported idling their vehicle, the average amount of time was 7.7 minutes per day. This average is substantially longer than what was found in the Public Education and Outreach Table study. It is likely, however, that the Natural Resources Canada study provides a more accurate assessment of time spent idling as this project probed for instances of idling very thoroughly. This research also identified reasons why people idle their vehicle in these settings. As the Turn it Off project did not focus on early morning vehicle warming or other forms of warming, rationales are provided for the two other settings. For dropping off and picking up the following rationales were mentioned most frequently:

• comfort;
• not stopping long enough to warrant turning off the engine;
• stopped in an illegal place;
• easier on the car to leave the engine idling;
• listening to music and not wanting to drain battery by turning the engine off;
• thought the stop would be shorter than it was; and
• convenience/laziness.

For errands the following rationales were mentioned most frequently:

• convenience;
• not stopping long enough to warrant turning off the engine;
• stopped in an illegal place;
• comfort;
• faster;
• worried about restarting engine; and
• others more likely to hurry if car left running.

The focus groups revealed that the most frequently mentioned reasons to idle were comfort and convenience. These sessions also indicated a low level of knowledge regarding how long a vehicle should be idled before being driven. Only 5% reported that a vehicle needed to be idled for less than a minute. Further, and importantly for this project, participants reported that a vehicle should be run an average of three minutes before it was worthwhile to turn off the engine while waiting.

2.3 Summary

The findings from these two research projects indicated that an effective social marketing strategy needs to:

• remind drivers to turn off their engines;
• clarify the brief length of time that a vehicle should be idled for before being turned off (10 seconds);
• develop community norms that support turning off an engine as the "right thing to do"; and
• be delivered during warmer months, as comfort and safety are important reasons for why idling occurs seasonally.

3.0 Strategy Design

The development of the Turn it Off strategy involved six stages:

• determining the locations for the strategy implementation;
• identifying suitable sites;
• selecting CBSM strategies;
• testing CBSM strategies with focus groups;
• development of project graphics and communication materials; and
• strategy application.

3.1 Locations for Implementation

In consultation with project partners, the Project Implementation Team initially identified three "categories" of community locations in the City of Toronto that are common passenger pickup points and where engine idling while waiting in vehicles was believed to be occurring. These were:

• schools;
• Toronto Transit Commission (TTC) "Kiss and Ride" parking lots; and
• community centres.

These locations were selected as they are "public" or municipal facilities, with established institutional or management links to the City of Toronto project partners in Public Health and Works and Emergency Services. Other passenger pickup locations, such as shopping centres and taxi stands, were considered, but were deemed as sites for future strategy application, building on the lessons learned from this initial project.

3.2 Site Identification

Eighteen sites (six community centres, six schools, and six TTC Kiss and Ride locations) were to be selected for inclusion in this study. Site identification was conducted in consultation with City of Toronto, TTC and school board representatives, using the following two-step approach:

Step 1: Long List of Potential Sites

A "long list" of 12-14 potential sites in each category was identified in consultation with:

• City of Toronto Parks and Recreation Staff (community centres);
• Toronto Public and Catholic School Boards (schools ); and
• the Toronto Transit Commission (Kiss and Ride locations).

This "long list" was developed using the following site selection criteria:

1. The site must be frequented by a non-transient (i.e., regular) population of drivers.
2. The physical layout of the site must lend itself to the monitors being able to easily and safely identify idling automobiles.
3. The physical layout of the site must lend itself to having signs and/or commitment strategies easily implemented (i.e., there must be places to put the signs, and it must be physically possible for the monitors to be able to approach drivers and ask for a commitment – see section 2.3 for a discussion of these methods).
4. The manager of the site must be willing to participate in the study.
5. The sites should be known as locations where idling takes place.
6. The sites selected should be reflective of the different ethnic and demographic neighbourhoods in the City.

Step 2: Identification of Participating Sites

Once the "long list" was established, a more detailed evaluation of these sites occurred. Through direct observations of potential sites and interviews with facility managers, the physical characteristics and appropriateness of each site was assessed. The interviews helped to identify the opportunities and barriers for strategy implementation at each site, and determine the willingness of facility managers to participate. The site visit and interview protocol is shown below.

