Quality of the Environment in Japan 1996

Part II

　　C. The State of Damage Due to Water Pollution

　(A) Pollution of the Sources of Water for Waterworks

　　　About 70% of the souce of water for waterworks is the surface water of rivers,and water pollution in public waters greatly influences this service. Groundwater makes up about 30% of the water souce,and was formerly regarded as a water soure of good quality,but pollution due to trichloroethylene is becoming apparent. waterworks water in FY 1992 was affected by water soure pollution accidents in 79 place.
　　　In addition,in recent years,offensive odors have been produced due to the abnormal proliferation of weeds due t the eutrophication of reservoirs. In FY 1992 effects were felt due to offensive odor at 106 wa-terworks businesses (the total population tint sufftered harm was about 15,800,000).

　(B) Pollution of Water for Industrial Use

　　　Of the fresh water supplied for industrial use,about 70% comes from the surface water of rivers and ground water (about half of this is for industrial use waterworks),and because these are used for various purposes,including use as a raw material and for processing and clean-ing manufactured products,there are cases in which river water pollu-tion has an adverse impact.
　　　Also,in waterworks projects for industrial use,water quality treatment is generally carried out by means of chemical precipitation, but there are cases in which the processed sludge that isgenerated by the removal of pollutants from the river water becomes a problem.

　(C) Damage to Agriculture and Fishing

　　　In recent years,accompanying the process of t urbanization,water pollution problems are arising in agricultural areas and the living envi-ronments of agricultural villages due to th flow of polluted urban water into sources of water for agricultural use.
　　　According to a survey of the present state of th damage to agri-culture due to the pollution of water for agricultural use,the number of districts (those with area 5 ha or more) nationwide that are suffering damage is about 1,175,and the damaged area is about 86,200ha. Damage due to urban polluted water (including the waste water from daily liv-ing in agricultural villages) is the greatest portion of this,and accounts for 84% of the damaged area (Table 5-2-4)

Table 5-2-4　Agricultural Water Damage by Cause and Extent of Damaged Area

Source:Ministry of Agriculture,Forestry and Fisheries

　　　When the results of the survey conducted over two years begin-fling in FY 1988 are compared to FY 1985 results,the number of dam-aged districts has increased 10% and the damaged area has decreased 2.9%. New damage has been recognized on an area of about 24,000ha, and of this,91% is due to polluted urban water.
　　　Modes of damage to the fishing industry due to polluted water in-clude:
　(i) The worsening of the environment of the fishing grounds that accompanies the accumulation of matter and waste floating on the sur-face of the water,and the damage to and destruction of fishing vessels and fishing tackle,
　(ii) The annihilation of marine life,and destruction of its ability to breed,due to oil pollution or red tide,
　(iii) The decline in the price of fish or inability to sell catches of fish due to the accumulation and adherence of toxic substances such as heavy metals and PCBs,and
　(iv) The contamination and corrosion of fishing vessels and fishing tackle due to oil pollution.
　According to prefectural reports on unexpected fishing industry damage due to water pollution that occurred in FY 1994,the number of incidents was 215(compared to 176 in FY 1993) and the amount of mone-tary damage was 2,628,130,000yen (compared to 2,475,930,000yen in FY 1993). The number of cases increased and the amount of monetary dam-age also increased from FY 1993. Of this,there were 46 cases and 220,550,000yen (compared to 39 cases and 1,166,690,000yen in 1993) of damage due to oil pollution on the surface of the ocean and there were 31 cases and 116,130,000yen (compared to 31 cases and 338,100,000yen in FY 1993) of damage due to red tide.
　　　Furthermore,concerning the pollution of marine products by mercury,PCBs,etc.,where pollution has been confirmed (in nine water areas with mercury,in one water area with PCBs and in six water areas with drine compounds of insecticide) self-imposed control of fish catches or food guidance is being carried out continuously (as of December 1995).

　(D) Other

　　　According to an Environment Agency Water Quality Monitoring of Primary Bathing Beaches (FY 1995),water quality level suitable for swimming was being maintained in all 411 swimming places that were surveyed,but there were two places at which it was desirable that some improvement measures be carried out regarding colon bacilli.

　　(2) Recovery and Maintenance of a Sound Water Circulation Capacity

　　　In order to provide for ensuring the maintenance of a sound water circulation capacity,the appropriate management of forest main-tenance based on the Forest Planning System has been promoted,in-cluding striving for the nurturing of forests with a high capacity to re-tain water through the appropriate preparations of multilayered forest management and natural forest management Furthermore,there has been promotion of appropriate management of maintenance of rice paddy agricultural land that has the ability to build up ground water and retain water.
　　　Aiming to recover and maintain the natural purification capacity of rivers,lakes and reservoirs,purifying water courses utilizing reeds and charcoal were created in order to promote the conservation of water quality,water quantity,aquatic biota and near shore areas. Fur-thermore,plans are underway to ensure sound water circulation in ur-ban areas,afforestation and the effective use of processed sewerage sys-tem water,by means of the Sewerage System Model Project for Water Circulation and Reclamation and the Sewerage System Project to Use Reclaimed Water,and the appropriate undergr ound permeation of rain water has been promoted by means of permeable pavement and permeation-enhancing facilities. In ocean areas,in addition to promoting the appropriate conservation of natural beaches,tidelands,seaweed ar-eas and shallow sea areas,artificial tidelands and beaches have been ap-propriately prepared under the Beach Environment Preparation Pro-ject so as to contribute to the recovery of the natural purification capac-ity.

　　(3) The Promotion of Measures and the Fair Allotment of Roles to Conform to the Actual Situation of a Region

　　　Surveys and investigations have started concerning a method to comprehensively evaluate a water environment that includes water quality,water quantity,aquatic life and the shoreline area,while obtain-ing the participation and cooperation of the area's residents and busi-nesses,and conforming to the actual situation of the area,in order to en-sure a sound water environment in a region.
　　　Surveys and investigations have started on policies to promote measures to promote voluntary,constructive citizen efforts and coop-eration among local government entities of a basin for conservation of the water environment,with a fair allotment of roles to the various con-stituencies. As a part of this,the Environment Agency held a Water En-vironment Vision Round-Table Conference and compiled a report on recommendations for the future conservation of the water environment. Furthermore,besides having implemented a National Aquatic Life Sur-vey,study has begun with the participation of regional residents on a method for evaluating the water environment by means of aquatic life.

2. Reduction of the Burden at Every Stage of Water Use

　　(1) Main Causes of Water Pollution

　　　As background to Japan's water pollution situation [refer to 1 (1) A."The Present State of Water Pollution"],while the effects of meas-ures to tighten water discharge regulation are being seen,measures concerning water discharge at factories and businesses have been de-layed,and the preparation of a sewerage system is still insufficient to handle the water discharge that accompanies the routine of people's daily lives such as cooking,washing and bathing.
　　　In particular,concerning the water pollution of inner bays,inner seas,lakes and reservoirs,important pollution factors include the contri-bution of the physical characteristics of enclosed water systems,where water is stagnant and pollution can easily accumulate,and that of the socioeconomic factor of a concentration of people and industries in areas surrounding inner bays and inner seas.
　　　In lakes and reservoirs where urbanization of the basin is ad-vancing,as in rivers in cities where people and industries are concen-trated in the basin,such as Teganuma and Inbanuma,the preparation of the sewerage system has not caught up with the increase in popula-tion,and the discharge from daily living is a large percentage of the to-tal discharge burden.
　　　As mentioned above,in recent years,the importance of daily liv-ing discharge countermeasures has been increasing,generally centered on pollution due to organic substances;besides this,however,it is nec-essary to devise appropriate measures to obtain an overview of the ac-tual situation of pollution due to the diffusion of nutrient salts from bot-tom sediment that has settled and accumulated as a result of long-term water pollution and of pollution due to precipitation run-off from so-called"non-point sources," that is,agricultural land,cleared lot sites and the expanding surface of urban areas.

