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This reproduction is the best copy available pppppppppppppppp------------------ UMI THE ZMPLEMENTATION OF INDUSTRLAL POLLUTION CONTROLS IN CHINA'S XIAMEN SPECLAL ECONOMIC ZONE, 197% 1992 David Nathan Campbell A Thesis submitted in çonformity with the requirements for the degree of Doctor of Philosophy Graduate Department of Political Science University of Toronto Q Copyright by David Nathan Campbell 1997 National Library Bibliothèque nationale 1*1 of Canada du Canada Acquisitions and Acquisitions et Bibliographic Services sewices bibliographiques 395 Wellington Street 395, rue Wellington Ottawa ON KIA ON4 Ottawa ON K1A ON4 Canada Canada The author has granted a non- L'auteur a accordé une licence non exclusive licence allowing the exclusive permettant à la National Library of Canada to Bibliothèque nationale du Canada de reproduce, loan, distribute or sell reproduire, prêter, distribuer ou copies of this thesis in microfom, vendre des copies de cette thèse sous paper or electronic formats. la forme de microfiche/nlm, de reproduction sur papier ou sur format électronique. The author retains ownership of the L'auteur conserve la propriété du copyright in this thesis. Neither the droit d'auteur qui protège cette thèse. thesis nor substantial extracts fiom it Ni la thèse ni des extraits substantiels may be printed or otheMise de celle-ci ne doivent être imprimés reproduced without the author's ou autrement reproduits sans son permission. autorisation. The lmplementation of Industrial Pollution Controb in China's Xiamen Seecial Economic Zone, 1979-1992 David Nathan Campbell (Pb.D.. 1997) Department of Political Science, University of Toronto ABSTRACT This research uses a case study method to seek answers to the following questions: How can China's mixed record in pollution control best be explained. Has their "exploratory" approach to policy making in this issue area been effective? How imponant is the municipal level of governent in China's policy process? The study focuses on Xiamen in Fujian Province and primarily on efforts to reçulate industrial water pollution. Given the organizational structure of environmental and çovemmental authority, mayors are in a key position to affect pollution control. However. the conditions resulting corn fiscal decentralitation and the rapid econornic growth strategy do not provide incentives for concerted action. Whle previous midies attribute implernentation failure largely to these factors associated with the reform era this study argues that the Maoist legacy of environmental neglect and poor planning also hampers current implementation efforts because of the substantial resources which mut be diverted away from enforcement and toward clean-up efforts. Exploratory policies sanctioned by the central govemment are ofien not true experiments; they cm be anempts by top leaders or central depa~mentsto build suppon for particular policy directions. Because "exploration" is ofien dictated by the centre and is not hnded sufficiently by any level of govemment. the ostensible benefits of this approach rarely emerge. This research also finds that ofien cited conditions of effiive implementation are of unequal value in assessing irnplementation failure in China. Factors which constrain key local actors. such as a lack of leadership support or the existence of other policy objectives which are at odds with the goals in question are far more important in this case than the exact content of legislation. ACKNOWLEDGEMENTS Thanks are due to the Social Sciences and Humanities Research Council of Canada, the Sir va1 Duncan Mernorial Fund, the Ontario Govemment Scholarship Progran the University of Toronto. and the China-Canada Scholarly Exchange Program for helping to fund this research. The author is also gatefùl to Victor Falkenheh Hong Huasheng, Zhang Luo ping, Pete Cham ber lain, the staff of the Xiamen University Environmental Science Research Center, the staff of the Xiamen EPB. and al1 the University of Toronto faculty involved in the review and approvai of this dissertation for their generous academic and logistical assistance. Of course, the author alone bears full responsibility for any errors contained in this study. Most of ali I am indebted to my wife, Tanya, not only for the patient contribution of her keyboardinç skills to the preparation of this manuscript. but more imponantly for her firm emotional support during this entire endeavor. This dissertation is dedicared to her. TABLE OF CONTENTS .. ABSTRACT .......................................................... 11 ACKNOWLEDGEMENTS ............................................. iv LIST OF TABLES .................................................... vi LIST OF APPENDICES ................................................ vii CHAPTER ONE: Irnplementation Research ................................ 1 O CHAPTER TWO: Policy Making and Environmentai Policy inchna .............................................. 26 CHAPTER THREE: Xiamen and Its Environmental Conditions .................. 52 CHAPTER FOUR: The Trial Law and Local Implementation .................... 78 CHAPTER FIVE: A New Law and the Politicai Process ....................... 1 13 CHAPTER SIX: Local Organizational Development ........................... 13 5 CHAPTER SEVEN: The Case of Yun Dang Lake ............................ 163 CHAPTER EIGHT: Conclusion .......................................... 19 1 APPENDICES ........................................................ 216 BIBLIOGRAPHY ..................................................... 219 LIST OF TABLES Table 3.1 A Cornparison of the Composition of Air Pollution from Various Sources in Xiamen in 1983 .............................. 62 3 -2 Fujian Provincial Environmental Statistics 1981-1989 ..................................................... 66 3.3 Fujian 1990 Annual Environmental Statistics ........................... 70 3 -4 Principal Industrial Wastewater Pollution Sources ........................................................ 74 3.5 Principal Industrial Air Pollution Sources and Pollutants ................................................... 75 6.1 Province of Fujian Yearly Ratio of Effluent Fees Collected to Total Provincial Industrial Output .......................... 156 7.1 Results of Yearly Survey of Yun Dang Lake WaterQuality ................................................... 179 LIST OF APPENDICES APPENDIX A: Map of Xiamen .............................................. 216 APPENDIX B: List of Acronymns ............................................ 217 APPENDIX C: List of Persons Interviewed .................................... 2 18 vii INTRODUCTION Twenty years ago. China like many developing countries, publicly argued that industrial pollution was largely the by-product (or at least the responsibility) of capitalism in industrialized countnes. Environmental issues. if they were considered at all. were usually discussed and dealt with in the context of consenration and efficient use of resources or crisis management. "Environmental Policy" was not widely recognized as a discrete issue area; indeed it could be said that China had no environmental policy per sr until at least the mid- 1970s. Things have changed quite dramatically, however. in the post-Mao era.' The People's Republic of China (PRC) has. since 1977. established a National Environmental Protection Agency (NEPA). organized a State Council Cornmittee on Environmental Protection (SCCEP). and entrenched the principle of state responsibility for environrnental protection in the constitution. Between 1979 and 1985 the National People's Congress (WC) adopted several environmental protection laws, beginninç with the "Environmental Protection Law of the People's Republic of China (for trial implementation)" which was followed by more specific documents dealing with certain types of pollution (air. marine. etc.). The allocation of resources for investment in environmental protection rose considerably during the 1980s. In 1989. China invested 10.2 billion yuan (U.S. $2 billion) towards protectinç the 1 For an overview of these developments, see Qu Gepinç. "Environmental Protection in China: A Brief History," Chinese Geocraohv and Environment, vol. 2, no. 3 (Fall 1989). 3-29. The author of this article was Director of China's National Environmental Protection Agency (NEPA) for the period under review. environment compared with about 2 billion yuan per annum earlier in the decade.' Beijing targeted about 83 billion yuan per year for environmental protection during the eighth Five-Year Plan ( 199 1- 95). This would represent 0.85 percent of GNP. In 199 1. the actual amount provided was only 0.7 percent of GNP. but this still represented an increase over earlier years and. given China's relative poverty. compares favourably with the 1 to 2 percent of GhP generally spent by Western countries for the sarne purposes.' The PRC has also souçht extensive international cooperation in cleaning up her environment .4 Despite the above-nored allocation of resources and legislative attention. the results of the PRC's efforts in environmental protection are mixed. On the one hand, much progress has been made since the 1970s. The NEPA is praised by foreiçn observers for its independence and cornpetence.' The same cannot be said for similar bodies in some other developing countrîes or other ostensibly independent reçulatory bodies in the PRC itself. More importantly.

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