Acidification Research: Etvaluation and Policy Applications PDF
Preview Acidification Research: Etvaluation and Policy Applications
Studies in Environmental Science 50 ACIDIFICATION RESEARCH: ETVALUATION AND POLICY APP LIC AT10 NS Proceedings of an International Conference, Maastricht, The Netherlands, 14-1 8 October 1991 Edited by T. Schneider Rijksinstituut voor Volksgezondheid en Milieuh ygiene (RIVM), 3720 BA Bilthoven, The Netherlands ELSEVIER Amsterdam - London - New York - Tokyo 1992 ELSEVIER SCIENCE PUBLISHERS B.V. Molenwerf 1 P.O. Box 21 1,1000 AE Amsterdam, The Netherlands @ 1992 Elsevier Science Publishers B.V. All rights reserved. No part of this publication may be reproduced, stored in a retrieval system or transmitted in any form or by any means, electronic, mechanical, photocopying, recording or otherwise without the prior written permission of the publisher, Elsevier Science Publishers B.V., Copyright and Permis- sions Department, P.O. Box 521, 1000 AM Amsterdam, The Netherlands Special regulations for readers in the USA - This publication has been registered with the Copy- right Clearance Center Inc. (CCC), Salem, Massachusetts. Information can be obtained from the CCC about conditions under which photocopies of parts of this publication may be made in the USA. All other copyright questions, including photocopying outside of the USA, should be refer- red to the publisher. No responsibility is assumed by the Publisher for any injury and/or damage to persons or property as a matter of products liability, negligence or otherwise, or from any use or operation of any methods, products, instructions or ideas contained in the material herein. This book is printed on acid-free paper. Printed in The Netherlands xii The International Conference on ACIDIFICATION RESEARCH, EVALUATION AND POLICY APPLICATIONS, organized by the Ministry of Housing, Physical Planning and Environment, was held in Maastricht, The - Netherlands, from 14 17 October 1991. A first Conference of this kind was held in Amsterdam, from 5 - 9 May 1986. During that Conference 24 official delegations from ECE member countries discussed the available results of Acidification Research Programmes and Projects and evaluated these results with regard to the implications for Policy Actions. In 1986 already a number of results indicated the need to study and describe the (mostly negative) effects of acidification. More substantial evidence for the relative importance of acid deposition in the whole field of environmental stresses on the endangered ecosystems or environmental compartments however, surfaced during the execution of nationwide coordinated research programmes. Examples of such a programme could or still can be found in the USA, Canada, Finland, France and The Netherlands. A number of individual research results have been reported and discussed already in the Glasgow Conference held in 1990. The relation between scientific results of integrated research programmes and policy actions to prevent, reduce and limit the widespread damage caused by acidification was, however, not presented as yet. In cooperation with the members of the MARC group (Meeting of Acidification Research Coordinators) the Organizing Committee therefore suggested a programme for the Conference containing several types of presentations: - thematic reviews on specific topics of acidification research by invited key speakers; - summaries of national research programmes by programme coordinators; - overviews of acidification policy plans and actual abatement programmes by national or supra-national representatives; - selected poster presentations or short papers on recent research results. The Proceedings of the Conference contain the opening statements by J.C.M.Alders, Minister of Housing, Physical Planning and Environment; G.J.R.Wolters, Conference Chairman and W.H.Riem, Deputy Commissioner of the Queen in the Province of Limburg. After the Opening Session three half day sessions were devoted to the state- of-the-art presentations of key elements within the Acidification Research Programmes. In parallel sessions these were followed by presentations on: 1. Acidification Policy by national representatives 2. Results from National Research Programmes and 3. Recent Research Results on the Acidification Problem. During several days of the Conference also a Poster Session was held. At this Session detailed information was given on results from specific (sub) items out of the research programmes. ... Xlll The final Session consisted of the presentation and discussion of a paper on “A comparison of some national assessments”. This comparison comprised an “all out effort” by two senior experts (Jan Nilsson and Ellis Cowling) in the field of Acidification Research. They succeeded in evaluating and comparing research results from a number of different national research programmes. A work of quality, carried out in a (relative) brief period before, during and shortly after the Conference. The editor would like to express here his admiration for this outstanding effort. The successful conduct of a meeting between research scientists and policy makers from a large number of countries, depends on the dedication of numerous individuals. As editor and Chairman of the Organizing Committee I would like to acknowledge here all those who have contributed to the organization of the Conference and the associated events. The preparation of the final programme, and the selection of the invited speakers, was carried out with the support of the members of the National Advisory Committee, listed in this volume. Members of this Committee also acted as chairmen of the individual conference sessions. I also would like to recognise the excellent work performed by my Organization Committee: Joop van Ham of SCMO-TNO who served as scientific secretary together with Bert Jan Heij who also organized the Poster Session. Ottelien van Steenis not only performed the secretarial work of the Committee but also formed with the excellent help of Nel Venis-Pols and Marianne Vonk the Registration and Information Centre, and last but not least she also took care of all the preparations for these Proceedings. I am grateful for the, as usual, excellent organization of the programme for accompanying guests by Mini Schneider. I would also like to thank the Burgomaster and Aldermen of the City of Maastricht