　　(2) Reduction of Load by Sources

　　A. Factories and Sites of Business Countermeasures

　(A) Implementation of Discharged Water Regulation

　　　In order to provide for the conservation of the quality of the water in public waters,a national uniform water effluent standard has been established concerning water discharged into public waters from specified factories and businesses by the""Water Pollution Control Law."
　　　Furthermore,in order to provide for the conservation of the en-vironment of ocean areas and to prevent the eutrophication of the en-closed ocean areas of inner bays and inner seas,a standard was estab-lished for ocean areas concerning the discharge of nitrogen and phos-phorus,and these discharge regulations have been in effect since 1Oc-tober 1993. [Refer to 3"Conservation of the Water Environment in En-closed Water Areas."]

　(B) Establishment of Additional Water Effluent Standards

　　　In the national uniform water effluent standard it was stipulated that prefectures can establish additional,stringent standards by ordi-nance in water areas where achieving and maintaining the environ-mental quality standards is difficult,and since 1975 additional water ef-fluent standards have been established in all prefectures.

　(C) Expansion of Targets for Regulation

　　　When the Water Pollution Control Law was first enforced in 1971, about 500 among the approximately 1,100 types of industries specified in the Japanese standard industry classification were subject to these regulations,but there have been subsequent additions and expansions through successive revisions of the Law,and as of the end of FY 1995 about 600 types of industries were subject to regulation. Furthermore, in the areas under total pollutant load control system,the system of "specially designated facilities in designated pollution control areas" was established,and raw sewage purification tanks for 201-500 persons became subject to regulation.

　(D) Use of Water Circulation

　　　Accompanying the expansion of the regulation of discharged water. new goals include improvement in the discharge of water by means of the use of improved water circulation (including a reduction in the amount of water discharge due to the improvement of such manu-facturing processes as those of paper and pulp,as well as the promotion of the use of intermediate water in buildings),in addition to the improve-ment in water quality due to improved processing of discharged water.

　　B. Promotion of Countermeasures to the Discharge of Water Used for Daily Living

　　　The discharge of water for the activities of daily life,such as cooking,washing and bathing,can be mentioned as one cause of water pollution in public waters
　　　In order to promote countermeasures to this discharge of water used for daily living,besides promoting the enhanced provision of sew-erage systems and the improved provision of various kinds of treatment facilities for the discharge of water for daily living (such as combined treatment purification tanks agricultural community waste water facili-ties and community plants corresponding to the actual situation of a re-gion),it is necessary to comprehensively promote countermeasures that include education to increase citizen awareness and to support practical efforts by citizens to reduce the pollution burden coming from each family.
　　　Concerning the provision of sewerage systems,in 1995,the last year of the Seventh Five-Year Plan for the Provision of Sewerage Sys-tems (total amount 16,500 billion yen),such measures were promoted as the provision of sewerage systems to small-and medium-sized cities, towns and villages in which their implementation had been delayed and the renewal of construction in cities,towns and villages in which con-struction had not yet started,along with the qualitative improvement of sewerage systems in large cities,including the aggressive introduction of high-level treatment in order to conserve water quality,and the pro-motion of multipurpose utilization of sewerage system resources and energy.
　　　Furthermore,concerning combined treatment purification tanks, a national subsidy system was established,and in FY 1995 the provision of 78,000 units to 1,946 cities towns and villages (equivalent to about 80% of the entire nation) was planned.
　　　Meanwhile,new installations of single-treatment purification tanks,which account for about 90% of the number of purification tanks installed,is being restricted because they only treat raw sewage and re-lease miscellaneous waste water from daily living without treatment Measures are also being promoted to convert the single-treatment puri-fication tanks already installed to combined-treatment purification tanks.
　　　Moreover,in agricultural promotion regions,1,771 districts have implemented agricultural community waste water projects to create fa-cilities to treat raw sewage and miscellaneous daily living discharges in agricultural communities. In districts where emergency measures are necessary to prevent damage,three districts under direct control and 54 subsidized districts have implemented projects related to water qual-ity damage countermeasures,such as creating a separate water course for waste water use and diverting a water source.
　　　In June 1990,the Water Pollution Control Law underwent partial revision,and:
　(i) The duties of the government and citizens concerning daily liv-ing discharge countermeasures were clarified,and
　(ii) The systematic promotion of daily living discharge countermea-sures were applied and stipulations concerning daily living discharge countermeasures were provided.
　　　Prefectural governors designated priority districts based on this revised Water Pollution Control Law. In FY 1995,12 prefectures,13 re-gions and 16 cities,towns and villages were newly designated. As of 31 March 1996,40 prefectures,146 regions and 384 cities,towns and vil-lages had been designated. Furthermore. the Environment Agency car-ried out assistance with respect to deciding on the"Daily Living Water Discharge Countermeasures Promotion Plan"by these cities,towns and villages,provided facilities to purify water courses where the pollution due to daily living water discharge was conspicuous,and supplied equipment for the recovery of discarded oil and the reclamation of soap.
　　　In addition,in order to contribute to the conservation of the water quality of public waters,in addition to planning the conservation of the living environment,various types of popularization,public rela-tions and national movements are being developed. These include "Sewerage System Promotion Day."which takes place every year on 10 September and is supported by the Ministry of Health and Welfare and the Ministry of Construction;and,in the Environment Agency,the Min-istry of Health and Welfare and the Ministry of Construction,in addition to the annual"Purification Tank Day"of 1 October,the Environment Agency holds the"Water Environment Day"every year.
　　　Furthermore,projects have been implemented in 13 districts re-lated to water quality conservation countermeasures for agricultural waste water discharged into public waters,such as lakes and reservoirs, and purification water courses have been prepared that use charcoal and make use of the natural purification function of reeds.
　　　Also,the preparation of fishing community waste water facilities was implemented in 139 districts in order to process polluted water dis-charged from fishing communities and to purify the fishing harbors and the surrounding ocean areas.

　　C. Non-point Source Pollution Countermeasures

　　　Concerning non-point source pollution in urban and agricultural areas,in addition to the promotion of daily living discharge countermea-sures. countermeasures regarding the development of technology for urban waste water and agriculture is being implemented.

