According to relevant provisions of the Audit Law of the People s Republic Of China the National Audit Office conducted in 2008 an audit investigation of performance scored from 2001 to 2007 in prevention and control of water pollution of the three rivers and three lakes (Liao River, Hai River, Huai River, Taihu Lake, Chaohu Lake and Lake Dian . The audit covered the valleys of the aforementioned rivers and lakes in 13 provinces, autonomous regions and municipalities under direct jurisdiction of the central government (including Beijing, Liaoning Province, Jiangsu Province). The audit findings are as follows:
1. Considerable achievements have been scored in prevention and treatment of water pollution of the three rivers and three lakes .
1. Considerable achievements have been scored in prevention and treatment of water pollution of the three rivers and three lakes .
From 2001 to 2007 the central government and governments of various levels invested a total of financial fund and loans from domestic banks of 91 billion RMB in infrastructure of environmental protection, eco-construction and comprehensive recondition in cities and towns along the valleys and basins of the three rivers and three lakes for altogether 8,201 water-pollution-prevention-treatment projects of 7 categories.
With the period-July 1, 2007-June 30, 2008 taken as an annual evaluation of water quality the Ministry of Environmental Protection compared the monitored data of water quality of 347 water sections with that of the data collected from 2000 to 2007; and the findings showed that the prevention and control of water pollution of the three rivers and three lakes achieved considerable success. The proportion of water quality section of I-III categories of Hui River system increased from 21.9% to 33.7%, while that of inferior V category dropped from 48.4% to 21%; the proportion of water quality section of Liao River system of I-III categories increased from 6.2% to 43.2%, while that of inferior V category dropped from 87.6% to 32.4%; the proportion of water quality section of I-III categories of Hai River system increased from 12.5% to 24.6% while that of inferior V category went up to 49.2%; the water category of Chaohu Lake turned from inferior V to V and its nutritional status index changed from 57 to 60.1; the water quality of Taihu Lake had always been of inferior V category and its nutritional status index changed from 63 to 61.5; the water quality of Cao Hai of Lake Dian had always been of inferior V category and its nutritional status index was 72, while the water quality of Wai Hai of Lake Dian was of inferior V category in all those years except that in 2004 it was in V category, and its nutritional status index increased from 64 to 69.
2. Major problems and causes related to prevention and control of water pollution of the three rivers and three lakes
From the audit findings we can come to the conclusion that as a whole the present water quality of those rivers and lakes remains unsatisfactory. The monitoring of water quality of 347 sections conducted by the Ministry of Environmental Protection from July 1, 2007 to June 30, 2008 showed that Hui River and Liao River were not seriously polluted; 49.2%of section water quality of Hai River was of inferior V category; the average water quality of Caohu Lake was of V category; the average water quality of Taihu Lake was of inferior V category; the average water quality of Lake Dian was of inferior V category.
Apart from objective factors involving changes in environment, social development and economic growth there are also the following important causes:
A. Relevant policies and measures are not perfect enough.
First one thing, the relevant systems pertaining to environmental protection prior to examination and approval of projects are not perfect enough. The prerequisite of examination and approval of environmental protection measures prior to registration of enterprises is an important means for addressing the root cause of pollution. However, the current laws and administrative statutes only cover industries that are engaged in business of hazardous wastes, setting up of ship dismantling works and entertainment facilities, but they do not include most of the other industries, such as chemical engineering industry, paper making industry that seriously pollute environment.
second, the compensation system for ecological environment is not perfect enough. To ensure the water environment and water resources of the lower reaches in prevention and treatment of water pollution the economic and social development in the upper reaches are invariably affected to a certain degree. Therefore, the areas in the upper reaches deserve to be compensated. Nevertheless, except Jiangsu Province and Zhejiang Province, the other 11 provinces, autonomous regions and municipalities under direct jurisdiction of the central government within the valleys and basins of the three rivers and three lakes have not set up a compensation mechanism for ecological environment yet or there is much room for improvement in their current mechanisms.
2. Major problems and causes related to prevention and control of water pollution of the three rivers and three lakes
From the audit findings we can come to the conclusion that as a whole the present water quality of those rivers and lakes remains unsatisfactory. The monitoring of water quality of 347 sections conducted by the Ministry of Environmental Protection from July 1, 2007 to June 30, 2008 showed that Hui River and Liao River were not seriously polluted; 49.2%of section water quality of Hai River was of inferior V category; the average water quality of Caohu Lake was of V category; the average water quality of Taihu Lake was of inferior V category; the average water quality of Lake Dian was of inferior V category.
