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                                                                                     Chapter 6
                                                  Environmental Pollution Control Measures
                             While modern societies face growing concern                           environmental problems can be attributed to the
                      about global environmental issues, developing                                prevailing emphasis at the time on economic
                      countries are experiencing complex, serious and                              growth and profits at the expense of public health.
                      fast-growing pollution problems of their own. The                            For this reason, the government was unwilling to
                      potent combination of industrialization, urban                               pursue environmental strategies. Worsening
                      development and mass consumption trends is                                   environmental problems led to the emergence of
                      exacerbated by foreign companies operating with                              numerous victims’ groups and turned the tide of
                      little regard for the impact on the local environment.                       public opinion, so that governments at the
                      Environmental pollution is more than just a health                           prefectural and national level were forced to act.
                      issue; it is a wider social issue in that pollution has                      Eventually, after much trial and error, effective
                      the potential to destroy homes and communities.                              strategies for dealing with environmental pollution
                      Pollution problems are also closely tied to the mode                         were put in place and as a result the quality of the
                      of development in developing countries. Despite this,                        environment began to improve.
                      many developing countries either have not developed                                By describing Japan’s experiences with respect
                      environmental pollution control measures, or have                            to the problems caused by the initial reluctance to
                      not provided adequate implementation structures                              address environmental issues, as well as the success
                      to ensure that policies are effective.                                       of subsequent environmental initiatives, it is hoped
                             During the period of rapid economic growth                            that we can help to prevent worsening health
                      after the Second World War, Japan experienced a                              problems in developing countries and promote
                      variety of terrible environmental problems on a                              sound and healthy social development.
                      scale unprecedented in the world. These                                            This chapter presents an overview of the
                                                                 Table 6-1  Seven Categories of Pollution
                            Category                        Major causes                                  Major symptoms                      Examples
                        Atmospheric         Smoke, dust, exhaust fumes, toxic substances (such as    Asthma, bronchitis             Photochemical smog, “Yokkaichi
                        pollution           sulfur dioxide and nitrogen dioxide)                                                    Asthma”
                                            Polluted waste water, waste fluids (such as                                             Minamata Disease, “Itai-Itai”
                        Water pollution     petroleum), sludge, household sewage, sewage             Noxious odors, poisoning       Disease (cadmium poisoning),
                                            discharge, general waste, agricultural chemicals                                        PCB poisoning
                        Soil pollution      Arsenic, heavy metals (especially in agricultural                                       Poisoning
                                            chemicals)
                                            Factories, construction work, road traffic, trains and   Headaches, insomnia,
                        Noise               aircraft, late-night commercial operations,              depression, hearing loss,      Osaka Airport noise
                                            advertising                                              impaired development
                        Vibration           Factories, construction work, road traffic, trains and   Dizziness, discomfort,         Shinkansen (bullet train)
                                            aircraft                                                 structural damage to homes     vibration
                        Ground              Upswelling of groundwater, gravel quarrying, coal        Structural damage to           Koto Ward, Tokyo
                        subsidence          mining                                                   buildings
                                            Exhaust fumes, river contamination,
                        Noxious odors       sanitation facilities, accumulated sewage,               Headaches, discomfort          Sewage in the Sumida River
                                            livestock farms, etc.
                      Source: Based on the Basic Law for Environmental Pollution Control.
                                                                                                                                                                   145
                      Japan’s Experience in Public Health and Medical Systems
                                           Table 6-2  The History of Environmental Pollution Control Measures
                                                                                                                              Classifications used in Chapter 6
                                    The history of environmental pollution control measures (Iijima 1993)
                        1. Prior to 1868 (before the Edo Era): First protest actions by victims of pollution
                        2.  1869–1914 (Meiji Era to First World War): Emphasis on industrial development                Beginnings of environmental pollution
                        3. 1914–1945 (First World War through to end of Second World War): Emphasis on nation-building
                        4. 1945–1954: Pollution becomes an issue in wider society
                                                                                                                        Social awareness of environmental pollution
                        5. 1955–1964: Extensive pollution damage during period of rapid industrial growth
                        6. 1965–1974: Pollution problems continue to worsen                                             Environmental pollution control measures commenced in earnest
                        7. 1975–1984: Lack of commitment in environmental policy                                        Pollution control measures lose momentum,
                        8. 1985–present: Mounting concern for global environmental issues                               increased awareness of environmental problems 
                      Source: Based on Iijima, Nobuko (1993) report.
                      history of pollution problems and countermeasures                          been grouped into four main periods to clarify the
                      in Japan. The specific case of Minamata Disease                            past experiences of Japan that are of relevance to
                      will be discussed in detail, looking at questions such                     developing countries today. Below we present an
                      as the difficulties encountered in the implementation                      overview of the social background in each period
                      of pollution initiatives and the wider social roles of                     and the development of pollution control measures.
