Chapter 4. Measures Forming the Basis of Environmental Policy
Several policy instruments which have been mentioned in previous
chapters can serve the long-term objectives at one time. These include
environmental impact assessment (EIA), regulatory measures, economic
measures, providing environmental infrastructure and promoting
scientific research, monitoring, observation and environmental
technology, and environmental information. These instruments shall be
utilized in appropriate policy-mix approach, depending on the types of
problem. This chapter presents the basic ideas that guide the
implementation of these measures.
Furthermore, this chapter also presents the basic ideas that direct
such policy instruments as regional pollution abatement programs,
environmental health measures and pollution dispute resolutions.
Section 1. Environmental Impact Assessment (EIA)
In order to comprehensively conserve the environment, it is essential
that precautionary environmental consideration is made in formulation
and implementation of policy measures and projects. This concept is
widely recognized and firmly established both domestically and
internationally.
To further environmental considerations such as implementation of
environmental impact assessment, the following measures shall be
enhanced.
1. Environmental Consideration for Government Policies
With a view to prevent environmental problems, environmental
conservation shall be taken into account when formulating and
implementing government policies which may affect the environment,
conducting studies on environmental implications as needed.
2. Environmental Consideration at Planning Stage of Public Works
Environmental consideration shall begin at the planning stage of public
works for providing infrastructure undertaken by the Government. This
includes survey and prediction of environmental impact of the project.
3. Promoting EIAs for Projects
The Government is already promoting adequate EIAs for several types of
large scale construction projects having significant environmental
impact. EIAs are carried out based on the Cabinet approved EIA
Implementation Guidelines (1984) and several laws. The Government shall
continue to make effort for implementing these EIA procedures. Local
governments are also promoting EIAs based on their own ordinances and
guidelines as regional realities dictate.
4 Promoting Systematic Research on EIA
In order to ensure proper environmental considerations, the Government
shall enhance further research on schemes and methodology of such
considerations. Particularly for future EIA systems, relevant ministries
and agencies are jointly conducting a comprehensive research on various
EIA systems and state of their implementation both in Japan and abroad,
taking into account the accumulation of domestic EIA experiences and
increasing recognition of the importance of EIA. Base on the result of
this research, the Government shall make necessary reconsideration of
the institutional framework of EIA, possibly including future
legislation.
Section 2. Regulatory Measures
Among environmental policy tools, various regulatory measures have long
been effective in controlling pollution and other interference with
environmental conservation. Regulatory measures can also appropriately
ensure that the environmental costs are incorporated in the market
mechanism. Thus, the current regulatory measures are to be implemented
properly and those measures shall continue to be applied in the future,
taking account of characteristics of a particular problem, effectiveness
and impact of the measures, and so on.
Section 3. Economic Measures
Japan has achieved much progress, compared to other developed countries,
in conserving resources and energy particularly in industry since the
oil crisis. However, prevailing patterns of mass-production,
consumption and discharge in socioeconomic activities, together with
continuing concentration of population and economic activities in urban
areas, have led to such environmental problems as urban/household-
generated pollution, increasing waste and global warming, which require
further measures aimed at solving these problems.
These problems are caused by wide-ranging socioeconomic activities
including daily business activities and lifestyles. It is pointed out
the fundamental reason underlying is that the social cost of
environmental load arising from these activities has not been well
understood and the measures have been lagging behind, therefore the cost
has not been incorporated in market mechanism. These activities have
been continued externalizing these social costs. Regarding these
problems, it is required to appropriately implement regulatory measures,
economic measures and others so as to ensure that each member of society
acts in an environmentally friendly manner.
Various economic measures, such as environmental taxes, surcharges, and
deposit-refund systems which aim to properly reflect environmental costs
in the price of goods and service transactions, are expected to
efficiently reduce environmental load generated by numerous daily
activities, and considered also to contribute to efficient distribution
of resources. These measures have been recommended internationally by
the OECD, the G-7 Summit and the UNCED, and are implemented in various
examples in European countries and the U.S. Japan must also promote
studies and investigations into these measures and participate in the
international discussion at the OECD and other fora, with a view to
resolve aforementioned environmental problems.
Economic measures include economic burden and assistance, both of which
aim to ensure each party in the economy to take actions for
environmental conservation through using economic incentives.