Site visit observations:

1. Is this a facility where many drivers idle their engines?
2. Does the facility have a specific area where drivers typically idle their vehicles (e.g., passenger drop-off area)?
3. Is there a sidewalk adjacent to this area so that monitors will be able to discretely and safely identify idling vehicles?
4. Are there places where signs could be posted?
5. Will the characteristics of the site enable the monitors to approach drivers and ask for a commitment?

Interview questions:

1. Is there a regular population of drivers that visit the facility?
2. Is this a facility where many drivers idle their engines?
3. Does the facility have a specific area where drivers typically idle their engines?
4. At what time of the day do you notice the most vehicles idling at the facility?
5. How long do people typically idle their engines for?
6. Does facility management see engine idling as a problem? Why or why not?
7. Have there been any efforts or initiatives to discourage idling at the facility? If so, what were these and were they successful?
8. Would it be possible to post signs at the facility to discourage people from idling their vehicles? Where would the signs be placed so that people see them? Would it be possible to post signs at eye level so that drivers could see them?
9. Do you think signs would make a difference in the amount of engine idling at your facility? If so, how long do you think it would take before you see a change?
10. Do you think drivers would be afraid or uncomfortable if someone approached them to ask them to make a commitment to avoid idling their engine?
11. Is there a location outside or inside the facility where commitments could be posted so that others can see them?
12. If selected, would you be willing to have your facility be part of the pilot study?

At the conclusion of this step, six sites for two of the locational categories were identified (schools and TTC Kiss and Ride). In consultation with the project partners, community centers were dropped as a potential location as managers at these sites indicated that few drivers idled at these locations. Given the cost and time associated with site identification, attempts were not made to develop an additional third category. As described in more detail in Section 3.6, the six sites in each of the two categories (schools and TTC) were then randomly assigned into three equal groups for the purposes of strategy application.

3.3 Selecting CBSM Strategies

Two CBSM techniques were considered to encourage motorists to avoid idling their vehicle engines while waiting. Prompts or signs are visual or auditory aids that remind people to carry out an activity that they might otherwise forget. It was envisioned that signs could be placed in close proximity to where motorists idle their vehicles to remind motorists to turn their vehicle engines off. Second, commitment strategies were considered. Gaining a commitment to turn off a vehicle engine was expected to be a potentially powerful factor in reducing idling, especially if these commitments were made public.

3.4 Focus Groups

Three focus groups were held in the City of Toronto between May 6th and May 10th, 2000. Two of these sessions involved drivers who drop off/pick up children from schools, and one involved drivers who drop off/pick up passengers at a TTC "Kiss and Ride" area. The overall purpose of these sessions was to obtain feedback from typical drivers on: 1) the proposed strategies and communications materials to be used in the pilot; and 2) the current level of awareness and knowledge of idling issues in general, and the City of Toronto's idling-control by-law in particular. Specifically, the objectives of the sessions were:

1. To explore drivers' idling behaviours and their perspectives on engine idling;
2. To explore drivers' awareness of the City's 3 minute anti-idling by-law;
3. To explore drivers' awareness of the link between engine idling and climate change;
4. To obtain drivers' feedback on the wording, look and placement of the anti-idling signs; and
5. To obtain drivers' feedback on the wording, look and use of the anti-idling pledge cards.

Focus Group Participants

Participants for the sessions were recruited randomly from Bayview Middle School, St. Nicholas of Bari Catholic School, and the Islington TTC Kiss and Ride. Drivers at these sites were approached by the PIT and asked if they would like to participate in the sessions. In total 23 drivers attended the three sessions: 6 from Bayview Middle School; 9 from St. Nicholas of Bari; and 8 from the Islington TTC Kiss and Ride.

Summary

This summary identifies overall themes and participant perspectives emerging from the three focus group sessions and provides an "at-a-glance" summary of key feedback from participants at the three resident sessions. Additional details on the specific feedback and comments received from each of the sessions is available separately from the report's authors.

Participants' Perspectives: Driving Habits of Participants

• The majority of participants indicated that they drove their car everyday. On average, participants noted that they typically drive 20,000 km in a year.
• The majority of participants reported that there are times when they wait in their vehicle with the engine running. The main motivation for not turning off the engine is to keep warm in the winter. Participants indicated that they idled their engines anywhere from a couple of minutes up to 40 minutes each day.
• Of the minority of respondents who indicated that they did not idle their vehicles, the most commonly noted reasons drivers gave for turning off their engines was to save money on gas and because of a concern for the environment.