for their welcome reception in the Town Hall of this most bourgondic town of The Netherlands. Finally thanks are due to the members of the MECC Conference and Hotel Services for their expert performance and good standard of Dutch hospitality. I hope that these proceedings, published by Elsevier Science Publishers in their usually rapid and professional way, will be used as a work of reference, both by research scientists as well as by policy makers. T.Schneider Chairman Organizing Committee T. Schneider (Editor). Acidification Research. Evaluationa nd Policy Applications 3 1992 Elsevier Science Publishers 0.V. ACIDIFICATION: AN INTERNATIONAL PROBLEM J.G.M. Alders Minister of Housing, Physical Planning and Environment, P.O. Box 20951, 2500 EZ Is-Gravenhage, The Netherlands Mr. Chairman, Ladies and Gentlemen, I would like to start by welcoming you here at this conference in Maastricht and I wish you a useful and pleasant stay. Undoubtedly, you are all familiar with the problems caused by acidification. These problems are emerging nowadays in all industrialized countries and have a wide variety of effects on our ecosystems. Therefore, acidification is an example of the type of problem that can be dealt with effectively only by international measures. Of course, national efforts are indispensible, but because of the transboundary aspects of the problem, only a co-ordinated international abatement strategy can effectively address this problem. Acidification is a complex scientific problem. A large number of specialist fields are involved and, hence, international co- operation is also needed in scientific research. A conference, such as this one, can play an important role in facilitating the exchange of the latest information on acidification: not only with respect to research results but also with respect to the development and implementation of abatement policies. It is very useful for all countries to be informed about each other's results: this prevents overlap in research and has a steering and stimulating effect. In the Netherlands a national research programme on acidification was set up to study the effects of the emissions of sulphur oxides, nitrogen oxides and ammonia. The most important results of the second phase of this programme are presented during this conference. The international aspects of acidification are obvious. In most countries the share of emissions from neighbouring countries in the total deposition is significant. Not only in small countries like the Netherlands, but also in large countries with relatively low emissions, a high percentage of the acid deposition can be traced to foreign origin. 4 Foreign contribution is for example very high in Norway, Sweden and the Netherlands. Spain and Great Britain however, are to a large extent responsible themselves for the SO,-deposition in their countries. The first step in an international abatement strategy was the United Nations Convention on Long Range Transboundary Air Pollution, signed in Geneva in 1979, in which countries declared their firm intention to reduce emissions that contribute to depositions in other countries. This convention, once considered a paper tiger, already provides a basis for coordinated SO,- and NO,-abatement. A VOC Protocol will be signed next month and there is still more to come. For use in international negotiations, the UN-ECE is developing the so called "critical loads concept". In this concept the maximum deposition of sulphur and nitrogen on a specific area is determined, below which no negative effects will occur: the critical load. To stay below this critical load, emission reductions of 80 to 90 percent are needed. In a step-wise approach towards this critical load, target loads will be determined. This concept creates an unique opportunity for an abatement strategy as effective as possible and will lead towards international agreements with differentiated obligations. From our experience with modelling, we know that dramatic reductions are necessary. Some people experienced this as a shock after years of belief that severe abatement measures could be avoided. Once more this is an example that a good judgement comes from experience, but that experience comes from . bad judgement It is not likely that the required reductions will be realized in the short term. A comparison of the emission reductions, needed to reach the target loads, with the reductions foreseen in the current policies of European countries demonstrate that considerable supplementary efforts are needed. At this moment we are confronted with a related problem that should get all of our attention. From the point of view of cost effectiveness, measures taken in countries in Central and Eastern Europe should have priority. However, most of these countries do not have the financial means to actually take these measures. The need for creative international solutions becomes more and more urgent and maybe we should adjust the "polluter pays principle" to the new situation. The countries in Western Europe should assist countries in Central- and Eastern Europe that lack both technical and financial means. The European Energy Charter offers a good possibility to turn this idea into action, if it is used to improve the energy infrastructure in the East-European countries. 5 Negotiations on reduction percentages will play an important role during the coming years: an international abatement scheme has to be developed. The considerable costs involved in reduction measures are increasing the hesitation to really take these measures. Hopefully this will be avoided by a step-wise approach. In view of the seriousness of the effects, this development of an international abatement policy cannot await still more scientific certainty. Yes, there are still gaps in our knowledge, but knowledge alone will not solve our problems. To conclude, I can state that the Netherlands is supporting the critical loads concept and has accepted the resulting necessary emission reductions. A first step to reach our critical loads has already been taken. I would like to invite other countries to do the same. Furthermore, it is clear that the West-European countries have to assist East-European countries in order to reach our common targets as soon and as effectively as possible. I thank you for your attention. T Schnetder (Editor), Acidification Research