1. Economic assistance
Economic assistance is a measure to effectively promote investments in
facilities and other improvements to reduce environmental load by the
party who is responsible for activities generating those load, such as
pollution control investments to promptly attain improvement of the
environment within a limited period. In providing economic assistance,
necessary and appropriate measures shall be implemented in consideration
of economic conditions of recipients and that the financial outlay is
ultimately the burden of Japanese people, as well as based on Polluter
Pays Principle of the OECD which urges not to create any major
distortions in international trade and investment
2. Economic burden
Economic measures placing economic burden are, in effect, requiring
those parties who are conducting activities generating environmental
load to bear new burden which has not been paid before. In order to
make decision on economic measures to be implemented, studies and
investigations shall be appropriately promoted as to their effectiveness
for environmental conservation, impacts on the national economy and so
on, in consideration of the fields to be applied such as controlling
carbon dioxide emissions to prevent global warming, measures for urban/
household-generated pollution, or reducing waste. The understanding and
cooperation of the people will be sought when introducing the economic
measures. Where those measures are concerning protection of the global
environment, considerations will be made to international cooperation so
as to properly ensure the effectiveness.
Along with the investigation into measures of economic burden, further
investigations shall be promoted concerning policy options such as
utilizing regulatory and other policy measures, effectively
incorporating those other measures together with measures of economic
burden.
Regarding economic measures to reduce the generation of waste and
promote recycling, waste reduction shall be ensured through requiring
appropriate economic burden such as imposing collection charges on
household waste in proportion to the amount of waste. As well,
extensive investigations shall be carried out as to utilizing economic
measures such as deposit-refund system, with a view to develop a scheme
which will clarify the responsibilities of waste generators and ensure
that cost of proper waste disposal and recycling is appropriately shared
in society.
Section 4. Environmental Infrastructure Improvement
To maintain healthy and productive environment and create a society
ensuring sustainable development with reduced environmental load, it is
necessary not only the efforts of corporations and people for reducing
their environmental loads but also promotion of environmental
infrastructure improvement. Of course, project plans should be examined
to assess possible environmental impacts and conservation measures based
upon the result must be implemented. Since Japanese population is
predicted to continue aging, the capital reserves are expected to
continue to fall. It is therefore essential that these infrastructure
should be intensively improved in limited time frame.
The public works of facilities in the Plan that will reduce
environmental loads based on various endowment programs will be
implemented. Likewise, this Plan allows for projects to maintain and
ensure the proper utilization of the natural environment. In financing
these projects, the Guideline for Estimation of the Budget for
Environmental Conservation should fully be considered. The projects
should be undertaken comprehensively and intensively with measures for
effective utilization of the facilities. In this case, the effectiveness
of the projects will need to be evaluated.
Section 5. Scientific Research, Monitoring/Observation and Environmental
Technology
It is essential to carry out research, observations and monitoring to
more clearly understand the state of the environment, to elucidate the
mechanisms of environmental change and to make educated decisions about
conservation policies. In particular, to solve complex global problems,
an exorbitant amount of scientific knowledge will need to be gathered.
To achieve an environmentally healthy and friendly society, technology
must be developed. This newly developed technology must then be
increasingly employed and dispersed.
To contribute to the international society, Japan must strengthen
research , observations and monitoring, develop appropriate technologies,
and provide facilities necessary for these scientific and technological
activities. and establish technological facilities. Efforts of local
governments and private organizations in this endeavor shall be
supported.
1. Monitoring, Observation and Research
1.1. Research
Research into the following issues which fall within broad fields of
natural, social and cultural science, shall be promoted, from a global
perspective. Interministerial cooperation shall be sought as necessary,
considering that many of these issues are overlapping.
A. comprehensive monitoring of environmental loadings such as greenhouse
gases and waste generation, and of socioeconomic activities that cause
such loadings
B. understanding the mechanism of environmental changes and predicting
their impacts
C. ensuring biodiversity
D. clarifying and evaluating long-term, compounding, environmental risks
of human activities through different environmental media such as air
and water
E. establishing an integrated national environmental and economic
accounting system and further understanding the interrelationship
between the environment and economy
F. international trends in environmental policy and their effectiveness
G. decision making under the uncertainty of environmental change
H. Issues related to each of the topics in Part III .
1.2. Observation and Monitoring
Observation and monitoring should be carefully employed, based on
individual laws. The entire planning process for observation and
monitoring (i.e. from formulation, implementation, structuring, analysis
and evaluation, to publication of final results) must be worked out in
detail. Likewise, an implementation system for observation and
monitoring must be established to ensure correspondence between changes
in environmental problems and implementation.
1.3. Global and Transboundary Problems
Regarding research, observation and monitoring of problems affecting
wide areas, such as acid deposition and marine pollution, efforts should
be made to better understand broad advection and diffusion of substances
and their impacts on ecosystems. Furthermore, efforts should be made to
expand scientific knowledge on material circulation between the
atmosphere, hydrosphere, geosphere and biosphere. Such knowledge will
lead to a better understanding of global problems and its impacts on the
ecosystem.