　　(3) Development and Popularization of Load Reducing Technology

　　　In order to contribute to the harmonious promotion of sewerage system projects,investigations are being undertaken concerning vari-ous problems regarding methods for the rational design and execution of a sewerage system facility,rationalization and improvement of the ef-ficiency of sewerage system technology,methods for the treatment and disposal of sewerage system polluted sludge,small-scale sewerage sys-tem technology,water environment/water use and raising the level of sewage treatment,rainwater countermeasures in sewerage systems, the recovery and use of the energy resource in sewerage systems,the improvement of the durability of sewerage system facilities,sewerage system technology that handles environmental changes,approaches to the diversification of the role of the sewerage system and sewerage sys-tem maintenance management and its rationalization. Furthermore, new sewerage system technology and new building methods are being introduced aggressively, and a model project utilizing new technology is being implemented to improve sewerage system technology and effi-ciently carry out projects. Furthermore,the"Sewerage System Tech-nology Five-Year Plan"was implemented in FY 1994 and is expected to plan aggressive measures towards the development of important tech-nologies aimed at the 21st century,based on the accumulation of tech-nology that has supported the construction of sewerage systems to date.
　　　Furthermore,in December 1995 a standard was added for con-struction of raw sewage purification tanks with the capacity to remove nitrogen and phosphorus,aimed at the promotion and popularization of high-level treatment technology using combined-treatment purification tanks in order to conserve water quality. Furthermore,in March 1996, the enforcement regulations of the Purification Tank Law were revised, and maintenance management standards concerning the relevant puri-fication tanks were established.
　　　Concerning agricultural community waste water facilities,be-sides the development and popularization of low-cost,widely applicable nitrogen and phosphorus removal technology,the development and popularization of low-cost facilities that incorporated FRP construction of small-scale treatment facilities was planned.

　　(4) Ensuring the Safety of the Water Environment

　　A. Toxic Substance Discharge Regulations

　　　Among the national uniform effluent standards,based on the ex-pansion and strengthening of the environmental quality standards con-cerning the protection of human health of March 1993,effluent stan-dards concerning toxic substances were newly established for a total of 13 items (including seven items regarding organic chlorine base com-pounds such as dichloroethane and four items regarding agricultural chemicals such as simazine),and the standards for lead and arsenic were strengthened. The discharge regulations went into effect on 1 February 1994. The revised effluent standards concerning toxic sub-stances are seen in Table 5-2-5.
　　　Moreover,based on this kind of expansion and strengthening of the environmental quality standards,the final disposal standard for waste products,including 15 substances such as dichloroethane,was strengthened and went into effect on 1 April 1995. Meanwhile,concern-ing measures when there is an accident,in June 1988 the Water Pollu-tion Control Law was revised in part and stipulations were provided concerning businesses devising emergency measures when a water pol-lution accident has occurred and notifying prefectural governors of those devised measures.

　　B.Countermeasures to Conserve the Water Quality of the Water Sources of Water Systems

　　　Water supply businesses deal with the pollution of the water sources of a water system by introducing high level water purification facilities,but the pollution of water sources is a great burden on water supply entities, from the point of ensuring the safety of water system water, and it also becomes a factor that raises the cost of water purifica-tion treatment Responding to the heightening of citizens' concern about water system water,based on the"Law to Take Special Meas-urn for Preservation of Water Quality in Headwaters Areas for the Purpose of Preventing Specific Trouble in the Drinking Water Supply" (hereafter called"Special Measures Law") enacted in February 1994, the"Basic Policy Concerning the Preservation of the Water Quality in Headwater Areas for the Purpose of Preventing Specific Trouble in the Drinking Water Supply"in May 1994 by Cabinet decision. And,in June 1995 an Environment Agency announcement was made concernirig the range of the designated effluent standard concerning th ability to form trihalomethane.

Table 5-2-5 Effluent Standards for Hazardous Substances

　　　Meanwhile,based on the"Law Concerning the Promotion of the Implementation of Projects to Conserve the Water Quality of Water System Source Water"enacted in the same year as the Special Meas-ures Law,by the end of 1995 there were requests to the relevant prefec-tures to promote the implementation of water system source water quality conservation projects from 10 locations in five prefectures. These were accepted and prefectural plans were decided upon concern-ing four locations,and deciding upon the plans is proceeding concerning six locations.

　　C. Groundwater Pollution Countermeasures

　　　Since recovery is not easy once groundwater is polluted,preven-tion measures must be devised before pollution progresses. For this rea-son,in 1988 part of the Water Pollution Control Law was revised with the objective of aiming to prevent groundwater pollution due to toxic substances. According to this revised law,from October 1988,the per-meation of water containing 11 toxic substances such as trichloroethyl-ene into the ground was prohibited,and prefectural governors began monitoring regularly groundwater quality (Figure 5-2-6). Furthermore, in December 1993,13 substances such as 1,1,1-trichloroethane were added to the toxic substances aiming to strengthen the regulations.
　　　The Environment Agency since FY 1988 has been subsidizing the expenses for a water quality survey based on a water quality meas-urement plan for ground water established by prefectural governors.
　　　Concerning the groundwater pollution problem,the effort aiming for the sound enforcement of the Water Pollution Control Law to pre-vent pollution,from the first,requires a comprehension of the polluted groundwater's pollution mechanism and the study of purification coun-termeasures. The Environment Agency in November 1994 decided on the"Provisional Guidelines for a Soil and Ground Water Survey and for Countermeasures Concerning Organic Chlorine Base Compounds,"and is promoting survey research such as implementing on-site corroborat-ing surveys of pollution recovery countermeasure methods in order to provide still more technical confirmation,in addition to showing general methods of surveying and countermeasures,when groundwater pollu-tion has been acknowledged.
　　　Furthermore,the bill to revise in part the Water Pollution Con-trol Law,the substance of which was introducing a polluted groundwa-ter purification system based on a report of the Central Council for En-vironmental Pollution Control of February 1996,was submitted to the 136th session of the Diet.
　　　In addition,in recent years,the pollution of groundwater due to nitrate nitrogen,that can be thought to be due to the process of permea-tion into the soil of the waste water of daily living,livestock waste water and the fertilization of agricultural products,has become apparent. Ac-cording to a survey carried out by 275 municipalities in FY 1994,the concentration of nitrate nitrogen at 3.6% of wells exceeded the guideline value as an item that required monitoring (10 mg/l). Based on this kind of situation,the Environment Agency,from FY 1995,has been conduct-ing a new survey and study of groundwater pollution due to nitrate ni-trogen.

Fig. 5-2-6 Groundwater Pollution Control System under Water Pollution Control Law

　　D. Agricultural Chemicals Pollution Countermeasures

　　　Concerning agricultural chemicals,from the viewpoint of pre-venting water pollution,a standard was decided about whether or not to withhold registration based on the Agricultural Chemical Control Law,and,as of January 1996,water pollution standards were estab-lished concerning 63 agricultural chemicals. Furthermore,the provi-sional guidelines concerning the prevention of water pollution due to the agricultural chemicals used on golf courses and the guidelines for evaluating water quality in public waters have been steadily applied.

　　E. Countermeasures for the Removal of Bottom Sediment Polluted by Mercury and PCBs

　　　Concerning bottom sediment polluted by mercury,as a result of a survey,there were 42 water areas in the country that required the creation of removal countermeasures that exceed the provisional re-moval standards,and as of the end of July 1990,countermeasures had been completed. In addition,in one water area,bottom sediment pollu-tion by what is regarded as a natural cause was confirmed.
　　　Concerning bottom sediment pollution by PCBs,as a result of a survey,there were 79 water areas in the country that required the creation of removal countermeasures. Of these,countermeasures had been completed for 75 water areas as of the end of July 1991,and,con-cerning four water areas such as Sasebo Port (Sasebo City),the counter-measure of the removal of bottom sediment,or its study,are progress-ing.

