China's War On Air Pollution: Strategies And Successes

China's air pollution has been a pressing issue for decades, with the country's rapid industrialization and urbanization causing a public health crisis. In 2013, China experienced some of its highest pollution levels, sparking widespread public criticism and a government declaration of a war against pollution. Since then, China has made significant strides in reducing air pollution through various measures, including implementing strict policies, transitioning to cleaner energy sources, promoting electric vehicles, and coordinating regional efforts. These actions have led to notable improvements in air quality, with particulate pollution declining by 39.6% from 2013 to 2020, adding approximately two years to the average life expectancy. However, challenges remain, and China continues to balance economic progress with sustainable environmental practices in its battle against air pollution.

Beijing's air pollution action plans

Beijing's air pollution crisis, known as the "airpocalypse", sparked a mass outpouring of anger and frustration among citizens. In response, the Beijing Municipal Government launched a set of urgent measures to tackle air pollution, including laws, enforcement mechanisms, systematic planning, strict local standards, and high levels of public engagement.

The Air Pollution Action Plan, released in September 2013, became China's most influential environmental policy. It helped the nation significantly improve its air quality between 2013 and 2017, reducing PM2.5 levels (atmospheric particulate matter) by 33% in Beijing. The plan set specific targets, tightened emissions standards, and closed important loopholes in enforcement. Beijing's budget to fight air pollution jumped from just over 3 billion yuan (US$434 million) in 2013 to more than 18 billion yuan (US$2.6 billion) in 2017.

Beijing's plan to tackle air pollution included reducing coal consumption by shutting down industrial sites and improving heating systems. The city also focused on initiatives like Low Emission Zones (LEZs), which restrict access for polluting vehicles and drive the adoption of cleaner, emission-compliant modes of transportation. Beijing also embraced stringent emission standards, incentivized new energy vehicles (NEVs), and modernized its bus fleet.

In addition to local measures, Beijing actively coordinated air pollution control measures with surrounding areas, such as the Beijing-Tianjin-Hebei region. Collaborative planning, unified standards, joint emergency responses, and information sharing significantly improved the air quality in this broader region. The annual average PM2.5 concentrations in these areas decreased by nearly 25% during 2013-2017, and Beijing's PM2.5 levels dropped, likely resulting in increased life expectancy for local residents.

In 2018, China introduced its Three-year Action Plan for Winning the Blue Sky War, which applied to all the cities in the country. The plan mandated at least an 18% reduction in PM2.5 levels on a 2015 baseline in 231 cities that had not yet reached the government standard. This was followed by the National Air Quality Action Plan in 2014, which set aside $270 billion to reduce ambient air pollution, with the Beijing city government adding an additional $120 billion.

Reducing coal consumption

China's rapid economic growth in the 1990s came at a cost: air pollution. As the number of cars on the road soared, the world witnessed Beijing's impenetrable smog. This air pollution reached a crisis point in 2012, when the Chinese government finally acknowledged the issue as a "major problem".

Since then, China has made significant strides in reducing air pollution, with Beijing leading the way. One of the key strategies has been reducing coal consumption, a major contributor to the country's poor air quality. Here are some of the ways China has tackled this:

• Transition to Natural Gas: China has actively promoted the transition from coal to natural gas for heating and power generation. This "coal-to-gas" policy is considered a cleaner alternative, with natural gas producing fewer emissions. Between 2009 and 2022, China's gas consumption increased fourfold, and it is now exploring ways to convert its abundant coal resources into cleaner-burning fuels, such as dimethyl ether (DME).
• Shutting Down Coal-Fired Power Plants: China prohibited the construction of new coal-fired power plants and shut down older, inefficient plants in highly polluted regions, including Beijing-Tianjin-Hebei and the Pearl and Yangtze Deltas.
• Capping Coal Use: During the 13th Five-Year Plan (2016-2020), China introduced policies to cap coal use, aiming to reduce its share in the energy mix.
• Removing Dispersed Coal: Dispersed coal, which accounts for 2% of China's total coal consumption, can produce up to 10 times more air pollution per unit of energy than industrial coal. The government has targeted this type of coal, removing it from urban areas.
• Improving Heating Systems: Beijing has focused on improving heating systems, transitioning from coal to gas heating for residences. This not only reduces coal consumption but also improves indoor air quality.
• Embracing New Energy Vehicles (NEVs): Beijing has incentivized the use of NEVs, which include battery-electric, plug-in hybrid, and fuel-cell vehicles. This reduces emissions from the transport sector and contributes to cleaner air.
• Afforestation Projects: By focusing on afforestation along its northern borders, Beijing has successfully reduced the occurrence of sandstorms, a seasonal issue that exacerbates air pollution.
• Collaboration with Surrounding Regions: Beijing has actively coordinated with surrounding areas, such as the Beijing-Tianjin-Hebei region, to implement unified standards and joint emergency responses to air pollution. This collaborative approach has significantly improved air quality in these broader regions.

While China's efforts to reduce coal consumption have shown positive results, it continues to grapple with the challenge of balancing economic progress and environmental sustainability. The country's heavy industries, such as steel and cement production, remain highly dependent on coal, and investment in coal-based projects continues. Nonetheless, China's ongoing commitment to reducing coal consumption, as evidenced by its long-term decarbonization goals, gives hope for further improvements in air quality in the future.