                      those responsible for, or otherwise related to, the
                      initial problem. This will be followed by an analysis                      1-3 Trends in Environmental Pollution
                      of environmental policy and philosophy in Japan to                               Control Measures
                      identify those experiences and initiatives that have
                      relevance for developing countries today.                                  1-3-1 Beginning of Environmental Pollution
                                                                                                          (1600s~1945)
                                                                                                       The first known instance of pollution damage
                      1.    Overview of Environmental Pollution                                  in Japan involved emissions of wastewater
                            Control Measures                                                     containing heavy metals by mining operations back
                                                                                                 in the 1600’s, before the Edo Era. Affected farmers
                      1-1 What is Environmental Pollution?                                       and fishermen launched bitter protests against the
                            The Basic Law for Environmental Pollution                            environmental pollution and sought compensation
                      Control defines environmental pollution as any                             for damages, and their efforts generated
                      activity, by corporations or individuals, which                            widespread public interest.
                      compromises the health and/or environment of                                     From the Meiji Era through to the beginning
                      other persons in a localized area, where the causal                        of the First World War (1868~1914), a strong
                      link is clearly established. There are seven categories                    emphasis on national prosperity, military power
                      of environmental pollution. (see Table 6-2)                                and industrial growth saw considerable resources
                                                                                                 devoted to development of the three core industries
                      1-2 Change Over Time in Environmental                                      of mining, cloth spinning, and steel manufacturing.
                            Pollution Control Measures                                           These policies led to environmental problems such
                            Table 6-2 shows the history of pollution and                         as smoke, noise and water pollution. Environmental
                      pollution control measures in Japan, divided into                          damage was not confined to the areas surrounding
                      eight distinct phases from before the Edo Era                              such operations; city dwellers were often affected
                      (1603~1868) up to the present day1. For the                                too. Local governments were the first to take the
                      purposes of this document, the eight phases have                           initiative to address the situation, introducing a
                      1 Iijima, Nobuko (1993) Kankyo Shakaigaku [Environmental Sociology] Yukikaku.
                      146
                                                                              Chapter 6  Environmental Pollution Control Measures
                range of regulations and restrictions. At the         Ordinance, enacted by the Tokyo Metropolitan
                national level, however, the government welcomed      Government in 1959. Unfortunately, these regulations
                pollution as evidence of progress and prosperity,     were largely ineffective, due to the lax criteria and the
                and consequently very few of the environmental        level of opposition from industry. This experience
                pollution control measures contained in the           prompted local governments to take a tougher stance
                Factories Act (1911) and the Mining Law (1905)        on imposing emission standards, building treatment
                were actually enforced.                               and processing facilities, monitoring pollution
                    From the commencement of the First World          emissions, and providing administrative guidance
                War until the end of the Second World War             where necessary. Taxation and other incentives were
                (1914~1945), priority was given at the national       also introduced to encourage the adoption of
                level to the development of industries to meet the    environmental pollution control measures by industry.
                demands of the military—in particular steel                In response to the increasingly strident protests
                production and heavy industries. Increased            of pollution victims, the national government also
                production levels generated a range of problems       began preparing legislation to control environmental
                including atmospheric pollution, water pollution,     pollution, building on the work of local governments.
                noxious odors, noise, and land subsidence of fields   The process was delayed, however, by difficulties in
                and other areas. These in turn prompted efforts to    obtaining consensus among the relevant ministries
                create pollution reduction initiatives such as the    and agencies, compounded by fierce opposition
                world’s first ever pollution prevention system,       from industry groups. When it finally arrived, the
                developed by Sumitomo Metal Mining. Given the         legislation was largely ineffectual. In 1961, the first
                overriding emphasis on national prosperity, however,  national environmental pollution control laws were
                public health issues received scant attention and     enacted, in the form of the Two Water Quality
                protests by victims of pollution were largely         Regulation Laws for the regulation of pollution
                overlooked.                                           sources. Here again, the legislation lacked teeth,
                                                                      and environmental damage continued to worsen. It
                1-3-2 Social Awareness of Environmental               should be remembered, though, that the pollution
                      Pollution (1946~1964)                           control measures were introduced in the context of
                    The main priority in the aftermath of the Second  the main priority at that time of promoting
                World War was nation rebuilding; consequently,        economic growth, and were therefore designed to
                economic growth was the top priority from the late    avoid conflict with this overriding objective.
