Schriftenreihe Der Abteilung "Normbildung Und Umwelt" Des Forschungsschwerpunkts Technik - Arbeit - Umwelt Am Wissenschaftszentrum Berlin Für Sozialforschung

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Schriftenreihe Der Abteilung Schriftenreihe der Abteilung "Normbildung und Umwelt" des Forschungsschwerpunkts Technik - Arbeit - Umwelt am Wissenschaftszentrum Berlin für Sozialforschung FS II 92-304 Catalyst versus Lean Burn, A Comparative Analysis of Environmental Policy in the Federal Republic of Germany and Great Britain with Reference to Exhaust Emission Policy for Passenger Cars 1970-1990 by Sonja Boehmer Christiansen* Helmut Weidner** This report is based on research undertaken by the authors between 1988 and 1990 on vehicle emission regulation in Britain and West Germany. It was written and slightly updated by Sonja Boehmer- Christiansen in 1991 and early 1992. The authors would like to thank the Anglo-German Foundation for the Study of Industrial Society which funded the vehicle emission project, as well as a large number of people in Germany and Great Britain, from government, the automobile industry and non-governmental environmental groups who gave freely of their time and information to make this study possible. The project benefited from two broader studies, of the acid rain debate and its impact on the energy sector undertaken by SPRU, and of the nature and development of environmental policies in the Federal Republic and market economies at the W ZB. * Energy Programme, Science Policy Research Unit (SPRU), University of Sussex * * Abteilung ''Normbildung und Umwelt, Wissenschaftszentrum Berlin für Sozialforschung Wissenschaftszentrum Berlin für Sozialforschung gGmbH (WZB) Reichpietschufer 50, D-1000 Berlin 30 Tel. (030)-25 491-0 Fax (030)-25 491-684 CATALYST VERSUS LEAN BURN. A COMPARATIVE ANALYSIS OF ENVIRONMENTAL POLICY IN THE FEDERAL REPUBLIC OF GERMANY AND GREAT BRITAIN WITH REFERENCE TO EXHAUST EMISSION POLICY FOR PASSENGER CARS 1970-1990 Summary In December 1990, the Council of Ministers of the European Community agreed, for new cars, to the mandatory introduction from 1993 of emission limits for exhaust gases requiring world-best practice emission abatement technology: the fully regulated autocatalyst. Exhaust carbon monoxide and the combined hydrocarbons and nitrogen oxides values are to be measured by a new European driving cycle. Agreement was reached after a decade of considerable controversy, which this research project undertook to analyse and understand. Differences in the perception of national interest in the early 1980s set Great Britain and the Federal Republic of Germany on a collision course over the regulation of large combustion plants and vehicle emissions. Emissions from both sources were abated reluctantly in Britain and contributed to its label as the 'dirty man of Europe'. German action to abate acid emissions was the prime mover of European Community policy on air pollution sources and endowed the Federal Republic with a much higher environmental profile and better reputation for air pollution control. This report deals exclusively with the regulation of emissions from petrol-fueled passenger cars. It is also a study of barriers to technological diffusion, for the German initiative involved little more than introducing into Europe a technology which had long been in use in North America and Japan but which had been rejected in Europe. Viewing this case study of the motor industry as part of a larger debate about the capacity of Western industrial states to cope with environmental problems, the hypothesis is put forward that such states necessarily differ in their perception of environmental problems and hence their readiness to respond to technological opportunities. Their capacity to direct or guide corporate policy also varies. The reasons for technological weakness leading to competitive disadvantage are briefly explored. It is concluded that such weakness relates, in part, to the failure by government of harnessing domestic political and institutional structures to encourage and utilise social movements favouring environmental change, in part to less concern with air pollution and especially the car as an environmental threat. This discouraged Britain from realising the potential of environmental regulations for stimulating technological change. However, the broader environmental benefits in both countries remain uncertain because emission policy has so far largely remained isolated from transport policy. KATALYSATOR VERSUS MAGERMOTOR. EINE VERGLEICHENDE ANA­ LYSE DER UMWELTPOLITIK IN DER BUNDESREPUBLIK DEUTSCHLAND UND GROSSBRITANNIEN AM BEISPIEL DER ABGASBEGRENZUNG BEI PKW, 1970-1990 Zusammenfassung Im Dezember 1990 beschloß der EG-Ministerrat die ab 1993 EG-weite Einführung von Abgasgrenzwerten für neu zugelassene Pkw. Die Realisierung dieser Werte erforderte den Einsatz des derzeit fortschrittlichsten