Reducing vehicle emissions

China's rapid industrialization in the early 2000s resulted in extremely poor air quality, which led to a public outcry in the lead-up to the 2008 Beijing Olympics. In response, the Chinese government implemented various measures to reduce vehicle emissions and improve air quality.

Implementing Vehicle Emissions Standards

China introduced its first batch of automobile emission standards in 1983, which laid the foundation for the country's pollution control efforts. These standards stipulated emission limits for carbon monoxide (CO) and hydrocarbon (HC) emissions from gasoline cars, as well as smoke emissions from diesel vehicles. In the early 1990s, China released additional regulations targeting large gasoline vehicles, light vehicles, and motorbikes, with a focus on reducing CO, HC, and nitrogen oxide (NOx) emissions.

Promoting Electric Vehicles

China has recognized the potential benefits of vehicle electrification in reducing air pollutant and greenhouse gas emissions. While large-scale adoption of electric vehicles (EVs) can be costly, several studies have highlighted the significant environmental and public health benefits. For example, replacing light-duty gasoline vehicles with battery EVs can result in substantial health and climate benefits, with EV health impacts being about 20 times lower than those of traditional internal combustion engines.

Improving Road Systems and Fuel Quality

Upgrading road systems and improving fuel quality can also help mitigate air pollution from vehicles. Well-designed road systems can reduce the time vehicles spend idling, accelerating, and decelerating, which are conditions that yield higher pollutant emissions. Additionally, improving fuel quality can directly reduce the amount of pollutants emitted by vehicles.

Financing Clean Energy Initiatives

China has also addressed air pollution through innovative financing programs focused on clean energy and emissions control. The World Bank-supported Innovative Financing for Air Pollution Control Program has leveraged funding to invest in energy efficiency, renewable energy, and emissions control technologies. These initiatives have contributed to reducing carbon dioxide emissions and improving air quality in regions like the Jing-Jin-Ji area.

Long-term and Short-term Emission Controls

China has implemented a combination of short-term and long-term emission reduction measures to improve air quality sustainably. While short-term measures during international events can substantially reduce PM2.5 concentrations, long-term adherence to strict emission reduction policies has led to more significant and lasting improvements in air quality.

Improving heating systems

China's efforts to reduce air pollution have been extensive and have included a range of initiatives and policies. One key area of focus has been improving heating systems, particularly in northern provinces like Hebei, where urban heating is provided by district heating systems.

The Hebei Clean Heating Project, funded by a $100 million loan from the World Bank, aims to improve energy efficiency and reduce environmental impact. This includes expanding and modernizing heating systems, improving heat metering, utilizing waste heat from power plants and industry, and transitioning to natural gas where possible. These district heating systems offer higher fuel efficiency and lower greenhouse gas and pollutant emissions compared to decentralized coal-fueled heating.

The project also includes conservation efforts, such as preserving and restoring national heritage sites, improving museums, and regenerating historical streets. Additionally, investments are being made to enhance bicycle and pedestrian facilities, public transportation, and signage systems, making it easier for residents and tourists to access cultural heritage sites.

China has also been working to reduce coal consumption, which is a significant contributor to air pollution, especially during the winter heating season. This involves improving energy efficiency in the industrial and building sectors and increasing the supply of renewable energy sources, such as solar power. Geothermal heating, for example, has been introduced as a replacement for coal heating boilers, offering zero carbon emissions and no local air, water, or waste pollution.

Promoting electric vehicles

China's rapid economic growth and industrialization have come at a cost: air pollution. The country has been grappling with the detrimental impacts of increased oil consumption as the world's largest automobile producer and consumer. In addition, high coal consumption, especially during the winter heating season, has further deteriorated air quality.

To address these issues, China has implemented various measures, including national air pollution action plans, which have significantly reduced pollution levels and associated health risks. One of the critical aspects of China's battle against air pollution has been the promotion of electric vehicles (EVs).

The Chinese government has recognized the potential of vehicle electrification to reduce emissions of air pollutants and greenhouse gases. Studies have shown that the adoption of EVs can lead to significant health benefits and environmental gains. The government has issued industry support policies since 2009 to accelerate EV adoption, and this has resulted in a rapid increase in EV sales over the past decade, effectively curbing the rise in CO2 emissions.

Several factors have influenced consumer behavior towards EVs. Firstly, the health risks associated with air pollution, such as respiratory and cardiovascular diseases, have made consumers more conscious of their choices. People are opting for EVs to avoid the financial burden of air pollution-related illnesses. Secondly, increased public and government awareness of environmental issues has indirectly bolstered consumer interest in EVs.

To promote EV adoption, Shanghai has offered substantial personal subsidies for passenger EVs, accelerating its electrification efforts. Additionally, the government has implemented policies such as Low Emission Zones (LEZs), which restrict access for polluting vehicles, driving the adoption of cleaner, emission-compliant modes of transportation. These zones catalyze fleet transformation, with newer vehicles adhering to stringent emissions standards.

Frequently asked questions