                1950s onwards. Considerable effort was put into the
                development of heavy industries and the construction  1-3-3 Environmental Pollution Control Measures
                of petrochemical plants. The steel, oil, aluminum and        Commenced in Earnest (1965~1974)
                power industries generated huge quantities of a range      The combination of rapid industrial development
                of pollutants, which in the absence of effective      (particularly in the petrochemical and heavy
                pollution countermeasures led to a rash of health     industries), strong economic growth, and
                problems on a scale unprecedented in the world at     unprecedented urban expansion led to a
                that time, including Minamata Disease, “Itai-Itai”    tremendous increase in pollutant emissions. A
                Disease and pollution-related asthma. In the year     succession of new and different pollutants began to
                1960, the city of Osaka recorded smog on 156 days,    appear, and the problems worsened. For example,
                and the rivers resembled open sewers.                 in 1971 sulfur dioxide emissions in the three major
                    Post-war environmental pollution control          municipal areas in Japan were three times the
                measures were initiated in Japan at the local         national average, and nine times the 1955 level of
                government level during the 1950s. The first formal   16 t. On some days it was not possible to go outside
                measures were the Factory Pollution Control           at all. Afflictions such as Minamata Disease and “Itai-
                                                                                                                    147
                 Japan’s Experience in Public Health and Medical Systems
                 Itai” Disease began to appear in other areas of the     flurry of activity on the part of the government,
                 country. Japan became known as the pollution capital    resulting in a range of measures such as the Basic
                 of the world.                                           Law for Environmental Pollution Control, a special
                     Public protests became increasingly vociferous      pollution session of the national diet, and the
                 and were taken up by the mass media, which had          Environment Agency. This period also saw a
                 the effect of raising general public awareness and      reversal of the approach adopted in environmental
                 concern about pollution issues. Scientists and other    regulation. Instead of imposing emission limits on
                 academics began organizing environmental                specific pollutants, regulations now sought to
                 assessments and resident awareness meetings.            provide target environmental standards as the
                 Interestingly, residents’ groups focused on local       ultimate objectives to be achieved. Environmental
                 governments rather than the national government,        standards for sulfur dioxide emissions were released
                 a strategy that proved most effective. Mounting         in 1969, followed by vehicle exhaust and water
                 public dissatisfaction at the unwillingness of the      pollution level limits in 1970, noise pollution limits in
                 national government to take proper action on            1971 and carbon dioxide and photochemical oxidant
                 pollution issues impacted on approval ratings, and      emissions limits in 1973. As a result, atmospheric
                 the government was eventually forced to give            and water pollution levels were improved
                 priority to public health and lifestyle issues.         significantly in a relatively short period of time.
                     The early 1970s saw a steady succession of
                 legal actions against polluters, resulting in victories 1-3-4 Pollution Control Measures Lose
                 in the four major pollution trials (Minamata                   Momentum, Increased Awareness of
                 Disease in Niigata, Yokkaichi Asthma, “Itai-Itai”              Environmental Problems (1975 onwards)
                 Disease and Minamata Disease in Kumamoto). The               The combined impact of the “oil shock” and an
                 findings in favor of the victims prompted a revision    economic downturn in the latter half of the 1970s led
                 of environmental standards and compensation             to increased criticism of and opposition to pollution
                 plans, and caused a fundamental shift in thinking on    controls in business and economic circles, and the
                 pollution, from being considered acceptable for the     government was obliged to modify its stance. The
                 overall public good to being considered generally       level of public protests had also weakened
                 unacceptable.                                           somewhat. Domestic companies began looking to
                     The combination of rising public opposition         set up offshore operations, primarily in Asian
                 and the success of the pollution trials prompted a      countries with less stringent pollution controls.
                                                        Worsening Pollution Problems
                 Photo 1:  Smoke from chimney stacks fills the sky       Photo 2:  Children take lessons wearing face masks to
                 (December 1972; photo by Mainichi Shimbun Co. Ltd)      block out the smell (Arakawa Ward, Tokyo, December
                                                                         1967; photo by Mainichi Shimbun Co. Ltd)
                 148
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...Chapter environmental pollution control measures while modern societies face growing concern problems can be attributed to the about global issues developing prevailing emphasis at time on economic countries are experiencing complex serious and growth profits expense of public health fast their own for this reason government was unwilling potent combination industrialization urban pursue strategies worsening development mass consumption trends is led emergence exacerbated by foreign companies operating with numerous victims groups turned tide little regard impact local environment opinion so that governments more than just a prefectural national level were forced act issue it wider social in has eventually after much trial error effective potential destroy homes communities dealing also closely tied mode put place as result quality despite began improve many either have not developed describing japan s experiences respect or caused initial reluctance provided adequate implementation st...

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