Awareness of Idling Control By-Law

• Most participants were unaware of the City of Toronto's by-law prohibiting drivers from idling their engines longer than 3 minutes. Those that were aware of the by-law indicated that they had heard about it on the television or radio, or learned about it through a friend or their workplace.
• The majority of participants felt that the reason the City has a by-law prohibiting idling is because of concern about air quality and the effects on human health.

Awareness of Link Between Idling and Climate Change

• A small minority of participants were aware that idling creates greenhouse gases that contribute to climate change. These participants tended to be younger than those participants who were not aware of the connection between idling and climate change, and several noted that they had learned about climate change issues in school.

Feedback on Anti-Idling Signs

Participants were presented with several variations of the graphics and communications materials to be used in this project.

• In each session, the majority of participants preferred the term "engine" over the term "idling" because it is less ambiguous.
• The majority of participants preferred the wording "Turn Your Engine Off" although there was considerable support for the inclusion of the word "please". It was generally felt that the phrase "thank you" was too polite.
• While about half of the participants preferred an image of a tailpipe which simply had an exhaust plume and a bar through it, there were a large number of participants who preferred:
  • an image of a tailpipe with money symbols in the plume of exhaust;
  • an image containing a person with their lungs visible; and
  • an image with a little girl standing in the midst of the plume of exhaust.

This indicates that there are a number of different factors that may motivate people to reduce engine idling.

• A majority of participants felt that the effectiveness of the signs might increase if they stated the number of the City's anti-idling by-law and noted the fine that applies for a violation of the law. However, as noted by one participant, there will be those that follow the rules and those that do not.
• Some participants also mentioned the inclusion of a tag line on the signs, e.g., "For our health" or "Spare the air".
• Participants felt that the signs should be colourful, and be posted at eye level in locations where drivers idle.
• The majority of participants felt that the signs should be as large or larger than other signs, such as "No Parking" signs, that drivers might see while they are idling in their vehicles.

Feedback on Anti-Idling Pledge Card

• A majority of participants felt that an anti-idling pledge card would be ineffective. Participants expressed concerns that drivers may feel uncomfortable about signing the pledge cards due to privacy issues. In addition, some participants noted that without enforcement it is unlikely that anyone signing the pledge card will feel obligated to fulfill their commitment. Based on this feedback several commitment strategies were tested and the window sticker presented in the appendix was adopted.
• Participants were supportive of the distribution of the information card and suggested that it could be provided to drivers along with a keychain with an anti-idling logo, or a bumper or window sticker which could be displayed on their vehicle.
• It was suggested that information about the City's idling by-law, as well as further information on the health and environmental effects of idling, be included on the information card that is distributed to drivers.
• The majority of participants felt that it is important for the monitors, who will be approaching drivers, to wear identification badges as well as a T-shirt or hat as an additional form of identification.

Changes as a Result of Focus Groups

Focus group feedback was used to refine and finalize the anti-idling signs. In addition, the anti-idling pledge card was replaced with a window sticker and combined with an information card, as described in the following section.

3.5 Communication Materials

Based on the feedback from the focus groups, the following communications approaches were developed:
"No Idling" Signs – A minimum of four temporary signs were prepared for each location to encourage drivers to turn their engines off while waiting. These signs were mounted on concrete bases in order that they could be placed in highly visible locations at each site.
"No Idling" Window Stickers – These stickers were used as part of the commitment strategy intervention at selected sites. Commitments in this project were made public by asking motorists to place a sticker in their window that said "For Our Air: I Turn my Engine Off When Parked". The following script was used in approaching drivers:

"Good afternoon/evening. My name is ____________ and I am working with the City of Toronto on a project aimed at reducing vehicle engine idling. We want to decrease the harmful emissions that occur when vehicle engines are left running. These emissions, as you may know, decrease air quality and contribute to climate change. We are asking motorists to make a commitment to turn off their engine when they are parked and are waiting in their vehicle. Would you be willing to join the growing number of people who have made a similar pledge and agree to turn off your vehicle's engine when you are parked and waiting in your vehicle? We are asking people who make such a pledge to turn off their vehicle engine to place this sticker on their window. By doing so the sticker will both serve as a reminder to you to turn your engine off, and as a display of your commitment to reduce engine idling. The sticker has been designed so that it can be easily removed from your window at a later time. Would you be willing to attach this sticker to your window? We are also giving out these information cards which explain how turning off your engine can save you money, help you breathe easier and spare the air. Would you like to have one?"