Evaluationa nd Policy Applications 0 1992 Elsevier Science Publishers E V All rights resewed I ACIDIFICATION AS AN EXAMPLE OF THE LINK BETWEEN SCIENCE AND POLICY G.J.R. Wolters (Conference Chairman) and H. Marseille Ministry of Housing, Physical Planning and Environment, Directorate General for Environmental Protection, Air Directorate, P.O. Box 450, 2260 MB Leidschendam, The Netherlands. Ladies and gentlemen, I am very pleased to welcome you all at this international conference about acidification research, evaluation and policy application. Modern environmental issues, like acidification, depletion of the ozone layer and climate change, ask for an approach in which a close link is made between science and policy. In the past, when the first environmental problems became evident, we only had the possibility to treat the problem by using a technology based approach. Emission reduction by applying best available technology was the most reasonable thing we could do. Nowadays our knowledge about the whole chain from emissions to environmental effects has increased in such a way that scientific information about the seriousness and urgency of the environmental problem can give us accurate guidance in policy development. This means that, if the problem is very urgent and application of best practicable technology is insufficient to avoid irreversible changes in ecosystems, science provides a sound basis for the additional structural measures that have to be taken eventually. For example, measures to change production processes or reduce energy use or car use could be applied. "No effect levels", or "critical levels and loads", can be used to establish a policy objective. The time scale in which the policy objective should be reached, depends on the sensitivity of the systems. If the ecosystems concerned have a large buffer capacity so that they can stand a higher level of pollution than the "no effect level" for a certain period, it could be possible to prolong the time scale. But with this we should be careful because scientific information always deals with uncertainties. Even if science tells us that an ecosystem is less sensitive than we thought, and even if we are not 100% sure of serious ecological impacts, this could never be an excuse to do less than use the Best Available Technology and to produce more pollution than necessary. Mr. Joris Al, who will speak on the acidification policy of the Netherlands (tomorrow 8 or Thursday), will explain this two-track approach, based on effect-oriented environmental quality objectives on the one hand and source-oriented Best Available Technology on the other hand. International agreements tend to reflect the close relationship between science and policy more and more. I only have to refer to the speech of Minister Hans Alders, who told you about the critical loads approach, being used for international negotiations about further reductions of nitrogen and sulphur emissions. In my opinion, the acidification policy in the Netherlands is a good example of the link between science and policy, and I will try to tell you in short how acidification policy has developed on a dynamic scientific and technical basis. The purpose of presenting these developments is to give you food for thought on the various ways science and policy may be linked with respect to acidification. Possibly our experience could be of help for policy development in other countries. I will especially try to clarify how we translated scientific information into policy goals and how we dealt with uncertainties and changing insights. Approach The process of setting policy goals for the acidification theme is given in fig. 1. The theme "acidification" was recognized in Dutch environmental policy from 1976 onwards. Swedish data about acidification of lakes had caused concern about the situation in the Netherlands, but in fact very little was known about the damaging effects of acid on ecosystems and the first document handling this theme did not set air quality objectives as a policy goal for reducing the problem. A big change however occured when photographs of dying forests in Germany appeared in our newspapers. Questions in parliament and pressure from NGOs led to the first deposition objectives in the Indicative Multi-year Programme for Air '84-'881, based on Swedish and Canadian studies of the acceptable levels of sulphur and sulphate deposition. The Swedish and Canadian critical loads were translated into a preliminary critical load of 1800 acid equivalents per hectare per year for combined deposition of SO,, NO, an NH,. Complete conversion of these compounds into acid was assumed and a rough estimate of soil sensitivity in the Netherlands was made. An emission reduction factor of 3 to 4 for total acidifying emissions on a European scale was calculated to be necessary to reach the critical load for the Netherlands. Based on the approach of equal emissions per capita, the necessary reductions of SO,, being rather mild, were assumed to be possible, but the necessary technology for reducing NO, and NH, emissions was very inadequate. Interim emission ceilings for SO, and NO, were established on the same level as the current emissions, and the intention of lowering the emission ceilings on a European scale was mentioned. 9 Start of the research programme The questions from parliament, asking for abatement measures and a research programme, also led to an overview of current scientific knowledge in the Netherlands and to the memorandum "the problem of acidification' ", after which a large national research programme, the "Dutch Priority Programme on Acidification", was started. It was financed by several ministries as well as by the Electricity Generating Board and the Oil Companies. The first phase of this programme lasted until 1988. SCIENCE POLICY GOALS SOCIETY Questions in -- International Data Parliament1 Pressure from NGOs Survey of Current Knowledge Acidification Problem ('84) ,d." AIR '85-'89 ('84) 9"' AcidificatiOn Research Programme I ('85-'88) - - ~ ' Environmental Policy Plan ('89)/ 4' Fall of Acidification Abatement Plan ('89) * *l/ Acid Res Prog II Environmental Pollcy Plan PLUS ('90) , ('88-'90) Acid Res ;;;::;p \ Environmental Policy Plan #2 ('93) fig.1: flow chart with the interactions between science, policy goals and society.
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