{"id":29042,"date":"2011-01-10T15:39:00","date_gmt":"2011-01-10T15:39:00","guid":{"rendered":""},"modified":"2020-11-11T10:24:00","modified_gmt":"2020-11-11T10:24:00","slug":"4042-opening-the-city-gates","status":"publish","type":"post","link":"https:\/\/dialogue.earth\/en\/pollution\/4042-opening-the-city-gates\/","title":{"rendered":"Opening the city gates"},"content":{"rendered":"

China\u2019s cities have made small advances in environmental transparency in the past year but are still failing to achieve acceptable levels of pollution data disclosure, joint research<\/a> by two green NGOs has found.<\/p>\n

At the end of December, Beijing\u2019s Institute of Public and Environmental Affairs<\/a> (IPE) and the US-based Natural Resources Defense Council<\/a> (NRDC) released a report on levels of environmental information disclosure at city level in China, which examined 113 locations and awarded marks out of one hundred to each.<\/p>\n

The average score was 36 and only 11 cities \u2013 less than 10% \u2013 reached the \u201cpass mark\u201d of 60 points. Ningbo<\/a>, on the east coast, had the highest score at 82.1, while Jinzhou<\/a>, in north-eastern China, brought up the rear with 14 points.<\/p>\n

This was the second Pollution Information Transparency Index<\/i> to be published by the two NGOs. In September 2009, when they released the 2008 rankings \u2013 the first time such figures had been published \u2013 only four cities reached a score of 60 or above.<\/p>\n

Speaking at the launch of the report for the period 2009-2010, Ma Jun<\/a>, director of the IPE and one of the study\u2019s compilers, said: \u201cDisclosure of information is a precondition for public participation \u2013 and without public participation, it will be hard to overcome the issue of environmental pollution.\u201d<\/p>\n

The index is based on performance in eight areas, including records of breaches of pollution laws, environmental complaints and environmental-impact reports, in 113 cities in eastern, central and western China.<\/p>\n

The average score for 2009-2010 is five points higher than the previous year, demonstrating an overall advance. But the progress is not evenly distributed, and growing divergence between different geographical areas is visible thanks to an increased lead for cities on the southern and eastern coasts. As the report explains, when the average score is looked at by province, \u201cShanghai, Fujian, Zhejiang, Jiangsu and Guangdong are in the lead, while those in central and western China \u2013 Guizhou, Inner Mongolia, Jiangxi, Jilin and Gansu \u2013 are at the bottom.\u201d<\/p>\n

In many cases, compilers of the report also found large differences between cities within the same province. In nine provinces, the highest ranking city had a score twice or more that of the lowest. In Guangdong, south China, there was a difference of 55.7 points between the best and worst performers, while the Pearl River Delta special economic zone of Zhuhai<\/a> was 37.3 points behind Shenzhen.<\/p>\n

The report also identifies the 10 cities that have shown the biggest improvement and decline in the past year. The improvers include Jiaxing<\/a><\/u> in eastern China and Foshan<\/a>, Dongguan<\/a>, Zhongshan<\/a> and Shenzhen<\/a> in the south. Shaoxing, the most improved in terms of ranking, published daily monitoring records for 358 firms \u2013 compared to 80 in 2008; and in 2010 started to publish a monthly list of firms subject to administrative sanctions and the details of their breaches. In 2009, Foshan took action against 500 companies.<\/p>\n

The 10 cities to see their scores fall the furthest were: Kunming<\/a>, Taiyuan<\/a>, Wuhan<\/a>, Changzhi<\/a>, Huzhou<\/a>, Hangzhou<\/a>, Hefei<\/a>, Chifeng<\/a>, Mudanjiang<\/a> and Jinzhou<\/a>. In the year 2009 to 2010, Hangzhou saw a sharp drop in the number of firms for which daily monitoring records were published, and requests for these to be published received no reply. In 2009, Taiyuan stopped issuing quarterly monitoring reports on major sources of pollution altogether, while the website for Chifeng Environmental Protection Bureau has long been inaccessible.<\/p>\n

The authors of the report point out that the performance of some of the country\u2019s most important cities were far from exemplary. \u201cOf the four directly-administered municipalities, Tianjin\u2019s disclosures were extremely limited, while Beijing\u2019s score had dropped significantly (it scored 43.5 points and came 31st<\/sup>, down 14 places from its position in 2008). Of the 25 provincial capitals, the lowest five \u2013 Hohhot<\/a>, Guiyang<\/a>, Changchun<\/a>, Nanchang<\/a> and Xining<\/a> \u2013 scored around 20 points and, in 11 provinces, the provincial capital failed to perform best. Some of these, such as Hangzhou and Shijiazhuang<\/a>, were actually nearer the bottom within their province.\u201d In some areas, advances were not maintained. Improved performances for the Olympics, World Expo or Asian Games proved to be only temporary.<\/p>\n