Motorists from whom commitments were sought were also provided with an information card that indicated that reducing idling would save money, reduce air pollution and decrease greenhouse gas emissions.

3.6 Strategy Application

The testing of the CBSM techniques involved three stages: baseline data collection; implementing the interventions; and collecting follow-up data.

Baseline Data Collection

Initially, all three groups had baseline measures taken for ten days to determine the frequency with which motorists idle their vehicle engines while waiting in these locations. The duration of idling was also measured. These measurements were taken using random time sampling. Random time sampling involves selecting at random small time intervals (e.g., 30 minutes) during which the behaviour of motorists at parking lots is observed. In identifying time periods for measurements, consideration was given to times when motorists were most likely to idle their engines (e.g., end of the school day, end of work day at TTC Kiss and Rides).

Interventions

Following these baseline measurements, the CBSM techniques were tested by randomly assigning the six sites in each category (school and TTC) into three equal groups, as shown below.

Signs

• signs prominently placed in locations where motorists frequently idle
• # of locations: 4 (2 in each category)

Signs and Commitment

• signs prominently placed in locations where motorists frequently idle
• commitments sought from motorists to turn off idling vehicles and an information card presented to motorist (see below)
• # of locations: 4 (2 in each category)

Control

• No intervention – the control serves as a comparison against the use of signs alone, and of signs together with commitments
• # of locations: 4 (2 in each category)
  
  

The inclusion of two intervention groups (groups one and two) allowed the PIT to determine if it is necessary to include commitment strategies in order to influence the behaviour of motorists. If the use of signs alone is sufficient, then this approach would be the most cost-effective. However, it was possible that signs alone would not be sufficient, or would be less effective than also using commitment strategies. This strategy design allowed the most cost-effective way of delivering this program on a broader scale to be determined.

Follow-Up

Once the strategies had been implemented, follow-up measurements were obtained for ten days, again using random time sampling.

4.0 Strategy Application

4.1 Timeline

The strategy applications occurred as set out below.

Schools

Baseline: last 2 weeks of May
Implement Interventions: first 2 weeks of June
Follow-up: last 2 weeks of June

TTC Kiss and Ride

Baseline: last 2 weeks of June
Implement Interventions: last week of June/first week of July
Follow-up: second and third week of July

4.2 Project Monitors

A small team of "project monitors" was hired to collect baseline data, implement the interventions, and conduct the follow-up measurements. These monitors were carefully trained to collect and record data, and to properly identify idling vehicles (e.g. look for exhaust, vibrating tail-pipe or antenna, vehicle noise, etc). Data recording forms and "tip sheets" were prepared to assist monitors and ensure a consistent approach to data collection. In each location, the safety of monitors was a prime consideration. Monitors also wore identification badges which indicated that they were collecting information as part of the Turn it Off project.

5.0 Pilot Results

Overall, in the course of this project 8435 observations of motorists' idling behaviour were made. For those motorists for whom gender could be observed, 62% were male. As a consequence of the large number of observations made, these findings are likely indicative of what would occur if this project were implemented on a larger scale. Overall results are presented first, followed by findings for the schools and TTC sites and then additional findings are discussed.

5.1 Overall Idling Percentage

Baseline observations revealed that motorists at the "control," "sign" and "sign and commitment" sites differed in the amount they initially idled. As shown below, before any interventions were begun 54% of motorists at the "control" sites idled their vehicles, compared with 44% at the "sign" sites and 60% at the "sign and commitment" sites (the overall average was 53%). That a majority of motorists were observed idling indicates that there is significant opportunity to reduce idling through the application of community-based social marketing. During the follow-up period, idling was reduced at all three locations. However, since the percentage of motorists idling during the baseline observations differed for these three strategies, comparisons between them are best made by evaluating the percentage reduction that occurred for each (shown as "Reduction" on the following charts). As shown, relative to the baseline measurements, idling decreased by 31% for the control sites, 20% for the sign sites, and 63% for the signs and commitment sites. When compared with the control location, the signs and commitment strategy was responsible for an additional 32% reduction in idling (63% - 31%).