1.4. Systematic Control and Organization
Research, observation and monitoring implemented by, or connected with,
the government shall be systematically overseen and organized. The
government shall likewise do its best to oversee research instituted by
local governments and private sectors. Furthermore, cooperation between
related research, observation and monitoring shall be promoted by
establishing liaison meetings, as circumstances require.
1.5. Comprehensive Implementation Systems
In fields related to global environmental conservation, where
systematic efforts are necessary, comprehensive programs shall be
formulated to secure well-organized implementation of research,
observation and monitoring.
2. Promoting Technology
2.1. Technology Supporting Environmental Conservation Efforts
Technologies related to environmental conservation targets should be
widely promoted. Appropriate technologies shall be selected by
considering both their effectiveness in curing particular problems and
their adverse side-effects. Technological systems which support
environmental conservation efforts shall be secured.
2.2. Developing and Dispersing Technology
Energy and resource conserving technology, closed material circulation
production technology, pollution cleanup technology, waste disposal and
recycling technology, environmental maintenance technology and
technology to construct aesthetically pleasing facilities must be
developed and dispersed. The technologies mentioned in section III,
remote sensing technology employed by satellites and technology
appropriate to developing regions must be developed. Not only must
equipment and hardware technology be developed, but also, effective know-
how, or 'soft' technology must be developed. After applying a certain
technology, its effectiveness in improving the environment shall be
evaluated and measures shall be implemented according to the results.
3. Laying the Foundation
3.1. Providing Facilities
Necessary equipment and facilities shall be provided to carry out
research, observations and monitoring.
3.2. Improving Measuring Technology
Credibility and accuracy in survey and measuring shall be improved. In
particular, telemetering (the transmitting of results produced by an
electrical measuring apparatus to a distant station) and remote sensing
technologies need to be advanced. Also, planes, ships and satellites
shall be provided.
3.3. Academic Research, Human Resource Development etc.
Academic research of cultural, social and natural sciences shall be
promoted at universities and other institutions in fields related to
environmental conservation. In cooperation with these institutions,
efforts shall be made to improve the quality and quantity of human
resources engaged in enhancement of research, observation and monitoring,
and development of appropriate technologies. Likewise, cooperation
including human resource exchange shall be promoted, and information
shall be shared among different institutions.
3.4. Cooperation with Private Sector
The utilization of civilian ingenuity shall be encouraged to promote
advances in technology .
4. Local Governments and Private Organizations
4.1. Exchange and Participation
Assistance shall be provided to local governments, non-profit
organizations, universities and private organizations, for the purpose
of furthering research, observation, monitoring and technology
development. This assistance will come in the form of information
exchanges, human resource exchanges, and as necessary, in the form of
joint research and joint utilization of equipment/supplies.
Scientific information provided by private organizations and the
general public is extremely valuable. Their participation in research,
observation and monitoring activities shall be promoted. The Government
shall make efforts to develop and disperse surveying and measuring
methodologies and procedures which facilitate such participation.
4.2. Technological Assistance
Technological support, concerning proper measurement implementation by
companies, shall be promoted. Support shall also be given to improve
the accuracy of investigations and measurements of private organization.
To accomplish this, information shall be provided and official
qualifications for environmental technicians shall be established.
5. Disseminating Results
The results of research, observation and monitoring activities shall be
officially disseminated to the general public. Impediments in
communication must be examined to construct a system which can easily
disseminates major breakthroughs in environmental technology.
Information transfer and communication systems shall be established, and
with the government taking the lead, necessary measures to provide
economic incentives for disseminating information shall be applied.
Section 6. Providing and Maintaining Environmental Information
To promote environmental conservation measures, environmental
information must be systematically maintained and utilized. It is
essential that information be accurately provided to advance
environmental education and learning and to encourage voluntary actions
by companies, citizens and private organizations. Furthermore, the
information must be offered fairly to each member and sector of society.
The rights of both individuals and legal entities shall be considered
in regard to provisions and maintenance of information. Utmost efforts
shall be made to ensure that information is efficiently provided and
easily accessible.
1. Establishing an Information System
The state of the environment, burden levels, forecasts and conservation
efforts are some of the types of information needed to secure the goal
of this Plan. How to make this information available and easily
accessible shall be studied. The institution of highly organized
databases to aid in the complex task of gathering, sorting and
processing new data shall be promoted. In this way, discovering where
information is, and how to access it shall be simplified. The
establishment of these databases shall be based upon the results of the
information accessibility study.
The government shall promote the establishment of an environmental
information broadcasting network. It will, likewise, study how to
create a format in which information from a wide variety of sources,
gathered by local governments and private individuals could be made
easily available, culminating in a completely integrated environmental
information database.