Apart from objective factors involving changes in environment, social development and economic growth there are also the following important causes:
A. Relevant policies and measures are not perfect enough.
First one thing, the relevant systems pertaining to environmental protection prior to examination and approval of projects are not perfect enough. The prerequisite of examination and approval of environmental protection measures prior to registration of enterprises is an important means for addressing the root cause of pollution. However, the current laws and administrative statutes only cover industries that are engaged in business of hazardous wastes, setting up of ship dismantling works and entertainment facilities, but they do not include most of the other industries, such as chemical engineering industry, paper making industry that seriously pollute environment.
second, the compensation system for ecological environment is not perfect enough. To ensure the water environment and water resources of the lower reaches in prevention and treatment of water pollution the economic and social development in the upper reaches are invariably affected to a certain degree. Therefore, the areas in the upper reaches deserve to be compensated. Nevertheless, except Jiangsu Province and Zhejiang Province, the other 11 provinces, autonomous regions and municipalities under direct jurisdiction of the central government within the valleys and basins of the three rivers and three lakes have not set up a compensation mechanism for ecological environment yet or there is much room for improvement in their current mechanisms.
Third, there is much room for improvement in the system of statistics of prevention and treatment of water pollution as well as the check and assessment system. The total amount of phosphorous and nitrogen is an important index that reflects the pollution in lakes and rivers. However, the current environment statistics reports of check and assessment submitted by relevant agencies on total discharge of water pollutants do not include those indexes, which is detrimental to prevention and treatment of water pollution and an overall reflection and assessment of water quality.
B. In parts, the prevention and treatment of water pollution is not in place.
Firstly, the 5-year plan for prevention and treatment of water pollution is not in place. The release of the 5-year plan for prevention and treatment of water pollution of the three rivers and three lakes to the governments of lower levels came out comparatively late. It was not very clear what governmental bodies should be responsible for and where funds come from. As a consequence, the implementation of the plan is not satisfactory enough.
Secondly, enforcement in some areas is not in place. For instance, evaluation of environmental impact and acceptance of environmental protection of 1,199 projects along the 5 valleys and basins of Hui River and Caohu River were not standardized; statistics data of 7 provinces and municipalities directly under the central government along the two valleys of Hai River and Hui River is not accurate; the network access rate of automatic monitoring equipment for pollution sources in some areas of 4 provinces and municipalities under direct jurisdiction of the central government along two valleys of Hai River and Hui River is low; a few units even interfere the normal operation of automatic monitoring equipment to evade penalty.
Thirdly, water pollution in some original sources of the rivers and lakes is not conscientiously addressed. For example, current water quality of 29 rivers that are flowing into Lake Dian is of inferior V category.
Fourthly, the work on prevention and control of surface water in agriculture and in rural areas in some localities are weak. Treatment of sewage, sludge and garbage in towns is not totally in place. In some places excessive chemical fertilizer and farm chemicals are used in planting. Treatment rate of pollutants in breeding industry for environmental protection is low; in some places consuming sewage is discharged without treatment or with only simple treatment; the water from sewage treatment plants fails to live up to quality standards and the percolating liquid from sledge and garbage is not properly treated, thus causing a second pollution.
Fifthly, some economy and technology development zones fail to pay due attention to environmental protection. For instance, infrastructure construction for environmental protection in some economy and technology development areas, high-tech development zones and industrial parks along the 4 valleys of Hui River, Hai River, etc. is lagging behind, where waste water is discharged directly or the discharge exceeds the set standard, thus bringing about serious unfavorable effects on local prevention and treatment of water pollution.
C. Management and application of part of the funds for prevention and treatment of water pollution are not up to the standardized.
Firstly, 0.510 billion RMB was diverted for other purposes and appropriated by falsifying accounts or obtained more than justifiably deserved. 0.403 billion RMB designated for prevention and treatment of water pollution was diverted by certain departments and units of 7 provinces and municipalities; some departments and units of 4 provinces successfully procured 0.112 billion RMB designated for prevention of water pollution by submitting falsified projects and amount of completion of investment.
Fifthly, some economy and technology development zones fail to pay due attention to environmental protection. For instance, infrastructure construction for environmental protection in some economy and technology development areas, high-tech development zones and industrial parks along the 4 valleys of Hui River, Hai River, etc. is lagging behind, where waste water is discharged directly or the discharge exceeds the set standard, thus bringing about serious unfavorable effects on local prevention and treatment of water pollution.