Idling Duration

The monitors recorded not only if a vehicle was idling, but also the duration of time that it idled. As shown, duration of idling varied dramatically by strategy. Those motorists who were at school and TTC sites at which no signs were present and no commitments were sought on average idled their vehicles for 116 seconds during the baseline period and 161 seconds during the follow-up (a 45% increase relative to baseline). In comparison, motorists who were at sites that had signs prompting them to turn off their vehicle engines idled an average of 91 seconds during the baseline and 126 seconds during the follow-up (a 35% increase). In stark contrast, motorists at the signs and commitment sites idled on average for 104 seconds during the baseline period and for 76 seconds during the follow-up (a 28% reduction relative to baseline and a 73% reduction when compared with the control).

Overall Results Discussion

These results indicate that:

• the signs alone were not sufficient to reduce the incidence or duration of idling;
• the signs plus the commitments substantially reduced idling (32%) and idling duration (73%); and
• the reduction in the incidence of idling for the controls may have been due to increased awareness of Toronto's idling-control by-law (a media campaign occurred during this project).

5.2 Schools

Overall, the combination of signs and commitment had a substantial impact upon the occurrence and duration of idling. Analysis by site location (school or TTC) revealed that this strategy was particularly effective in school settings. In total, 2377 observations were made of motorists' idling behaviour at the school sites, 58% of these motorists were female.

Idling Percentage

On average, 41% of motorists in the control condition idled their vehicles during the baseline period compared with 42% during the follow-up. Observations at the sign sites revealed that 36% of motorists were idling during baseline, compared with 32% after the signs were installed. Once again, the most significant change came when signs were used in combination with commitment. During the baseline, 45% of these motorists were observed to be idling. In contrast, during the follow-up nearly half as many, 23%, were idling (a 49% reduction relative to the baseline measurement and a 51% decrease relative to the control).

Idling Duration

Not only did the combination of signs and commitment reduce idling at the two school sites by 51%, it also dramatically reduced the duration of idling. As shown below, motorists at the two control schools idled their vehicles for an average of 121 seconds during the baseline and 143 seconds during the follow-up (a 16% increase). Motorists at the schools who would subsequently receive the signs idled for 83 seconds during the baseline and for 118 seconds during the follow-up (a 42% increase relative to the baseline). However, when signs and commitments were combined, idling duration fell to an average of only 23 seconds from 52 seconds during the baseline (a 56% reduction relative to the baseline, and a 72% reduction relative to the control).

School Results Discussion

These results indicate that:

• the signs alone resulted in a modest reduction (11%) in the incidence of idling, and were associated with a dramatic increase in duration (42%);
• the signs plus commitments substantially reduced idling incidence (49%) and idling duration (56%); and
• the dramatic impact that the signs plus commitment had upon both incidence and duration suggest that this CBSM strategy is particularly well suited to school settings where a norm that turning your engine off is the "right thing to do" may be quickly established.

5.3 TTC

In total, 6058 observations were made of motorists' idling behaviour at the TTC sites; 72% of these motorists were male. As with the schools, the combination of signs and commitment was the most effective strategy in reducing both idling incidence and duration at TTC Kiss and Ride sites.

Idling Percentage

Baseline observations revealed that on average 59% of motorists in the control condition idled their vehicles compared with 35% during the follow-up (a 41% decrease relative to the baseline). Similar observations at the sites that would receive the signs revealed that 48% of motorists were initially idling, compared with 36% after the signs were installed (a 25% decrease relative to the baseline). As before, the most dramatic change came when signs were used in combination with commitment. During the baseline, 69% of these motorists were observed idling. In contrast, during the follow-up only 22% idled (a 68% reduction relative to baseline and a 27% decrease relative to the control).

Idling Duration

As shown in the following chart, motorists at the two control TTC sites idled their vehicles an average of 111 seconds during the baseline and 179 seconds during the follow-up (a 61% increase relative to baseline). Baseline observations of motorists at the sites that would receive the signs revealed that motorists were idling on average for 99 seconds and for 134 seconds once the signs were in place (a 35% increase). However, when signs and commitments were combined, idling duration decreased to an average of 129 seconds from 155 seconds during the baseline (a 17% reduction relative to baseline, and a 78% reduction relative to the control).

