2023 Annual Report for Canadian Stakeholders

Table of contents

Introduction

Measurement Canada's legislative mandate, programs and services form the foundation for measurement accuracy and fairness in the Canadian marketplace. The purchase and sale of goods based on measurement (trade measurement) occur in nearly 40 marketplace sectors. We protect consumers and businesses and help to promote economic growth by verifying the accuracy of the devices and systems used to measure goods throughout various supply chains. We work to ensure measurement accuracy in all trade transactions, from commercial through to wholesale and retail transactions.

Measurement Canada is undergoing a significant period of renewal and transformation, not only in the way the organization is structured, , but also, as part of the modernization of the laws and requirements governing trade measurement, in the way we deliver our programs and services. We are also changing how we engage with our clients. This report summarizes Measurement Canada's activities and key accomplishments in 2022-2023 and planned priorities and key activities for the coming year. It is intended to inform and update all our stakeholders in an effort to increase knowledge and awareness of Measurement Canada's priorities and plans.

Overview of Measurement Canada

Measurement Canada, a regulatory agency of Innovation, Science and Economic Development Canada, has national responsibility and authority for legal metrology activities in Canada and is a part of the country's national quality infrastructure. The agency is responsible for the administration and enforcement of the laws and requirements governing trade measurement in Canada and associated program and service delivery, including:

  • developing and administering the laws and requirements governing trade measurement, including the Acts, regulations, technical specifications, policies, procedures and compliance and enforcement requirements;
  • calibrating and certifying standards of mass, volume, temperature, electricity, and gas as well as test equipment used to test and certify measuring devices;
  • evaluating measuring devices (e.g. scales, petroleum dispensers, electricity, and natural gas meters) and type-approving them for use in Canada;
  • testing and certifying measuring devices used in trade measurement transactions to ensure they measure accurately, are appropriate for their intended use, and are installed and used correctly;
  • verifying the net quantity of commodities sold based on measure;
  • investigating consumer and business complaints of suspected inaccurate measurement;
  • accreditation, audit, and oversight of authorized service providers (private sector organizations recognized to perform measuring device testing and certification);
  • taking corrective and enforcement actions to resolve inaccurate measurement and unfair business practices related to trade measurement.

Legislative Frameworks

As part of its legislative mandate and program and service delivery, Measurement Canada administers and enforces:

  • Weights and Measures Act;
  • Electricity and Gas Inspection Act; and
  • Certain sections of the Consumer Packaging and Labelling Act.

Vision and Key Priorities

Measurement Canada's vision is to continue to excel as a world-class regulator that enables innovation and ensures a fair and competitive marketplace for Canadians.

The agency's strategic vision for 2021-2026 outlines our priorities in support of the achievement of this vision. As we expand and redefine our role, the steps that we are committed to taking to effectively respond to the changing needs of the Canadian marketplace are may be found in our four overarching priorities:

  • protecting Canadian consumers by ensuring the integrity and accuracy of trade measurement in Canada;
  • increasing our visibility and Canadians' awareness of the importance of trade measurement accuracy for supply chains and consumers;
  • preparing our organization for the emerging digital and data-driven economy;
  • investing in our organization.

Organizational Structure

On April 1, 2023, Measurement Canada implemented a new organizational structure to enable the agency to better address the rapid pace of technological development and innovation, Canada's priorities related to the adoption of clean fuels, as well as the need for more digital approaches to deliver the agency's programs and services and engage with clients and Canadians.

Aligned with its strategic vision, Measurement Canada is pursuing more risk-based approaches in its inspection and audit programs, investing in digital tools, working to increase the agency's visibility and modernizing the laws and requirements for trade measurement. The new organizational structure also provides Canadians with quick access to new measurement technologies and business approaches while ensuring they continue to receive protection against loss due to inaccurate measurement or unfair business practices.

Through the new organizational structure, we have taken steps to modernize the approach the laboratories use for the pre-market type approval of measurement technologies so that they are organized, equipped and responsive to the increasingly complex and digital nature of trade measurement. The increased national, autonomous approach to post-market program and service delivery within the Weights and Measures and Energy directorates and Inspector General provides the agility and flexibility to respond to changes in measurement technologies and business practices and to pursue a more risk-based approach to inspections and alternative service delivery programs.

