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Trying to understand
air pollution can be like chasing the wind. Just as you begin to
grasp the problem, it changes direction, picks up speed or races
far ahead. To the casual observer of Hong Kong's skies, these shifts
and movements have often made it difficult to appreciate improvements
in air quality. As one problem begins to get solved, another emerges
that diverts our attention. And each new problem seems to be bigger
than the last.
Over the past
15 years or so, concerns about air pollution have shifted from the
localised problem of chimneys and other stationary sources, to the
Hong Kong-wide problem of motor vehicles, then to the cross-boundary
problem of smog. The visual impact of smog in particular has tended
to overshadow improvements in other areas, but there have been significant
achievements in reducing sulphur content in industrial fuel, controlling
emissions from motor vehicles and cutting back pollution from power
plants. Nonetheless, an overall improvement in our air quality -
and reduction in smog - will not be possible without improvements
to regional air quality. Hong Kong and Guangdong are committed to
reducing that problem by 2010.
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Regional air
pollution developed throughout the 1990s, as a result of the rapid
development and growing wealth of Guangdong and Hong Kong. Electricity
demand, motor vehicle use and industrial activity all increased
by leaps and bounds. The emissions from these sources combined into
smog, which began to appear more frequently in the late 1990s, fuelling
public pressure for a solution to be found. In 1999, the Hong Kong
SAR Government and the Guangdong Provincial Government agreed to
try to address the problem together. A joint study was launched
which resulted, in 2002, in targets being set and recommendations
being made on the way forward.
The two governments
have agreed on ambitious reductions in smog-related air pollution
by 2010, taking 1997 as the base year. Respirable suspended particulates
and volatile organic compounds (VOCs) will each be cut by 55 per
cent, sulphur dioxide by 40 per cent and nitrogen oxides (NOx) by
20 per cent. In order to do this in a co-ordinated manner, a special
panel was set up to, among other things, prepare an air quality
management plan for the whole Pearl River Delta region. This was
completed and endorsed in 2003 by the Joint Working Group on Sustainable
Development and Environmental Protection, which has representatives
from both administrations.
The plan identifies
the need for Guangdong to reduce emissions across the board, from
power plants, industry and motor vehicles. Hong Kong has less of
a problem with industry, but needs to continue to reduce emissions
from motor vehicles and power plants. It also needs to tackle VOCs,
which come from a variety of sources such as solvent-borne paints,
printing ink, building and furnishing materials, some consumer products
such as cleaners, and pesticides (see box on Volatile Organic Compounds
for details).
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One of the most
significant environmental improvements in Hong Kong in recent years
has in fact been with motor vehicle emissions. Street-level pollution
has improved markedly as a result of efforts supported by all sectors
of the community and financed by a $1.4 billion package of measures
announced by the Chief Executive, Mr Tung Chee-hwa, in his 1999
policy address.
The package
aims to reduce respirable suspended particulate emissions from vehicles
by 80 per cent by 2005, and NOx by 30 per cent. Both of these pollutants
have harmful effects on health, and both are linked to Hong Kong's
heavy reliance on diesel vehicles. Prior to 2000, one-quarter of
all vehicles used diesel, as compared with 17 per cent in Singapore
and four per cent in the United States. The first priority therefore
has been to reduce reliance on diesels.
Taxis have been
offered subsidies to switch from diesel to cleaner liquefied petroleum
gas (LPG). By the end of 2003, nearly all taxis had made the switch
to LPG, which is now compulsory for all new taxis. Public light
buses are also switching to LPG in a voluntary programme. 80 per
cent of newly-registered public light buses had chosen LPG by the
end of 2003.
The remaining
diesel vehicles on the road - mainly vans and trucks - have been
subject to tighter controls. All new diesel vehicles are required
to meet the latest stringent European emission standards. Vehicles
imported before the standards started being tightened in 1995 are
being fitted with devices to remove particulates. 80 per cent of
older light diesels (not more than four tonnes) are now fitted with
the device and the rest were required to do so in order to renew
their vehicle license, as of December 2003. About half of the heavy
diesels (over four tonnes) have been fitted out and they will face
the same license renewal condition in future. Apart from these requirements,
petrol filling stations carry only ultra-low sulphur diesel, tests
for smoky vehicles have become stricter and the fixed penalty for
smoky vehicles has been increased to $1,000.
These measures
have resulted in considerable improvements in street-level air quality.
By the end of 2003, vehicles were emitting about 60 per cent fewer
particulates and 27 per cent fewer NOx, well on the way to meeting
the 2005 targets laid down by Mr Tung. At the roadsides, that translated
into 13 per cent fewer particulates, 23 per cent less NOx, and 74
per cent fewer smoky vehicles being spotted, as compared with 1999.
The number of hours during which the Air Pollution Index at roadsides
exceeded the 100 mark, indicating air pollution was very high, has
also dropped by 35 per cent since 1999. There are obviously still
improvements to be made, but we are progressing well in reducing
both street-level pollution and contributions from motor vehicles
to regional air pollution.
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Pollution from
industry and other stationary sources may seem a thing of the past,
in comparison to motor vehicle and regional air pollution. Concern
about this problem peaked in the 1980s, when many small factories
were located close to residential areas. One of Hong Kong's first
environmental successes was the banning of high-sulphur fuel by
industry in 1990, which resulted in an overnight improvement in
air quality. Other controls were also introduced which have successfully
contained industrial pollution. But pollution from another stationary
source - power plants - is more problematic, especially on a regional
scale.
Hong Kong's
two power companies, CLP Power Hong Kong Ltd. and The Hongkong Electric
Co. Ltd., have implemented many significant improvements over the
past 15 years, but the sheer volume of their output means they continue
to have a major impact on regional air quality. Since 1990, they
have introduced clean gas fuel, de-sulphurisation and low NOx burners,
resulting in major reductions in air pollution even while consumption
rose. Between 1990 and 2002, emissions dropped by more than 45 per
cent, even though consumption rose by 60 per cent. The EPD has strongly
encouraged the power plants in their efforts to reduce their emissions.
But as the focus has turned to cross-boundary air quality, they
face pressure to do even more. Power plant emissions comprise the
largest share of Hong Kong's contribution to regional air pollution.
Any further reduction by the power stations is likely to be very
costly. An emissions trading scheme therefore is being explored
with the aim of reducing the cost implications to the community.
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There is strong
determination by both Hong Kong and Guangdong to tackle regional
air pollution, but it will not be cheap or simple. The EPD has had
successes in reducing some sources of air pollution, such as high-sulphur
fuel and motor vehicle emissions, but only after overcoming initial
resistance and objections. A dialogue with the affected parties,
plus commitment by government and an agreement all around that local
air quality was deteriorating to unacceptable levels, smoothed the
way for the introduction of anti-pollution measures. With regional
air pollution, a similar approach of determination and dialogue
will be needed. There will be costs, but if the community's aspirations
for cleaner air can be turned into firm actions to reduce regional
air pollution, the air over Victoria Harbour could one day be clear
and clean again.
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