　　F. Fishing Industry Pollution Survey

　　　Besides conducting a survey of the state of the pollution of ma-rine products due to toxic chemical substances such as mercury,PCBs and dioxins,a survey in order to study countermeasures and discover at an early stage the pollution of marine products due to new pollutants, a study of experimental methods regarding water environment stan-dards for the purpose of marine products involved with toxic chemical substances,a survey in order to elucidate the mechanism of the pollu-tion of marine products due to toxic chemical substances and a survey of the influence exerted on the inner water surface fishing industry by the acidification of lakes and reservoirs due to acid rain,countermea-sures to shellfish poisoning have been carried out,with such results as the development of a method to predict the poisoning of shellfish.
　　　Furthermore,study has been carried out concerning the influ-ences of the intake and release of large volumes of water by power plants located in inner bays and shallow sea areas on fishing industry resources.
　　　In addition,ocean environment monitoring on a global scale has been implemented,making use of Japan's fishing vessels,which are de-ployed widely throughout the oceans.

3. Conservation of the Environment in Enclosed Water Areas

　　(1) The Present State of Enclosed Water Areas

　　　In recent years,the state of the pollution of public waters has been examined,particularly in enclosed water areas such as narrow bays,inland seas,lakes and reservoirs that have large pollution sources in the hinterlands,the environmental quality standards achievement rate is low as before because,in addition to the load of pollutant flowing in being large,the pollutants easily accumulate compared to other water areas. In addition to this,substances containing nitrogen and phosphorus flow in and accelerate eutrophication,a gradual worsening of water quality that accompanies the proliferation and luxuriant growth of water plants and other aquatic life.
　　　In FY 1994,the rate of achievement of environmental quality standards requirement for COD of Tokyo Bay,Ise Bay,Seto Inland Sea and Osaka Bay are low levels,as before. Lakes and reservoirs,with 40.6%,are in a particularly low level.
　　　Furthermore,when the occurrence of red tide is examined,in FY 1994 there were 56 cases in Tokyo Bay,34 cases in Ise Bay and 96 cases in the Seto Inland Sea (Fisheries Agency ~survey). In Tokyo Bay the occurrence of a blue tide (Aosio) was also seen. Concerning lakes and reservoirs as well,not a few occurrences of algal bloom and fresh-water red tide were seen. In order to cope with this kind of situation,it is necessary to plan the promotion of still more countermeasures to con-serve the water quality of enclosed water areas.

　　(2) Surveys in Water Areas Where Water Quality Improvement Is Not Making Progress

　　　In water areas that are subject to regulation of total pollutant load (Tokyo Bay,Ise Bay,Seto Inland Sea),surveys have been imple-mented that include a Survey of the Water Quality of the Relevant Water Area,a broad analytical Comprehensive Water Quality Survey, and a survey that comprehensively surveys and analyzes the situation of the amount of the occurrence load concerning the relevant water area and the reduction countermeasures. In the Seto Inland Sea,sur-veys were conducted in order to elucidate the mechanism of the occur-rence of red tide and to study countermeasures against eutrophication.

　　(3) Rivers in Cities and Water Area That Is the Source of Water System With Conspicuously Polluted Water

　　　Additional regulations have been implemented by each prefec-ture in order to improve the water quality of water areas used as water system's water sources and of rivers in cities with conspicuously pol-luted water. Furthermore,in cooperation with efforts by cities,towns, villages and the residents of regions,having preponderantly imple-mented river projects and sewerage system projects,cleaning projects were carried out in the basins as well.

　　(4) Lakes and Reservoirs

　　　Because lakes and reservoirs are enclosed water areas,pollut-ants can easily accumulate,and,compared to rivers and ocean areas the rate of achievement of the environmental quality standards is low And,along with eutrophication,various hindrances to water use occur In order to conserve the water quality of this kind of lake and reservoir in view of the fact that regulation by the Water Pollution Control Law was insufficient,the"Law Concerning Special Measures for Conserva-tion of Lake Water Quality"was enacted in 1984 and has been in effect from March 1985. This law designates lakes and reservoirs that must meet the environmental quality standards concerning water pollution, decides on a lake and reservoir water conservation plan for the relevant lakes and reservoirs,and comprehensively and systematically promotes projects that contribute to water conservation such as providing sewer-age systems,measures that regulate various pollution sources,and fur-ther,countermeasures to protect the natural environment of the lakes and reservoirs. There are 10 designated lakes and reservoirs,and a summary of them is seen in Table 5-2-6. Furthermore,the Second-period Lake and Reservoir Water Conservation Plan,which incorpo-rated countermeasures to reduce nitrogen and phosphorus,has been decided for five lakes and reservoirs,including Lake Biwa and Kasumi-gaura in March 1992,Kamahusa-dam Reservoir and Lake Suwa in March 1993 and Nakaumi and Shinji Lakes in March 1995.

Table 5-2-6 Summary of Water Quality Conservation Plans for Lakes and Reservoirs

　　(5) Enclosed Sea Areas

　　　Efforts must be focused on reducing pollutant loads in the popu-lated and industrialized areas around large enclosed water bodies to im-prove their water quality. The Water Pollution Control Law and the re-lated legislation were amended in 1978 to implement a system of Area-wide Total Pollutant Load Control System for such large enclosed water bodies. This system is enforced for Tokyo Bay,Ise Bay and the Seto In-land Sea with COD taken up as a designated item.
　　　The first regulation of total pollution was enforced with FY 1984 as the target year,and,in succession,the second regulation of total Pol-lution with a target year of FY 1988 and the third regulation of total pol-lution with a target year of FY 1994 were enforced.

Fig. 5-2.7 Total Pollutant Load (COD) under Total Polluted Load Control by Sources and Their Reduction Targets for Three Sea Areas

Note: The values for 1979,1984 and 1989 are actual figures,while the values for 1994 are the reduction targets. (Unit:tons/day)

　　　The target volume classified by source (industry related,living related,other) in the target years in the Basic Policy for Reduction of Total Pollutant Load and the Plan for Reduction of Total Pollutant Load were applied for the third stage of total pollutant load control,and,with respect to the load of FY 1988,a reduction of 13% in Tokyo Bay,8% in Ise Bay and 9% in the Seto Inland Sea was aimed at,for a total reduction of 10% for all of the three water bodies. When seen as classified by source. reductions of 12% in living-related,9% in industry-related and 2% in other were aimed at (Figure 5-2-7). In order to achieve this,in ad-dition to promoting the provision of sewerage systems,daily living waste water countermeasures such as the provision of treatment purifi-cation tanks,agricultural community waste water facilities,community plants,etc.,and industrial waste water countermeasures such as the in dustry waste water countermeasure of strengthening the industrial standard for regulation of total pollution and various other countermea-sures corresponding to the actual situation of regions,have been com-prehensively promoted.
　　　For this reason,it has been determined that a certain water qual-ity improvement effect has appeared due to the implementation of total pollutant load control,but because it does not amount to being linked to an improvement in the rate of achievement of the environmental qual-ity standards,work towards the implementation of the fourth stage of total pollutant load control is proceeding because a systematic reduction of the pollution burden amount is necessary in order to improve the water quality of these water areas,and,based on the report of the Cen-tral Council for Environmental Pollution Control in January 1996,a new announcement concerning"industry types and other divisions involv-ing the standard of regulation of total pollution concerning the amount of chemical oxygen demand and the scope of those divisions" was made in March 1996.