We are modernizing our business applications and investing in the digital transformation needed to support improved program and service delivery and stakeholder engagement, and to realize the benefits that can be derived from a digital infrastructure that integrates data and improves the automation of our client interactions. The new organizational structure also allows us to continue to invest in the infrastructure needed for success, from increasing our visibility and Canadians' awareness of the importance of trade measurement accuracy to supply chains and consumers, to building the foundation for our success by investing in employee skills development and knowledge transfer, and a diverse, accessible, safe, equitable and inclusive workplace.

Measurement Canada is now structured as follows:

President - delegated authority for the development, administration and enforcement of the laws and requirements governing trade measurement (Weights and Measures Act and Electricity and Gas Inspection Act) and the delivery and continuous improvement of associated programs and services.

Legislative Policy and Regulatory Affairs Directorate – responsible for managing legislative and regulatory policy and amendments. This includes work to modernize the Acts governing trade measurement in Canada and their regulations, researching, analyzing, and developing policy at the organization level, and managing public engagement and consultation processes for the agency.

Legal Metrology and Laboratory Services Directorate– responsible for evaluating and type-approving weighing and measuring devices, as well as electricity and gas meters and metering devices used in trade. It is also responsible for the calibration and certification of physical measurement standards used by Measurement Canada inspectors and authorized service providers to test and certify measuring devices installed for use in trade under an ISO 17025 quality management system. The Directorate develops, updates and interprets pre-market requirements. The scientists participate in domestic and international technical committees and research and development related to measurement science innovations.

Weights and Measures Directorate – responsible for post-market national program and service delivery for weighing and measuring device inspection and net quantity verification programs, calibration and certification of working standards used to test and certify measuring devices, the investigation of consumer and business complaints of suspected inaccurate measurement and associated marketplace surveillance, compliance improvement and enforcement activities. The Directorate is also responsible for the assessment of authorized service provider performance,

the development and implementation of risk management frameworks and the development of post-market technical requirements, procedures and guidance.

Energy Directorate – responsible for post-market national program and service delivery for electricity and gas measuring device inspection programs, calibration and certification of working standards and measuring apparatus used to test and certify energy measuring devices, the investigation of customer and energy service provider complaints of suspected inaccurate measurement, and associated marketplace surveillance, compliance improvement and enforcement activities. The Directorate is also responsible for the assessment of authorized service provider performance, the development and implementation of risk management frameworks and the development of post-market technical requirements, procedures and guidance.

Inspector General Directorate – responsible for national alternative service delivery program and service delivery, including audits and inspections of authorized service provider activities to verify conformance with program requirements and related laws, regulations and technical standards and the administration of associated quality management systems.

Digital Office – responsible for introducing new and modernizing existing business applications and providing call centre operations support as part of increased digital, client-centric program and service delivery. The Digital Office is also responsible for providing the infrastructure and support for information management within Measurement Canada.

Business Operations Directorate – responsible for providing corporate services such as human resources, finance, strategic planning and reporting, and administrative support services. Business Operations is also responsible for the administration and support of technical training and learning services and external and internal communications, including Measurement Canada's social media and web presence.

Further information on the executives responsible for each directorate is available in the organizational chart.

International Arrangements and Engagement

International Organization of Legal Metrology Certification System (OIML-CS)

Table 1: Measurement Canada is a signatory of the OIML-CS and is currently listed as utilizer for the following recommendations:
Recommendation Measuring Instrument Category Scheme
R 60 (2000) Metrological regulation for load cells Agreement and Mutual Acceptance Arrangement
R 75 (2002) Heat meters Agreement
R 76 (2006) Non-automatic weighing instruments Agreement and Mutual Acceptance Arrangement

Test results from acceptable issuing participants collected under these recommendations are regarded as equivalent to those that would be obtained through testing carried out by Measurement Canada, under specific conditions. Acceptance of these test results improves the timeliness of the introduction of new measurement technologies in the Canadian marketplace and helps to reduce costs. Measurement Canada continuously explores the possibility of using other recommendations to ensure that Canadian requirements are aligned with international practices.

United States/Canada Mutual Recognition Arrangement

In April 2021, Measurement Canada renewed the United States/Canada Mutual Recognition Arrangement (MRA) with the National Conference on Weights and Measures (NCWM). Under the five-year MRA, a measuring device manufacturer can have a device tested by one of the countries and receive type approval under both jurisdictions. The following measuring devices are included in the MRA:

  • Gasoline dispensers, high-speed dispensers, and electronic registers for dispensers;
  • Electronic computing and non-computing bench and floor scales with a capacity up to 1 000 kg (2000 lb), weighing and load receiving elements with a capacity of up to 1 000 kg (2000 lb), mechanical scales with a capacity of up to 10 000 kg (20 000 lb) and electronic indicators for scales (except those that are software-based).