C. Management and application of part of the funds for prevention and treatment of water pollution are not up to the standardized.
Firstly, 0.510 billion RMB was diverted for other purposes and appropriated by falsifying accounts or obtained more than justifiably deserved. 0.403 billion RMB designated for prevention and treatment of water pollution was diverted by certain departments and units of 7 provinces and municipalities; some departments and units of 4 provinces successfully procured 0.112 billion RMB designated for prevention of water pollution by submitting falsified projects and amount of completion of investment.
Secondly, there are cases of under collection, diversion and withholding of
sewage fee and sewage discharge fee, the amount of which was 3.653 billion
RMB. 2.143 billion RMB had to do with 9 provinces, autonomous regions and
municipalities directly under the central government. The amount covered the
sewage fee and sewage discharge fee they should have collected and units
should have paid; enterprises, units and departments concerned in 13 provinces,
autonomous regions and municipalities under direct jurisdiction of the central
government diverted and withheld sewage treatment fee and sewage discharge
fee of 1.510 billion RMB.
Thirdly, assets for prevention and treatment of water pollution lie idle and capability of some sewage treatment plants fails to live up to design requirements. There exists the problem of lying idle of prevention and treatment of water pollution assets in 10 provinces, autonomous regions and municipalities directly under jurisdiction of the central government, which involves an amount of 0.806 billion RMB; there are still 206 sewage treatment plants along the valleys and basins of the three rivers and three lakes which do not live up to design requirements.
3. Rectification in Addressing the Problems Found in the Audit
Cases of violation of laws and statutes found in the audit have been handed over to departments and local governments concerned. Setting great store by the problems found and the audit suggestions, they took active measures to carry out serious rectification. Up to now quite some achievements have been scored.
A. Rectification in relevant policies and measures. Aiming at the fact that relevant system prior to examination and approval of projects for environmental protection has a room for improvement, the Ministry of Environmental Protection is considering effects on environment as a prerequisite in issuing administrative permits for registration to high-polluting and high energy-consuming industries; as for improvement in the compensation mechanism for ecological environment, while the National Commission of Development and Reform and the Ministry of Finance are arranging projects with supplementary investment from the central government, they inject more investments into key protection areas in the ecological environment and transfer payment; in coordination with the Ministry of Environmental Protection, the Ministry of Finance is helping launch a pilot project of cross-province compensation mechanism for water environment; Hebei Province, Henan Province and some other provinces have already conducted experiments on compensation for ecological environment at selected points; the Ministry of Environmental Protection is engaged in the study of inclusion of total amount of phosphorus and nitrogen in environment statistics indexes system and in check and assessment of total discharge of pollutants.
3. Rectification in Addressing the Problems Found in the Audit
Cases of violation of laws and statutes found in the audit have been handed over to departments and local governments concerned. Setting great store by the problems found and the audit suggestions, they took active measures to carry out serious rectification. Up to now quite some achievements have been scored.
A. Rectification in relevant policies and measures. Aiming at the fact that relevant system prior to examination and approval of projects for environmental protection has a room for improvement, the Ministry of Environmental Protection is considering effects on environment as a prerequisite in issuing administrative permits for registration to high-polluting and high energy-consuming industries; as for improvement in the compensation mechanism for ecological environment, while the National Commission of Development and Reform and the Ministry of Finance are arranging projects with supplementary investment from the central government, they inject more investments into key protection areas in the ecological environment and transfer payment; in coordination with the Ministry of Environmental Protection, the Ministry of Finance is helping launch a pilot project of cross-province compensation mechanism for water environment; Hebei Province, Henan Province and some other provinces have already conducted experiments on compensation for ecological environment at selected points; the Ministry of Environmental Protection is engaged in the study of inclusion of total amount of phosphorus and nitrogen in environment statistics indexes system and in check and assessment of total discharge of pollutants.