　　(6) Countermeasures against Eutrophication

　　　Eutrophication originally meant the phenomenon of lakes and reservoirs being made steadily more fertile due to the supply of the nu-trients as nitrogen or phosphorus from their watersheds. But in recent years,due to the concentration of population and industry,in addition to lakes and reservoirs,the influx of the nutrients as nitrogen or phospho-rus has increased in bays or inland seas as well. And,along with the pro-liferation and luxuriant growth of water plants,the phenomenon of a gradually worsening water quality can be seen,and has become a prob-lem from the standpoint of water quality conservation. For this reason, in lakes and reservoirs,besides the deterioration of a beautiful appear-ance due to a change in color and a lowering of the degree of clarity, various types of damage have been occurring such as damage to the fil-ters of water systems and the problem of offensive odors. Furthermore, in ocean areas,damage to the fishing industry due to red tide and blue-green tide has become a problem.
　　　Considering the occurrence of damage accompanying this kind of eutrophication,the following types of measures are being devised concerning nitrogen and phosphorus that are the substances which cause it.
　　　Concerning lakes and reservoirs,in 1982,environmental quality standards were established for nitrogen and phosphorus,and as of FY 1994,designations of types have been carried out concerning a total of 48 water areas (44 lakes and reservoirs) such as Lake Biwa (two water areas). Furthermore,waste water effluent standards concerning nitro-gen and phosphorus were established in 1985,and at the present time waste water regulation is being carried out at 1,066 lakes and reservoirs, with regulation of phosphorus and nitrogen at 78 of those lakes and res-ervoirs. In addition,pollution load amount regulation concerning nitro-gen and phosphorus is being implemented based on the Law Concern-ing Special Measures for Conservation of Lake Water Quality concern-ing 10 designated lakes and reservoirs such as Lake Biwa (concerning Kamahusa-dam Reservoir and Nojiri Lake,only phosphorus).
　　　Regarding bays or inland seas,since 1980,in the Seto Inland Sea the relevant prefectures have been carrying out reduction guidance for phosphorus and its compounds based on the"Seto Inland Sea Environ-mental Conservation Special Measures Law."In Tokyo Bay and Ise Bay, also,eutrophication prevention measures were started in 1982 by the prefectures concerned,and the Third Stage of Nutrients Reduction Guidance has been carried out since FY 1991. In August 1993,environ-mental quality standards for seas and effluent standards for nitrogen and phosphorus were established,and discharge regulations have been implemented for 88 water bodies that are half enclosed,and where there is a danger of eutrophication,for the public waters that flow into them. Furthermore,environmental quality standards type designation was carried out concerning the nitrogen and phosphorus in ocean areas in February 1995 concerning Tokyo Bay and Osaka Bay,and in Febru-ary 1996 concerning Ise Bay.
　　　Accepting this,in the water bodies to which it was applied,meas-ures were carried out toward achieving the environmental quality stan-dards, including plans to improve the level of treatment of household waste water,such as that of sewerage systems.

　　(7) Environmental Conservation of the Seto Inland Sea

　The Seto Inland Sea has favorable natural conditions that make it a precious treasure house of fishing industry resources in addition to a picturesque place of superior natural beauty. However,both industries and residlntial areas are concentrated in the vicinity,and because it is an enclosed sea area,water pollution progressed rapidly in the late 1960s. For that reason,it was demanded that water conservation countermea-sures be strongly promoted,and in 1973 the"Interim Law Concerning Conservation of the Environment of the Seto Inland Sea"was enacted. Furthermore,in 1978 this law was revised,becoming the"Law Con-cerning Special Measures for Conservation of the Environment of the Seto Inland Sea,"a permanent law to which new measures were added and under which comprehensive measures came to be promoted. Fur-thermore,when promoting the conservation of the environment of the Seto Inland Sea. because the understanding and cooperation of resi-dents and businesses are indispensable,activities and projects such as training sessions and lecture meetings to popularize the concepts re-lated to environmental conservation also came to be promoted.
　　　As a result,in general,a considerable improvement can be seen in the state of the water quality of the Seto Inland Sea when the COD is examined,but in the ocean areas of Osaka Bay,etc.,the achievement ra-tio of the environmental quality standards is still low. Furthermore,the Seto Inland Sea is developing the symptoms of eutrophication,and even the extensive occurrence of red tide,which is one of the phenomena that accompanies this process,has been confirmed.
　　　A summary of the environmental conservation countermeasures devised in the districts of the 13 prefectures on the Seto Inland Sea, based on the Law Concerning Special Measures for Conservation of the Environment of the Seto Inland Sea,is as follows

　　A. Development of Prefectural Plans

　　　The prefectural governors concerned are implementing various environmental conservation countermeasures based on the prefectural plans which decided on measures to be implemented related to the con-servation of the environment of the Seto Inland Sea.

　　B. Permission for the Installation of Specified Facilities

　　　A permission system for the installation of specified facilities was administered, and there were 329 installation permissions and 373 al-teration permissions in FY 1994.

　　C. Promotion of the Total Pollutant Load Controls

　　　At present, the necessary study concerning the fourth total po-lutant load controls is being carried out.[Refer to (5)"Enclosed Sea Ar-eas."]

　　D. Guidance on the Reduction of Designated Substances

　　　As a eutrophication prevention countermeasure, over three terms since FY 1980, reduction guidance has come to be carried out concerning phosphorus (which is a designated substance) and its com-pounds, but based on the actual results of the guidance to date and the present state of the water quality of the Seto Inland Sea, in March 1996, the relevant prefectures were directed to decide on a policy for the im-plementation of reduction guidance concerning phosphorus and its corn-pounds, as well as nitrogen and its compounds (which has been re-garded as a newly designated substance), since FY 1995.

　　E. Conservation of Natural Seashores

　　　The Seto Inland Sea coast, due to the development accompany. ing the concentration of population and industry, is an area in which the artificiality of the seashores has progressed even from a national point of view. The remaining natural beach has come to be used as a place for ocean recreation such as swimming and shell-gathering at low tide. and in 1994 the number of users of the 65 main swimming beaches totaled about 9,070,000 persons. The ten prefectures concerned enacted the Natural Seashore Conservation Areas Ordinance in order to conserve these natural beaches and by the end of December 1995.91 natural sea-shore conservation areas had been designated.

　　F. Environmental Conservation Considerations When Reclaiming Land

　　　In licensing or approving the reclamation of the public water area in the Seto Inland Sea,it is stipulated that the prefectural gover-nors concerned must give sufficient consideration to the special charac-teristics of the Seto Inland Sea,and concerning the basic policy of the application of this stipulation,a report was issued by the Seto Inland Sea Environmental Conservation Deliberation Council in May 1974. In the period from the enforcement of the Interim Law Concerning Conserva-tion of the Environment of the Seto Inland Sea until 1 November 1995 li-censes or approvals for reclamation were granted for 3,934 cases,total of 9,743 ha (among them,130 cases,570 ha in one year since 2 November 1994).

　　(8) Enclosed Water Area Cleanup Countermeasures

　　　As for lakes and reservoirs,"Lakeside Town Preparation Pro-ject"was implemented which uniformly implements the dredging of sludge and the environmental preparation of the area around lakes. Fur-thermore,an ocean area cleanup countermeasures project was imple-mented in order to remove sludge from ocean areas that are conspicu-ously polluted.
　　　For the environmental conservation of harbors and surrounding ocean areas,besides having carried out the Harbor Pollution Prevention Countermeasures Project (dredging,etc.,of organic sludge,etc.) at 12 harbors,such as Osaka Harbor and Fukuyama Harbor,in FY 1995,a project was carried out to recover trash and oil in ordinary ocean areas outside of harbor districts.
　　　Furthermore,the ocean area environmental creation project (preparation of sand covering and beaches) was implemented in two ocean areas,such as the Seto Inland Sea,and in eight harbors,such as Yokohama,with the objective of improving the environment of the ocean area where the closure is great and sludge has accumulated.