TTC Results Discussion

These results indicate that:

• the signs plus commitments reduced idling incidence (27%) and idling duration (78%) relative to the control; and
• it appears that increased media attention to the 3-minute bylaw in Toronto has decreased idling incidence (as demonstrated by the 41% reduction for the controls). However, this media campaign appears to have had the reverse effect upon idling duration, demonstrating the need to take more comprehensive steps, such as combining signs with commitments, to reduce both idling incidence and duration.

5.4 Other Findings

Weather

Not surprisingly, weather had a significant impact upon idling. As shown, 58% of motorists were observed idling on rainy days, compared with 47% on overcast and 41% on sunny days. These findings indicate that anti-idling initiatives are most likely to be effective during the warmer months of the year and during months of the year when there is less rainfall.

A variety of factors might be related to idling incidence and duration. Monitors recorded the gender of the motorists (when observable), temperature, smog alerts, and weather. No relationship was found between gender or temperature and idling.

Smog Alert

During the course of the project three smog alerts occurred. However, none of these smog alerts occurred on days on which monitoring occurred. Therefore, it was not possible to investigate the impact that smog alerts had upon idling incidence or duration.

6.0 Future Directions

The combination of signs and commitment had a significant and consistent impact upon idling incidence and duration. Since baseline observations revealed that over 50% of motorists idled their vehicle, this strategy has considerable potential for reducing emissions from idling. In this final section of the report, consideration is given to what next steps can be taken to transfer knowledge to others and further refine this strategy.

6.1 Anti-Idling Toolkit

Given the success of this project, one of the first steps should be to transfer the results and lessons learned to others. Accordingly, it is suggested that a web-based toolkit be developed that can allow quick and widespread dissemination. This toolkit can include a case study with results and lessons learned and "how-to" instructions. For example, given the success of the use of commitment in this project, this toolkit would, in part, detail how to obtain commitments from motorists to turn the engines off. In addition, the artwork for the signs, sticker and information card would be available to download so that others could use these materials "as is" or adapt them to their own needs.

6.2 Spreading the Word

Concurrent with developing the toolkit it is recommended that a marketing and communications strategy be developed to identify partners and sponsors and to promote awareness and use of the toolkit.

Nationally/Internationally

This toolkit could be made available to other websites and information about the toolkit could be disseminated through listservs. The two websites for community-based social marketing (www.cbsm.com; www.toolsofchange.com) are natural possibilities and can be utilized to quickly disseminate this information to program planners throughout Canada and elsewhere. Other possibilities include the websites of NRCan's Autosmart program, the Federation of Canadian Municipalities, and the Pembina Institute (www.climatechangesolutions.com). In response to Canada's Kyoto commitments, a strategy for public education and outreach was developed. Part of this strategy calls for the establishment of national and provincial hubs that can serve as venues for disseminating information and encouraging action on climate change. These hubs could be utilized to disseminate information about this project.

City of Toronto

Toronto Works and Emergency Services and Toronto Public Health will use the study's findings to inform the development of initiatives to further promote the Idling Control Bylaw. The manager of the Works and Emergency Services enforcement office has expressed keen interest in using key elements of this project in a broader Toronto-based campaign. She has produced signs based on the Turn it Off project and will supplying them to schools, shopping centres, TTC, and others at a nominal cost. This plan is being considered for implementation in the fall of 2000. Similarly, the organizers of the "Repair our Air" campaign, an initiative of the Toronto Environmental Alliance, have expressed interest in utilizing the knowledge and materials from this pilot. The results of this study indicate that these efforts will be most effective if they combine the community-based social marketing approaches tested here with more traditional forms of marketing. We suggest that any such effort involve an evaluative component and that it be implemented during the warmer months (May through October).

