Strengthening International Cooperation on Regional Air Pollution Management in East Asia: Possible Approaches and Prospects Better Air Quality Conference Singapore 2010 Session: Regional and Transboundary Air Pollution Mark ELDER ( IGES ) Katsunori SUZUKI ( Kanazawa Univ. ) 9-11 November, 2010
Trends in Global & Regional Cooperation on Air Pollution • There are many existing frameworks worldwide – Europe : LRTAP (1979) – Asia : Malé Declaration (1999), EANET (2001), CAI-Asia (2001) ASEAN Haze Agreement (2002), ABC (2002), etc. – Latin America : CAI-LA (1998), IANABIS (2002) – Africa : CAI-SSA (1998): • Recent Key Trends – Increasing LINKS between frameworks (regional & global) • Global Air Pollution Forum (GAPF): promote cooperation at regional, hemispheric & global scales • Joint Forum on the Atmospheric Environment in Asia and the Pacific – LINKS between air pollution & climate change – co-benefit/ co-control approach 2 2
LRTAP: Multi-species, Multi-effects Approach • Comprehensive, integrated approach • Based on scientific modeling to maximize cost effectiveness • Successful in achieving cost effective reductions New trend: efforts to link air pollution with climate issues Surface Waters SO 2 Acidification Terrestrial Ecosystems NO X Marine Eutrophication Ecosystems Yield Losses NH 3 (crops & forest) Ground- level Ozone Human Health VOC S Materials 3
The Situation in East Asia: EANET Acid Deposition Monitoring Network in East • Asia (EANET) – Regular phase fr.2001, 13 countries, aims at monitoring – Highly reliable data with strict QA/QC activities – Solidarity among air pollution community at inter-governmental level – Significant improvement & capacity building on monitoring – Formation of scientific community on air pollution (still weak) – Tradition of decision making by consensus – Burden sharing by all participating countries with UN assessment scale 4 10 Nov. 2010 BAQ 2010
EANET: Changing Situation & Need for Improvement • Severe air pollution now and in the future • Various threats concurrently – Traditional local air pollution (SO 2 ,PM, and NO x ) – Acid deposition & other trans-boundary air pollution (Haze) – Global GHG, etc. • Lack of an integrated approach to better air quality • A more comprehensive framework is required – Multi-species, multi-effects approach – Integrated approach from monitoring to preventive/mitigation actions – Compatibility with other regional/global frameworks 5
Some progress in cooperation between frameworks: Joint Forum on the Atmospheric Environment in Asia and the Pacific Closer cooperation among regional air pollution networks to enhance harmonization and share of good practices Joint Forum on the Atmospheric Environment in Asia and the Pacific ASEAN Haze Malé Central Asian EANET SPREP Agreement Declaration Environment Convention Meeting of the Joint forum on Atmospheric Environment in Asia and the Pacific, 10-11 Mar 2010 But more progress is needed. 6
Possible Approaches to Strengthen the Framework of Atmospheric Management in Asia • Formally binding agreement (like LRTAP): – Multi-species, multi-effects, including modeling – Inter-linkages considered, from both air and climate viewpoints – Monitoring, emission inventories, reduction targets, policy measures • Non-binding agreement: informal and voluntary – Regional cooperation without obligation – Not concrete target will be set • Co-benefits/ co-control approach – Mainstream air pollution issues into climate change – Integrated mechanism developed to enable co-control – Enhance efficiency and cost effectiveness 7 10 Nov. 2010 BAQ 2010
East Asia: Potential for Change-Domestic Conditions Overall Policy Trends in the Region ( Japan, China, Korea, Thailand examples ) Steady gradual strengthening of air regulation in case countries. – Especially stronger automobile emissions standards – Energy conservation, renewable energy, fuel switching (e.g. natural gas) – Steady upgrading of environmental administration capabilities . – Beijing Olympics model – rapid strong (but temporary) measures – to be replicated Therefore cautious optimism? Problems remain, however Some standards are lower than WHO or US or other countries – Difficulties in enforcement, especially at the local level – Continued need for upgraded administrative capacity at national & especially local levels – Continued concerns about costs of air pollution control and effects on economic development – and competitiveness. In some cases, stronger policies and capacity are offset by rapid economic growth , and air – pollution still increases. 8 10 Nov. 2010 BAQ 2010
Success factors & obstacles in Europe/LRTAP and comparison to conditions E. Asia Factors Factors relating to Europe/LRTAP Comparison to E. Asia International - LRTAP promoted détente (‘70s)/ end of cold war (‘90s) - Security issues less serious in E. / Strategic - Cold war, nuclear military competition, not an obstacle Asia; Can env. promote security? Science - Joint modeling, epistemic community - Developing Public - Media generated awareness of damage - Developing awareness Domestic - Stronger environment administration capacity in many - Developing Institutions countries Economic - Little trade between East/West blocs (‘70s) (minimized - Extensive trade in E. Asia; concerns concerns of trade competitiveness concerns) about trade, competitiveness, growth business & - Still fears; economics top priority - Competitiveness fears were a major obstacle; overcome by citizens higher priorities (security, joining EU), RAINS modeling -Little link of environment & trade agreements, no E. Asian community -Desire to join EU was key factor for some in South/East Europe (stronger EU standards) (1990s) -Fewer economic benefits perceived in E. Asia -Some countries: benefits for economy, competitiveness -Some fuel switching in E. Asia -Fuel switching, tech solutions, can lower cost - Economy is often better in E. Asia - Implementation weakened in recessions Note: This is highly summarized, but applies to many countries and a range of protocols 9
East Asia and Europe: Differences & Implications • Distribution: Environmental damage (especially transboundary) may be more unevenly distributed in Asia than in Europe • Institution: E. Asia has lower degree of formal regional institutions (political, security, economic), regional economic integration – Nevertheless, a significant amount of informal cooperation at lower levels • Disparity: Greater income disparity between countries (fewer developed countries, greater gap between high & low income countries in E. Asia) Europe achieved cooperation despite a long history of bitter international conflicts and significant differences between countries Cold war, communism vs. capitalism Disparities in income and economic development Cultural, language differences Fears about trade competitiveness, economic growth How different it would be in East Asia? 10 10 10 Nov. 2010 BAQ 2010
Main Domestic Obstacles to Stronger Air Pollution Measures Insufficient “Information” -- Uncertainty or inadequate awareness about air pollution effects Opposition due to concerns about costs or economic competitiveness • Not only business, also voters/citizens concerned about jobs Institutional structure/decision making process • Tendency to prioritize business actors, economic concerns (e.g. environment ministries typically weaker than economic ministries) • Lack of capacity for information collection, policy implementation Note: these obstacles can be found in many/most countries 12
Policy Implications : To Address Domestic Obstacles • Overall domestic air pollution policies are strengthening already, at least somewhat, in a range of countries How to accelerate positive trends, promote support for international cooperation & agreement? • Epistemic Community: strengthen joint research among countries Information • Awareness Raising: the problems & costs of air pollution, and the benefits of an integrated approach • Cobenefits approach to minimize costs • Technical solutions: energy efficiency, fuel switching Economic cost, • Incorporate air quality management into green growth strategies competitiveness • Integrate environmental concerns into trade agreements (EPA/FTA) concerns • International coordination to minimize effects on trade competitiveness • Modeling to maximize cost effectiveness • Capacity building of environment ministries, local env. administration, etc. Domestic • Mainstream environmental concerns into other policy areas institutions/ • Enhance SEA/EIA policy process • Expand public participation in policymaking Note: some are already implemented to some extent, but more is desirable. 13
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