Alex Wang, head of the NRDC\u2019s Chinese environmental law project and one of the report\u2019s authors, said that media and public applications for information and judicial redress still face problems. The Zijin Mining pollution incident<\/a> was covered up for nine days, revealing the hidden risk that listed firms will breach information disclosure requirements.<\/p>\n

The report does acknowledge encouraging advances in government measures to promote transparency. Wang pointed out that, in March 2010, the Ministry of Environmental Protection<\/a> published a notice on pollution breaches by firms under state monitoring, showing that almost 40% of some 7,000 companies had violated regulations. This was the first time the ministry had published this information. But, added Wang, only the company names were given \u2013 and not the details of their polluting activities.<\/p>\n

In a bid to explain the geographical divergence within the index, the report refers to an analysis<\/a> of the 2008 data by three academics from the University of California, Berkley and Yale University, which found that as economic development and stability of local government finances increase, and as single industries become less important in the local economy, transparency of information improves.<\/p>\n

But Zhu Xiao, who also contributed to the study and is an assistant professor at Renmin University<\/a>\u2019s Law School, believes that smaller governmental budgets do not necessarily mean low levels of disclosure. He said that, although only two central and western cities appeared in the top 20 this year, in 2008 they were a force to be reckoned with: \u201cThe top 10 in 2008 had Wuhan in 4th<\/sup> place, Taiyuan in 9th<\/sup> and Kunming in 16th<\/sup>.\u201d Zhu believes that the key issue is one of commitment.<\/p>\n

Wang Canfa, professor of environmental law at China University of Political Science and Law<\/a> and director of the Center for Legal Assistance to Pollution Victims<\/a>, suggested that disclosure of environmental information can lessen pressure on environmental law enforcement authorities, as firms will respond by taking remedial action of their own accord. But head of the information centre at Huangshi\u2019s Environmental Protection Bureau, Tang Yuanpeng, said the environmental authorities face pressure from all sides. \u201cIf a lot of fuss is made about minor issues at firms which are actually doing very well, it can affect their growth.\u201d He also admitted that local protectionism and political face have an impact.<\/p>\n

Others believe there is scope for government intervention that does not include naming and shaming or punishing companies. Chen Shengliang, head of the natural ecology office at Chongqing Environmental Protection Bureau, said the government cannot just sit and watch if problems are arising at major firms due to technical limitations, for example.<\/p>\n

He pointed to the case of one Chongqing producer of chromium oxide. Accounting for 60% of global production of the chemical, it is one of two firms in the city able to set pricing for its product on a global basis. The government has not published details of pollution by the firm, but has encouraged it to take measures and worked behind the scenes to help it upgrade its technology and deal with pollution. \u201cDisclosure won\u2019t help if there\u2019s no technological solution,\u201d said Chen.<\/p>\n

Chen has also proposed that the design of evaluation indices used by civil society coincide as far as possible with that applied by government, so that everyone is clear about where they stand. IPE deputy director Wang Jingjing said that discrepancies between official and NGO evaluations are caused by heavy government reliance on website functionality, while the NGO version focuses on pollution monitoring data. \u201cPrivately, environmental officials have admitted that this is more objective and fair,\u201d he said.<\/p>\n

In the last 20 years, there has been a global move towards greater disclosure of information. Alex Wang explained that, after the United States established the Toxic Release Inventory<\/a> system in 1986, countries including Canada, Korea, Australia, Japan, Mexico and European nations implemented similar measures. An increasing body of evidence shows that corporate-level environmental information \u2013 particularly data on release of pollutants \u2013 puts pressure on firms and results in a positive impact<\/a> on environmental performance. In the United States, between 1988 and 1999, emissions of major toxins fell by 46%.<\/p>\n

Disclosure alone will only get you so far, however. \u201cInformation disclosure does not mean the resolution of all problems \u2013 it is just the start,\u201d said Zhu Xiao. \u201cThe government then needs to use that open information to follow up with enforcement activities and pursue legal responsibility.\u201d<\/p>\n

\u00a0<\/i><\/p>\n

Meng Si is managing editor in <\/i>chinadialogue\u2019s Beijing office.\u00a0<\/i><\/p>\n

<\/i>Homepage image from Greenpeace<\/a> shows school children passing a waste incineration<\/a> plant in Shantou, Guangdong.\u00a0<\/p>\n

<\/i><\/p>\n","protected":false},"excerpt":{"rendered":"

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