Standes der Abgasverminderungstechnik: des geregelten Dreiwegekatalysators. Kohlenmonoxidwerte sowie die Kombinationswerte für Kohlenwasserstoffe und Stickoxide müssen in einem neuen EG-weit einheitlichen Fahr­ test gemessen werden. Diese Regelung konnte erst nach einer zehnjährigen, teilweise heftigen, Kontroverse erzielt werden. In der hier vorliegenden Untersuchung werden diese Kontroverse und ihre Hintergründe analysiert. In den frühen achtziger Jahren brachte die unterschiedliche Wahrnehmung nationaler Interessen bei der Regulierung von Großfeuerungsanlagen und Kfz-Emissionen Großbri­ tannien und die Bundesrepublik Deutschland auf einen harten Kollisionskurs. In Großbri­ tannien wurde die Reduzierung von Emissionen aus stationären und mobilen Quellen nur sehr zögerlich in Angriff genommen, was dem Land den Ruf eintrug, Europas 'dirty man’ zu sein. Die Bundesrepublik dagegen wurde durch ihre Maßnahmen zur Emissions­ senkung die Hauptantriebskraft für die Luftreinhaltepolitik auf EG-Ebene; sie verbesserte ihr Umweltschutzimage und erwarb sich international einen guten Ruf in Sachen Luft­ reinhaltung. Der vorliegende Bericht befaßt sich zwar ausschließlich mit der Abgasregulierung bei Pkw mit Benzinmotoren. Er ist aber auch eine Studie zu den Verbreitungsbarrieren, die innovativen Umwelttechnologien allgemein gesetzt sind, denn die deutsche Initiative war im Grunde kaum mehr als die bloße Übernahme einer Technik, die in Nordamerika und Japan schon seit geraumer Zeit angewandt worden war. Die Autoren stellen diese Fallstudie zur Automobilindustrie darüber hinaus in den breite­ ren Zusammenhang der Debatte über die Fähigkeiten und Kapazitäten westlicher Indu­ strieländer, mit Umweltproblemen fertig zu werden. Dabei ergibt sich, daß sich diese Länder in der Wahrnehmung von Umweltproblemen aufgrund verschiedener politisch­ kultureller, technischer und ökonomischer Voraussetzungen zwangsläufig unterscheiden, was sich auch auf die Bereitwilligkeit auswirkt, technische Lösungsmöglichkeiten wahr­ zunehmen und umzusetzen. Ebenso unterscheiden sie sich in ihrer Fähigkeit, Untemeh- menspolitiken direkt oder indirekt nach Umweltgesichtspunkten zu steuern. Die Gründe für entsprechende Fähigkeiten des Staates, die beispielsweise für erhebliche Wettbe­ werbsvorteile oder -nachteile der betroffenen Industriezweige relevant sein können, werden ebenfalls kurz beleuchtet. Die Autoren kommen zu dem Schluß, daß die Ursa­ chen für umwelttechnische und damit verbundene Wettbewerbsschwächen zum einen in Zusammenhang mit dem Versäumnis von Regierungen zu sehen sind, innenpolitische und institutionelle Strukturen zu schaffen, die es Umweltschutzinteressen ermöglichen, II Umweltthemen auf die politische Agenda zu bringen und auf den politischen Willensbil­ dungs- und Entscheidungsprozeß relevanten Einfluß zu nehmen; zum anderen in der in einigen Ländern sehr eingeschränkten Wahrnehmung von Luftverschmutzung im allge­ meinen und dem Auto im besonderen als Umweltgefahren. Letzteres führte dazu, daß Großbritannien das Potential von Umweltschutzregelungen als Stimulans für technologi­ schen Wandel verkannte. Ob letztlich größere und nachhaltige Umweltqualitätsverbesse­ rungen durch die EG-Abgasregulierung für Kraftfahrzeuge erzielt werden können, bleibt nach wie vor offen, denn in beiden Untersuchungsländem wird Luftreinhaltepolitik immer noch isoliert von der Verkehrspolitik betrieben. in CONTENTS PART ONE: INTRODUCTION AND ANALYTICAL FRAMEWORK Page Tables v Executive Summary vi Acknowledgements viii I INTRODUCTION i The subject matter 1 ii Basic research questions 2 iii Structure of the report 3 iv Methodology 4 n THE REGULATORY BACKGROUND i The international political and legalframework 5 a) The evolution of European emission standards compared 5 b) Legal status of EC directives 8 c) European regulatory history 9 ii The scope of the regulations 14 a) Lead content of petrol 15 b) Stringency of emission standards 15 c) Test procedure or driving cycle 15 d) Timetables for compliance 16 e) Economic incentives 16 iii Environmental impacts 16 iv Impacts on industry 18 in THE DECISION-MAKING PROCESS i The nature of technical regulation 20 ii Problems of technology choice 21 iii Uncertainties in environmental science 22 iv The institutional base 23 ii PART TWO: THE PROCESS OF POLICY FORMATION IV THE TECHNICAL BASIS OF THE ANGLO-GERMAN CONTROVERSY i Emissions produced during combustion 24 ii Technology choice 26 a) The leanbum engine 26 b) The autocatalyst 28 c) Technology choice as politics 29 V GERMAN DEVELOPMENTS 1970 - 1990 i Introduction: Cabinet promises 31 ii 1970-1973: Antecedents 31 a) History and perceptions 31 b) The legal base for activism 34 iii 1974-1981: Persuasion succeeds for low-lead petrol 35 iv 1981-1983: Waldsterben and the 1983 election 37 v 1984-1985: Confrontation in Europe - unilateralism or speed limits? 40
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