4. Conservation of the Ocean Environment

　　(1) The Present State of Ocean Pollution

　　　The Environment Agency,in order to contribute to elucidating the mechanism of ocean pollution,in addition to studying the state of ocean pollution,is implementing a survey of the actual condition of ocean pollution in the area near Japan that studies the concentration of heavy metals in ocean water and sludge,besides the general ocean ob-servation items,at measurement sites on a measurement line estab-lished heading to the ocean disposal region for Japan's waste from the coast of Japan.
　　　The Maritime Safety Agency,with the objective of obtaining ba-sic data for the purpose of conserving the ocean environment,imple-mented an Ocean Pollution Survey concerning oil content,polychlo-rinated biphenyls (PCBs) and heavy metals in the ocean water and in the accumulations on the ocean floor in ocean areas near Japan that are very enclosed,and confirmed that the progress of pollution could not be perceived.
　　　Furthermore,in the ocean areas near Japan,surveys of the drift-ing and of the beaching of waste oil balls are periodically conducted,Ac. cording to the results of the 1995 survey,drifting had greatly decreased compared to the previous year,while beaching had increased somewhat compared to the previous year.
　　　Moreover,periodically a visual survey is implemented in order to study the actual situation of items drifting on the ocean and to carry out an appropriate response,and according to the results of the 1995 survey, about 70% of the drifting items were petrochemical products such as Styrofoam and vinyl. These were mostly found in the ocean area along the south shore of Honshu,just as in the previous year.
　　　Meanwhile,the number of occurrences of ocean pollution con-firmed by the Maritime Safety Agency in the ocean areas near Japan in the three most recent years are as seen in Table 5-2-7,and the 811 cases in 1995 marked an increase of 79 cases compared to 1994. When pollu-tion due to oil in 1995 is examined as classified by source of discharge, the 386 cases of discharge from ships accounted for the majority. When examined as classified by cause,133 cases were intentional. 124 cases were due to careless handling and 109 cases were due to disasters at sea. When pollution due to causes other than oil is examined,146 cases were from land and most of them were intentional.

Table 5-2-7　Trend in Number of Confirmed Occurrences of Marine Pollution in Sea Area

Note:"Others"within the "Other than oil"category includes industrail wastewater, blue tide, etc.
Source:Maritime Safty Agency

　　　The Meteorological agency conducts an Ocean background Pol-lution Survey in the area around Japan and in the northwest Pacific area in order to study the overall concentration of pollutants in the ocean. According to that study,the concentration of mercury and cad-mium has continued unchanged from previous years. and although waste oil balls have been at a low level since 1982,in May 1995 many were found off Shikoku. Furthermore,the number of items such as plas-tic drifting on the surface of the open ocean has remained unchanged, but these items are distributed in a high density in the ocean near Japan. Concerning oil film,one example was confirmed in the ocean near Japan in 1994,but none were confirmed in 1995.
　　　The Fisheries Agency conducted an Ocean Pollution Survey by means of the Global Environment Monitoring Project that employed fishing vessels which made use of Japan's fishing vessels deployed in oceans around the world.

　　(2) Ocean Pollution Prevention Countermeasures

　　A. Prevention Countermeasures

　(A) Regulations Concerning Ships

　　　Based on the Law Relating to the Prevention of Marine Pollution and Maritime Disaster,in addition to planning for the proper implemen-tation of incineration regulations and discharge regulations for toxic liq-uids and waste products,inspections are being carried out for the pur-pose of ensuring conformance to technical standards regarding ship construction and equipment,and ocean pollution prevention certificates are being issued.

　(B) Assessment of Unassessed Liquids

　　　Along with the implementation of regulations concerning toxic liquids,the Environment Agency has been assessing unassessed liquids since 1987,and to date 128 substances have been assessed and an-nounced (as of the end of March 1996).

　(C) Ocean Pollution Prevention Guidance

　　　The Ministry of Transport and the Maritime Safety Agency have strived to make the regulations under the Law Relating to the Prevention of Marine Pollution and Maritime Disaster concerning oil,toxic liquids and waste products thoroughly known and to raise awareness regarding conservation of the ocean through short courses on ocean pol-lution prevention centering on these regulations. In particular,ocean pollution prevention guidance has been implemented with respect to foreign ships that do not conform to the standards of the convention,etc.
　　　Furthermore,the Maritime Safety Agency,in addition to having implemented concentrated guidance by visiting ships for one week in the"Ocean Environment Conservation Promotion Week"that starts on Environment Day,and besides having held the"Short Courses in Ocean Environmental Conservation,"has used the ocean pollution monitoring system and has strived to popularize the concept of ocean environ-mental conservation and to make the laws concerning the marine envi-ronment thoroughly known.
　　　In particular,concerning the illegal dumping of FRP scrapped vessels,which has become a social problem,eradication of the crime of illegal dumping of scrapped vessels is aimed at through promotion of the appropriate disposal of such vessels by those who abandon them,by means of affixing to the scrapped vessels a"scrapped vessel guidance label"on which is written instructions for the proper disposal of the scrapped vessel at an early stage.

　(D) Preparation of Waste Oil Treatment Facilities

　　　Among the waste oil treatment facilities that treat the waste oil of ships,improvement of the public facilities has already been carried out. As of December 1995,waste oil treatment facilities,including pri-vate facilities,exist in 131 locations at 81 ports,and of these,there are 50 in 36 ports that treat waste light oil.

　　B. Preparation of a Waste oil Control System

　　　Before the"1990 International Convention Related to Prepara-tions,Responses and Cooperation Concerning Pollution Due to Oil" (OPRC Convention) came into effect in Japan on 17 January 1996,by agreement of the related ministries and agencies concerning prepara-tions and responses to cases of oil pollution,the"Liaison Committee of Ministries and Agencies Concerned with Preparations for,and Re-sponses to,Cases of Oil Pollution"(composed of 18 ministries and agen-cies) was established in May 1995 in order to carry out,still more closely than before,the necessary liaison and adjustment related to prepara-tions for and responses to oil pollution cases,and the arrangement of the "National Emergency Plan for Preparations for,and Responses to,oil Pollution Cases"was promoted. This comprehensively stipulated all the measures necessary for the nation in order for national and local gov-eminent entities and concerned private persons to take rapid and effec-tive collective measures to plan for the protection of the lives,health and property of citizens as well as for the conservation of the ocean en-vironment,when a case of oil pollution has occurred in the ocean near Japan. This plan was decided on by Cabinet decision on 15 December 1995. By these means,a direction was clearly indicated to plan for the strengthening of the system for liaison and cooperation from the vari-ous viewpoints of the national and local governments and private sector, including local government entities and related groups.
　　　The Maritime Safety Agency,in order to cope with oil spill acci-dents on the ocean,ensured a system for having patrol ships and air-craft always ready to move out,in addition to preparing prevention and removal resources and materials in every area of the country,and be-sides implementing public and private large oil discharge accident coun-termeasures drills,the Agency also formed mobile prevention and re-moval groups to carry out the prevention and removal of oil discharged on the ocean and to extinguish the fires on the ocean that accompany oil discharges,as well as the guidance,advice and adjustments concerning these measures,using high-level expert knowledge and technology. The Agency has thus provided a system that rapidly responds to the dis-charged oil accidents that may occur in any area of the country,includ-ing Tokyo Bay.
　　　Furthermore,accepting the partial revision of the Law Relating to the Prevention of Marine Pollution and Maritime Disaster,besides giving guidance on deciding upon standards for the Oil Pollution Pre-vention Emergency Measures Manual and its creation,and promoting the systematization of the committees concerning the prevention and removal of discharged oil formed by concerned persons in the public and private sectors,plans were made for the strengthening and en-hancement of the training facilities of the Marine Disaster Prevention Center (the core private organization related to implementing marine disaster prevention measures) and the further strengthening of the dis-charged oil prevention and protection system,such as the guidance and training of this center.
　　　The Ministry of International Trade and Industry has continu-ously provided assistance for the provision of the relevant resources and materials to the petroleum league that carries out the lending of re-sources and material for oil pollution disaster countermeasures in re-sponse to requests from persons involved in a disaster when a large-scale petroleum disaster occurs.