Recognition of ISO/IEC 17025 accredited laboratories and test facilities:

Measurement Canada offers two programs for the recognition of ISO/IEC 17025 accredited laboratories and test facilities:

  • Standards calibrations: Document RC-01— Conditions and Administrative Requirements for the Recognition Program of Calibration Results from CLAS Laboratories sets out the conditions and requirements to be met by ISO/IEC 17025 CLAS (Calibration Laboratory Assessment Service) laboratories to have their calibration results for mass and temperature standards recognized by Measurement Canada to be certified pursuant to the Weights and Measures Act. A CLAS laboratory is one that is certified by the National Research Council of Canada and accredited by the Standards Council of Canada. The RC-01 program is administered by the Legal Metrology and Laboratory Services Directorate.
  • Device approvals: Document RT-01—Conditions and Administrative Requirements for the Recognition of Test Results from ISO/IEC 17025 Accredited Test Facilities sets out the conditions and requirements for the recognition by Measurement Canada of test results from facilities accredited under ISO/IEC 17025 for the testing of previous MC type-approved electricity meters, which have been modified and are being resubmitted for type approval.

Key Activities – 2022-2023

Development of requirements for electric vehicle charging based on energy consumed in kilowatt hours

Canadians' confidence in accurate and reliable measurement of energy at electric vehicle supply equipment (EVSE) (such as electric vehicle [EV] charging devices) is an important element in increased consumer EV adoption and in achieving Canada's clean growth and climate change commitments, including reducing carbon emissions. Measurement Canada is using a phased approach that will allow for steady progression for industry growth while ensuring consumers and businesses have options in how they receive an EV charge (e.g. flat rate, time based or by kilowatt hour [kWh]) and that they are accurately billed for an EV charge at public charging stations, resulting in increased trust and certainty in the EV charging process.

Informed by the results of consultations with EV charging device manufacturers, EV charging station operators and consumers, and aligned with International Organization of Legal Metrology approaches, Measurement Canada has developed specifications, requirements and test procedures to allow EV charging station operators to bill customers based on the amount of electricity consumed (kWh) during the charging process. Temporary dispensation programs were introduced to allow Level 1, Level 2 and Level 3+ EV charging devices already in use in the marketplace to be used to charge by the amount of electricity consumed during an EV charge provided specified criteria are met. A temporary dispensation program was also introduced for Level 1 and Level 2 EV chargers used in non-commercial applications.

The agency has also introduced type approval specifications and test procedures for Level 1 and Level 2 EVSE. Type approval testing at Measurement Canada's laboratories is scheduled to begin in early 2024. The agency will also be launching an online consultation on proposed requirements for the type approval of Level 3+ EV charging devices.

Legislative and regulatory modernization

In 2019, as part of a government-wide initiative to modernize its regulatory regime, Measurement Canada began work to update its legislative and regulatory framework. Although this framework has served the agency and Canadians well for many years, it must be reviewed and renewed to respond to the current and future needs of Canadian industry and consumers. A comprehensive review of the Weights and Measures Act and the Electricity and Gas Inspection Act was initiated with public consultations launched in early 2023 and supported by a visioning paper entitled Moving towards a more flexible and agile legislative framework for trade measurement. The paper focusses on three themes: reducing barriers to business, protecting consumers, and improving service delivery. A What We Heard report summarizing the feedback from stakeholders was published on October 16, 2023. The feedback will be taken into consideration when developing the proposed amendments to the Acts in accordance with the legislative development process.

Measurement Canada is taking a multi-pronged approach to regulatory modernization, which includes an internal regulatory review as well as participation in government-wide initiatives.

Public engagement and consultations

A number of consultations are underway or planned. Information on all Measurement Canada consultations may be found in the Consultations section of the agency's website.

New technologies

Measurement Canada continued its work to provide access to clean energy alternatives while ensuring consumers are protected against loss due to inaccurate measurement. Requirements for the type approval and inspection of thermal energy meters were developed. Work is also underway to develop the type-approval program (which includes testing) for gas meters that allow the blending of hydrogen into the natural gas stream and to improve the requirements and testing of software-enabled devices. Measurement Canada is also researching the latest advancements in performance of hydrogen vehicle dispensers.