B. Rectification in incomplete implementation of prevention and treatment of water pollution.
Aiming at incomplete implementation of the 5-year plan for prevention and treatment of water pollution, the Ministry of Environmental Protection, together with relevant departments and local governments, is doing what it can to improving working methods in formulation, examination, approval, implementation, check and assessment of special plans for prevention and treatment of water pollution in key valleys and basins, enhancing their justifiability, feasibility and maneuverability and give impetus to speed up the project construction; with consent of the State Council, the Office general of the State Council has transmitted to departments and units concerned the Interim Regulations for Check and Assessment of Implementation of Special Planning for Prevention of Water Pollution in Key Valleys formulated by the Ministry of Environmental Protection together with the National Commission of Development and Reform, the Ministry of Supervision, the Ministry of Finance, the Ministry of Housing and Urban-Rural Development and the Ministry of Water Resources, the Regulations that take water quality and projects of prevention and treatment of water pollution as main contents for check and assessment, thus strengthening the evaluation of prevention and treatment of water pollution in key valleys.
Aiming at incomplete enforcement of laws for environmental protection in some areas, the Ministry of Environmental Protection is further improving relevant management systems and regulations for evaluation of effects of environment and acceptance of projects for environmental protection, statistics of environment and automatic monitoring of pollution sources and is putting in more its efforts in supervising law enforcement and urging environmental protection departments at various levels to exercise their power in management according to law.
As for the water pollution of origins and rivers flowing into the lakes they are not dealt with seriously, the Ministry of Environmental Protection, working together with relevant departments, has specified responsibility of local governments while making cross-boundary check and assessment stricter; on the other hand, a mechanism of clean water was set up with a view to ensuring ecological health of lakes and reservoirs by popularizing technology of ecological reduction and control of pollution.
As for the problem of insufficient prevention and control of surface water in agriculture and in rural areas in some localities and improper treatment of sewage, sludge and garbage in towns, the Ministry of Agriculture will be adopting the method of application of formulated fertilizer in the valleys and basins of the three rivers and three lakes after soil testing, popularizing highly effective machinery and tools for application of farm chemicals, employing biological pesticides, eradicating farm chemicals of high poison and high residual amount, controlling excessive and irrational application of chemical fertilizer and farm chemicals, promoting with arduous effort the use of bio-gas in the countryside and construction of large and intermediate-size bio-gas projects for breeding farms of livestock and poultry and making a great effort in solving the problem of pollution due to breeding of livestock and poultry; the Ministry of Housing and Urban-Rural Development, the Ministry of Environmental Protection and local governments will be speeding up the infrastructure construction of treatment plants of sewage and garbage in cities and towns; the Ministry of Environmental Protection will be studying corresponding measures together with relevant departments to tackle the problem of second pollution of sewage plants and percolating liquid from garbage To solve the problem that some economy and technology development areas and zones and industrial parks fail to pay due attention to environmental protection, the Ministry of Environmental Protection will be sparing no efforts in urging environmental protection departments throughout the country to strengthen supervision and regulation over industrial zones and parks and infrastructure construction related to environmental protection.
C. As far as rectification in non-standardized management of funds for prevention and treatment of water pollution is concerned, the Ministry of Finance, the Ministry of Housing and Urban-Rural Development, the Ministry of Environmental Protection and relevant provinces and municipalities are taking effective measures to retrieve as soon as possible the diverted funds for prevention and treatment of water pollution and improperly procured funds by falsifying projects and diverted sledge treatment and discharge fees; in addition, liability of units and personnel involved have been looked into; finally, relevant management regulations have been improved. As for the problem that some assets for prevention and treatment of water pollution are lying idle and actual capability of some sewage treatment plants fail to live up to design requirements, the National Commission of Development and Reform and the Ministry of Housing and Urban-Rural Development request local governments to further improve the preparations for projects and enhance the justifiability of projects; the Ministry of Housing and Urban-Rural Development and the Ministry of Environmental Protection have already come up with regulations to give impetus to normal operation of sewage treatment plants in various places.
4. Audit Recommendations
A. Further improvement of policies and measures for prevention of water pollution. The Ministry of Environmental Protection and the Ministry of Agriculture should conduct a survey of pollution in agriculture and improve policies and measures for prevention of pollution. Departments of environmental protection and administrative departments of management of industry and commerce should clearly specify the responsibility for examination and approval related to environmental protection, better corresponding statutes, improve the examination-and-approval system with environmental protection as a prerequisite and strengthen early-stage prevention of water pollution. Departments of the central government and local governments as well should practice a strict accountability system, listing implementation of the plan for prevention of water pollution as an important consideration for political achievements in careers of major leading cadres. Departments of environmental protection should strengthen check and supervision of prevention of water pollution and enforcement of relevant laws and statutes and seriously handle with cases in violation of laws and regulations.