　　C. Enhancement of a System That Guarantees Compensation for Oil Pollution Damage

　　　Because the damage from oil pollution accidents due to a tanker has grown to an enormous amount in Japan,in order to further enhance compensation for damage,in addition to concluding two conventions en-acted in 1975 the"International Convention Related to Private Respon-sibility Concerning Pollution Damage Due to Oil"and the "International Convention Related to the Establishment of an International Fund for the Purpose of Compensation for Damage Due to Oil Pollution (Supple-ment of the International Conventions Related to Private Responsibility Concerning Pollution Damage Due to Oil of 1969),"the"Oil Pollution Damage Compensation Guarantee Law"made these law in Japan,and concerning pollution damage due to oil that has flowed out of a tanker, the Law stipulates that:
　(i) The vessel owner is charged with strict liability,
　(ii) A limit on the amount of the liability of the vessel owner is estab-lished,
　(iii) Tankers that transport over 2,000 tons of oil have a duty to con-clude a contract that covers the amount of the liability limit,and
　(iv) When persons who have suffered oil pollution damage are not able to receive sufficient compensation from the owner of the vessel,a fixed limited amount of compensation may be obtained from the inter-national fund.
　Furthermore,concerning both Conventions,in 1992,four revision protocols were adopted that raised the vessel owner's liability limit amount and the international fund's compensation limit amount In Ja-pan,on 24 August 1994 the Oil Pollution Damage Compensation Guaran-tee Law was revised and these revision protocols were concluded,and due to the ratification by Denmark on 30 May 1995,the conditions re-quired for going into effect were satisfied. These revised protocols went into effect on 30 May 1996. At the present time,there are sixteen signa-tory countries,including Japan,the United Kingdom,France and Ger-many.
　　　In addition,of the damage to the fishing industry due to oil pollu-tion,concerning oil pollution damage due to unclear causes,which ac-counts for a considerable part of the damage,the provision of moneys for relief projects and payments for prevention and removal expenses for fishermen who have suffered damage are subsidized under the Fish-ing Industry Oil Pollution Damage Relief Fund (a foundation). There were 21 actual cases in FY 1994,with 49,990,000 yen in aid disbursed.

　　D. Research and Development of Ocean Pollution Prevention Technology

　　　At the Ministry of Transport,in order to promote the prevention of ocean pollution,research and development for technology to prevent the outflow of oil from ships and to cleanse exhaust gas,as well as re-search and development of water quality cleaning technology by means of gravel filtering,aeration,and water-conveyance have been conducted. At the Maritime Safety Agency,besides research related to systematic analytical methods aimed at prompt designation of volatile substances among the toxic liquid substances included in the oils discharged into the ocean,research and development have been carried out on models of the rise and fall of the stratification of water temperature,salt con-tent,etc.,and on models of sea currents,in order to investigate the sea currents and substance circulation that exert an influence on the occur-rence of red tide in Ise Bay,which is an enclosed water area.
　　　At the Fisheries Agency,in order to reduce the harmful influ-ence on the ocean environment due to lost fishing tackle,the develop-ment of fishing tackle made of biodegradable plastic has been imple-mented.
　　　As countermeasures to prevent the occurrence of and damage due to red tide,a Shellfish Poison Ingredient and Toxic Plankton Moni-toring Project was established in order to carry out a survey of the state of the occurrence of red tide and the preparation of a red tide re-lated information transmission system. Besides the development of a survey to elucidate the relationship between the speed of the prolifera-tion of red tide organisms and the speed of the exchange of sea water, as well as the creation of a red tide network system,a project that car-ries out the development of technology to prevent the occurrence of red tide has been implemented. As an effective fishing grounds eutrophica-tion countermeasure,a project to create guidelines for the nutrient salts that are desirable for a fishing ground has been implemented.

　　E. The Present State of Surveillance and Control

　　　The Maritime Safety Agency,aiming to eradicate the crime of ocean pollution,is carrying out surveillance and supervision of ocean pollution in the ocean areas near Japan. Aircraft and patrol ships with helicopters are being deployed,particularly in those water areas most congested with ships,such as Tokyo Bay and the Seto Inland Sea,and in ocean areas along tanker routes,where the possibility of pollution is high. In addition,concentrated control is implemented simultaneously throughout the country at regular times. Furthermore,the strengthen-ing of the surveillance and supervision system by means of the prepara-tion of resources and materials for surveillance and supervision is planned.
　　　The number of cases of ordinance violations to the marine envi-ronment related law in the past three years,according to data submit-ted to the police by the Maritime Safety Agency,may be seen in Table 5-2-8. Of the 859 cases sent to the police in 1995,substantial offenses of oil,toxic liquid substance and waste product discharge that are directly linked to ocean pollution accounted for 758 cases,about 88% of the total (Table 5-2-8).

5. Preparation of a Water Environment Surveillance System

　　(1) Preparation of a Surveillance and Measurement System

　　A. Surveillance of the Water Quality of the Public Waters

　　　The Environment Agency in FY 1995 also assisted with expenses for the establishment of measurement plans and with expenses related to water quality surveys in public waters,among the expenses neces-sary for the standing monitoring of the water quality of public waters implemented by prefectural governors and mayors of government ordinance-designated cities based on the Water Pollution Control Law. The water areas that are the targets of these water quality surveys are those that have been designated environmental quality standards water area types where the necessity for water quality monitoring is high.
　　　Furthermore,the Ministry of Construction,from the standpoint of river managers,has also implemented water quality measurement in order to study the state of water pollution at main sites on ClassIrivers nationwide.
　　　It is necessary to promote the automation of water quality moni-toring at important sites in order to strengthen the system for the standing monitoring of the water quality of public waters. As of the end of FY 1995,automatic water quality monitoring and measurement equipment has been installed at 165 locations by prefectures and gov-ernment ordinance-designated cities,and the Environment Agency has assisted in their installation. Meanwhile,as of the end of FY 1995,the Ministry of Construction,from the standpoint of river managers,has in-stalled automatic water quality monitoring and measurement equip-ment at 147 locations in 67 water systems in important water areas of Class I rivers nationwide. Among them,telemetry is provided at 141 lo-cations and concentrated monitoring is being implemented.