2. Provision of Information
2.1. Document and Other Forms of Information
The government shall provide information to the general public through
publications like the White Paper in the Environment and the
Environmental Information Handbook. In addition to publications,
magnetic media and other news transmission systems shall be utilized.
2.2. Information Access System
A system shall be established to promptly respond to inquiries made by
citizens. The possibility of establishing a comprehensive environmental
information database and information supply system that networks local
governments and non-profit organizations shall be examined.
2.3. Environmental Information Centers
In order to provide information covering various fields, the
feasibility of establishing environmental information centers,
biological diversity centers and national park visitor centers shall be
examined.
3. Establishing an Environmental Analysis system
3.1. Analysis System
The establishment of a system to evaluate the effectiveness of measures,
forecasts and analyses on the state of the environment shall be
examined. An integrated environmental information database shall be
employed in this endeavor.
3.2. Environmental Statistics
The establishment of environmental statistics, incorporating the
results of research on an integrated environmental-economic tracking
system shall be examined.
4. Laying the Foundation
4.1. Establishing Facilities
The necessary facilities and equipment for providing information shall
be established. This includes establishing an information network.
4.2. Human Resource Training
Efforts shall be made to improve the quality and quantity of human
resources for environmental information management. Strong ties with
educational institutions shall also be maintained.
5. Supporting Local Governments and Private Organizations
5.1. Regional Bases
The establishment of regional information bases to promote the
integration of information from local governments in an organized manner
shall be promoted.
5.2. Information Networking
Support shall be lent to promote the integration of information
obtained as a result of private organization's voluntary activities.
Networking between the national and local governments and private
organizations shall be supported.
Section 7. Regional Pollution Abatement Programs
Regional pollution abatement programs shall be formulated for
designated areas where the effects of pollution are currently severe in
coordination with other policies.
1. Plan Formulation
Fundamental policy measures based on this Plan shall be formulated.
The following factors shall be considered when formulating these
measures.
A. To achieve and maintain regional environmental quality standards,
controls must be applied and broad measures designed. In this way,
burdens generated in the course of business activities and the daily
activities of citizens shall be reduced.
B. Means shall be provided so that every sector of society can work
together actively to conserve the environment and to ensure that the
burden of this endeavor is fairly spread.
C. Conservation of the natural and global environment shall be given
utmost consideration.
D. Priority actions shall be set up for air pollution caused by nitrogen
oxides, water pollution and ground water contamination from domestic
waste water.
F. In metropolitan areas, trans-regional approaches shall be promoted.
Neighboring districts shall formulate plans dealing with environmental
problems in coordination with one another.
G. Environmental conservation shall be integrated with other legal
programs dealing with conservation.
2. Plan Implementation
Measures mentioned in the Basic Environment Plan shall be
comprehensively and systematically promoted and they shall be carefully
coordinated with one another.
Section 8. Environmental Health, Pollution Disputes, etc.
The government shall enact measures to prevent pollution-related health
damage and outbreaks of victims. Additionally, for victims it shall
promote prompt and fair protection measures as well as ensuring their
health based on Polluter Pays Principle.
Furthermore, the government shall promote prompt and reasonable
settlement of disputes.
Likewise, complaints settlements shall be promoted to conserve living
environment and to prevent further disputes in the future. Pollution
control regulations shall be strictly enforced.
1. Relief and Prevention of Pollution-Related Health Damages
1.1. Relief
Based on the Law for the Compensation of Pollution-Related Health
Damage persons verified pollution-related health damage receive
compensation and should be relieved promptly and fairly. As for
Minamata Disease, verification, comprehensive measures for Minamata
Disease and comprehensive research at National Institute for Minamata
Disease shall be promoted.
1.2. Prevention
To prevent health damage from air pollution, the health damage
prevention program financed by the fund in Pollution¥¥Related Health
Damage Compensation Association shall be undertaken. A pollution in the
area can be observed regularly and continuously (Environmental Health
Surveillance System) shall be established and various research programs
shall be promoted.
2. Pollution-Related Dispute Resolution
2.1. Dispute Resolution
Based on the Pollution-Related Dispute Resolution Law, the government
shall provide venues for mediation and arbitration.
2.2. Handling Complaints
Again, based on the Pollution-Related Dispute Resolution Law, the
government shall provide information and guidance to local governments
so that pollution complaints filed in their jurisdictions can be
adequately settled. Furthermore, measures to ensure that pollution
complaints to local police are properly received and handled shall be
implemented.
2.3. Measures on Crimes Against the Environment
To prevent pollution offenses, related organizations and private
individuals must cooperate and measures to make such violations criminal
shall be promoted.
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