Future Focus - New Initiatives Planned in 2024-2025

Renewal and modernization

Measurement Canada will continue its work to modernize and renew the legislation and regulations governing trade measurement in Canada focussing on three themes: reducing barriers to business, protecting consumers, and improving service delivery. An equity, diversity and inclusion (EDI) lens will be applied to agency policies and processes to minimize the risk of introducing unintended barriers, and to ensure all Canadians have equal access to programs and services and protections afforded to reduce loss due to inaccurate measurement or unfair business practices.

Measurement Canada is also working to "green" its fleet with the anticipated increased use of EV inspection vehicles, including EV weight trucks to test large capacity scales.

Public opinion research

In 2022, a survey was conducted to gather Canadians' views and opinions on consumer confidence on the accuracy of clean fuel measurement. In 2024, the survey will be repeated to gather information on Canadians' views and opinions. The results of this initiative will help to inform changes and approaches to support increased consumer confidence in the accuracy of clean fuel measurement and the achievement of the government's goals for consumer and business EV adoption and Canada's clean growth and climate change commitments.

Laboratory testing capabilities

Work will continue to modernize and expand the laboratory's testing capabilities and staff competencies. This work includes thermal energy meters and meters used to measure hydrogen blended natural gas and type approval of EVSE.

Risk-based approach to inspections

As part of its preventative measures to manage risks, Measurement Canada will continue its work to develop a statistical model to evaluate the probability of occurrence of risk initiators and their contributions to inaccurate measurement, using scenario-based simulation to test and improve the model, while new data sets about initiators are being collected. This model will help predict risk behaviour and plan effective interventions to reduce and control risks.

Client-centric digital engagement

Measurement Canada is moving forward with multi-year projects to update and modernize outdated systems to better support clients and internal business processes. Work is focussing on upgrading and replacing existing and introducing new technologies to increase the efficiency of the agency's service delivery and to support enhanced client relations management, client services and interaction with authorized service providers. Of note, work will continue on a multi-year project to replace at risk aging legacy applications that are a critical part of the agency's operational infrastructure. The first application, slated to be released in 2024, will support the Legal Metrology and Laboratory Services in providing type-approval and calibration services to measuring device manufacturers and other external clients, Measurement Canada employees and authorized service providers. Work is also expected to start in 2024-25 on the development of a new application to report and gather data on electricity and natural gas meter inspections, including issuance of the inspection certificate and data related to meter compliance.

Employee engagement and renewal

Measurement Canada will continue to invest in existing and future employees through the development and evaluation of approaches, tools and resources to enhance adult learning and the delivery of technical training, and formal coaching and mentoring programs. The agency will also continue its efforts to increase the diversity of its workforce and provide a workplace environment that is accessible, safe, equitable and inclusive.

Emerging Issues – Challenges and Opportunities

Relevance over time: While legal metrology organizations such as those of Measurement Canada are considered foundational to the operation of a country's marketplace, it is also important that the rules and requirements governing trade measurement and the programs and services we deliver meet the needs of Canadians. This means that they must continue to evolve to keep pace with emerging measurement technologies and changing business practices, ensure businesses and consumers receive adequate protection when participating in marketplace transactions and stay current with how the marketplace is operating and how businesses and consumers are receiving information and making transactions in the marketplace.

Legislation and compliance: At the same time, the laws and requirements governing trade measurement must reduce compliance burden while ensuring an appropriate level of protection for vulnerable parties. Finding the right balance will continue to be a priority for Measurement Canada.

Adapting to the pace of changes: An increasingly rapid pace of changes in measurement sciences and technologies and the expansion of areas in which trade measurement occurs, particularly in the clean fuels' areas, is having a growing impact on a country's economic and social development. In addition, while businesses and consumers want access to new measurement technologies and the benefits they afford, they still expect their government to continue to provide some level of consumer, health, safety and environmental protection.

Alignment with trading partners: It is important that, to the extent possible, Canada's trade measurement rules and requirements and programs and services align with trading partner requirements through the adoption of internationally recognized model laws, mutual recognition agreements or other such practices. These approaches contribute to an efficient and competitive marketplace by minimizing duplication of measurements, increasing confidence in measurements, reducing barriers to the introduction of new measurement technologies in Canada and decreasing the cost for Canadian companies participating in trading partner markets.

Contact Information

If you have questions or would like more information, please send an email to mcinfo-infomc@ised-isde.gc.ca.

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