Schools

Given the success of the CBSM strategy at schools, priority should be placed upon quickly transferring the lessons learned to a large number of Canadian schools. Several avenues exist to disseminate this approach broadly and rapidly and to further refine knowledge regarding its use. First, the results of this project will be shared with representatives of the Toronto District School Board and the Toronto Catholic District School Board. It is anticipated that there will be interest in exploring the use of signs along with commitment approaches at public and separate schools where idling is occurring, particularly in view of the success of these approaches at the test school sites. Discussions are also under way with representatives of Greenest City, who will be enhancing the anti-idling component of the Active and Safe Routes to School program, taking account of the Turn it Off project results. Greenest City is currently seeking support from the Ontario Ministry of the Environment to involve additional Toronto schools in anti-idling initiatives, as well as to expand this to other parts of Ontario.

Also, Go for Green has received funding from the Climate Change Action Fund to increase participation in the Active and Safe Routes to School project and to encourage other activities that reduce greenhouse gas emissions, such as reducing idling. Refining the toolkit for implementing this strategy at schools via Go for Green could facilitate this transfer. In addition, the Canadian Lung Association has expressed interest in including as part of the Canadian edition of "Tools for Schools" information on how to effectively deliver an anti-idling program based on this project. The U.S. edition of Tools for Schools is presently being rewritten for a Canadian audience by the Canadian Lung Association. The New Brunswick Lung Association (NBLA) has also begun working with sister associations in New England. The NBLA is interested in assisting with disseminating information regarding the success of this initiative to Lung Associations in New England. Given the similarity of information that would be prepared for these organizations, it should be possible through refinement of the proposed toolkit to quickly transfer knowledge to many Canadian (and U.S.) schools through these two venues.

6.3 Other Considerations

The wider dissemination of this project should be accompanied by further refinement of the strategy. For example, commitments are most likely to be effective when made to individuals we know. This suggests that commitments made by drivers of taxis, buses, and trucks, for example, are most likely to be successful when made to a colleague (or fleet operator) and when accompanied with public displays of this commitment (such as the window sticker that was used in this project). We suggest that further piloting be done with motorists that were not studied in this pilot (bus drivers, truckers, etc.) and with non-municipally controlled locations (such as hotels and taxistands). In addition, further research should be conducted to determine awareness of anti-idling by-laws such as Toronto's as well as to determine the relationship between the price of gasoline and idling behaviour. These pilots would allow for further refinement of the community-based social marketing strategies and eventual dissemination to a much broader audience. By coupling the community-based social marketing strategy with a media advertising campaign, it may be possible to quickly influence the behaviour of large numbers of individuals and in so doing quickly develop new norms in which turning off an idling engine is perceived as the socially appropriate thing to do. Accordingly, we suggest that a media advertising and communications campaign be developed, perhaps as part of NRCan's single issues campaign. The findings from this project clearly indicate that personal contact is an essential part of curbing idling – as evidenced by the fact that the signs by themselves were not as effective in reducing idling. While personal contact and the obtaining of commitments will need to remain a central aspect of future anti-idling initiatives, these initiatives could be bolstered by a background media campaign. We envision the development of media materials (radio, television and print materials) that provide a backdrop for community-based initiatives. That is, the media materials could dispel myths regarding how long a vehicle should be idled before being turned off. Further, they could help to establish this behaviour as the normative or "right thing to do".

We suggest, given the importance of personal appeals in changing behaviour, that the advertisements themselves utilize personal appeals that encourage motorists to make a personal commitment to reduce idling. These advertisements should also be branded along with the community-based materials so that a clear connection is made between the backdrop advertising and the community initiatives. As with all CBSM initiatives, the use of these advertisements should be piloted in different communities in conjunction with the sign and commitment approach researched here to find which combination of advertisements and personal communications is most effective.

Finally, we suggest the possibility of hiring staff, potentially through the provincial/territorial Public Education and Outreach hubs, to coordinate the delivery of anti-idling initiatives across Canada.

6.4 In Summary

A successful anti-idling campaign can serve as a potential catalyst for public involvement in the reduction of greenhouse gas emissions in Canada. Idling in Canada is ubiquitous. Its prevalence provides an opportunity to engage millions of Canadians in an activity that has a direct relationship to climate change and air quality. This project clearly demonstrated that this behaviour can be quickly and cost-effectively altered. By launching a national anti-idling campaign, it is possible to change the behaviour of millions of Canadians and to use this behavioural change as a foundation for learning about climate change and the role that we each can play in its abatement. As such, a national initiative to curb idling may mark for many a personal transition that leads to engaging in other climate change friendly activities as well as supporting policies that reduce emissions.