Table 5-2-8　Trend in Number of Cases Sent for Indictment for Violations ofLaws Concerning Marine Pollution

Source:Maritime Safety Agency

　　　In addition,at Present,measurement by automatic water quality monitoring and measurement equipment has been officially prescribed by law as an environmental quality standards measurement method for and DO. but surveys are continuing to be implemented in order to provide for the official prescription by law of measurement of COD as well by means of automatic water quality monitoring and measurement equipment.
　　　Furthermore,in order to provide for the strengthening of moni-toring systems in prefectures and government ordinance-designated cities,the Environment Agency has carried out assistance in the prepa-ration of the water quality analysis equipment of regional pollution re-search centers. The Environment Agency and the Ministry of Con-struction have,respectively,obtained the participation of about 46,500 and 13.500 citizens (in FY 1995) and have implemented water quality surveys by means of aquatic life in rivers based on the guidelines of the river offices of the prefectural environment departments and regional construction departments.
　　　Concerning the monitoring of water discharge,the prefectural governors and mayors of government ordinance-designated cities have requested reports from factories and places of business and have car-ried out on-site inspections,as necessary,in order to monitor the state of conformance of the factory and place of business to water effluent stan-dards based on the Water Pollution Control Law. Based on these moni-toring actions,the prefectural governors and the mayors of government ordinance.designated cities are carrying out the necessary administra-tive measures,such as orders for improvement in factories and places of business. The Environment Agency is carrying out assistance concern-ing the necessary expenses.
　　　Moreover,the preparation of water quality telemetric monitor-ing systems is progressing in the local government entities concerned, and the Environment Agency has carried out assistance with respect to that preparation.

　　B. Monitoring of Items That Require Monitoring

　　　In March 1993,when additions were made to the Environmental Quality Standards Concerning the Protection of Human Health,25 items such as chloroform were specified as substances related to the protec-tion of human health,but from the standpoint of the state of detection in public waters at that time were not directly regarded as Environmental Quality Standards health items. It was determined that efforts should continue to be made to accumulate knowledge about these items,that they were"items that require monitoring,"and that changes in the water quality of public waters should be continuously studied in this re-gard.
　　　Concerning these"items that require monitoring,"besides water quality measurement at public waters by the Environment Agency,the prefectures are also carrying out the same measurement concerning those items for which it is deemed necessary,corresponding to the ac-tual situation in each area.

　　(2) Preparation of the Groundwater Monitoring and Measurement System

　　　Responding to the revision of the Water Pollution Control Law of FY 1988,prefectural governors have been given th obligation to con-stantly monitor groundwater pollution,and the national and local gov-ernment entities are conducting surveys of the quality of groundwater. There are three types of such surveys: a general survey to study the state of the regional groundwater; where pollution is newly discovered by this general survey,a survey of the districts in th vicinities of the polluted wells that confirms the scope of that pollution;and a fixed-period monitoring survey that carries out monitoring over many years and continuously monitors the wells that were confirmed by means of the survey of the districts in the vicinities of the polluted wells.

　　(3) Surveys for the Purpose of Ocean Environmental Conservation

　　　At the Environment Agency,concerning th environmental con-servation of the ocean,a survey has been implemented sine 1977 of the actual situation of pollution in the ocean near Japan,studying the con-centration of heavy metals in the ocean water and the bottom sediment, in addition to aspects of the general ocean environment,at measure-meat points on a line from Japan's coast to the ocean area where Japan dumps its waste products.
　　　Furthermore,in FY 1995,a joint survey was conducted with Rus-sia concerning the ocean environment of the Sea of Japan with respect to the Northwest Pacific Regional Seas Programme and an ocean envi-ronmental conservation survey was also carried out to study the state of ocean pollution by way of the air and ocean ecologies of the ocean area in the vicinity of Japan.
　　　At the Meteorological Agency,in the ocean area in the vicinity of Japan and in the Northwest Pacific Ocean area,a survey is being car-ried out of the heavy metals,chemical substances and oil content of ocean water in order to contribute to the environmental conservation of the ocean as part of the Ocean Background Pollution Survey.

Section 3. Conservation of the Soil Environment and Ground Environment

1. Ensuring the Safety of the Soil Environment

　　(1) The Present State of the Soil Environment

　　　Detailed surveys of pollution of agricultural land soil have been at the areas where there is a risk of pollution since FY 1971 in order to study the actual situation of the pollution of agricultural land soil due to the specific hazardous substances designated in the "Agricultural Land Soil Pollution Prevention,etc.,Law."In FY 1994,surveys on cadmium were conducted at 13 sites covering 732ha in seven prefectures ; a sur-vey on copper was conducted at one site covering 1 ha in one prefec-ture; and a survey on arsenic was conducted at one site covering 10 ha in one prefecture. In those surveys,no areas were newly detected that came under the designation requirements of a remediation site for spe-cially designated substances (a site exceeding standard value) and the total number of sites exceeding standard value was 128 sites covering 7,140ha.
　　　Meanwhile,concerning the problem of soil pollution in urban ar-eas,there have been few cases becoming apparent,because most of the polluted sites are private properties and the hazardous substances tend to be in small,scattered areas. However,the number of the cases of pol-lution detected are increasing in recent years,along with the rising quality of living and increasing industrial activity,concern about soil pollution related to the problem of treating the increasing amount of waste and concern about environmental pollution due to new chemical substances.

　　(2) Countermeasures against Soil Pollution

　　A. Establishment of the Environmental Quality Standards

　　　The environmental quality standards for soil (EQSs), based on Article 16 of the Basic Environment Law, stipulate the desirable stan-dards for the protection of public health and the conservation of the liv-ing environment concerning all soil, in principle, including soil for agri-cultural use, and aim to be used as the standards for determining whether soil is polluted or not and as the standards as the objectives when devising remediation for polluted soil.
　　　In August 1991, EQSs were established concerning 10 items such as cadmium, etc. After that, in February 1994, 15 items for specific or-ganic chlorides were added. At present, standards have been estab-lished for a total of 25 items.

　　B. Preventive Countermeasures

　　　The following measures have been enacted in order to regulate the discharge of toxic substances into the soil; regulation of the dis-charge and prohibition of water containing toxic substances into under-ground from factories and places of business that use toxic substances under the Water Pollution Control Law ; measures regulating the dis-charge of soot and smoke from factories and places of business under the Air Pollution Control Law; measures regulating agricultural chemi-cals that are persistent in the soil under the Agricultural Chemicals Regulation Law ; and measures and regulations to ensure the proper treatment of waste products under the Waste Disposal and Public Cleansing Law.
　　　Furthermore, in metal mining, measures have been devised to prevent mine-related pollution based on the"Mining Safety Law." In metal mining facilities, because the danger of mine-related pollution con-tinues even after operations have stopped, efforts are being made for the systematic implementation of mine-related pollution prevention pro-jects under the "Law on Special Measures for Mine Damages Caused by the Metal Mining Industry, etc.,"and for the provision of a reliable and permanent treatment system for mine waste water. In FY 1993, the basic ten-year policy for the mine-related pollution prevention project based on this law was revised (effective 1 April 1993) to provide a sys-tematic mine-related pollution prevention project, and the following measures were devised.
　(A) In order to prevent mine-related pollution at discontinued and abandoned mines, the promotion of the relevant construction works for prevention of pollution has been planned, using the system of subsidies for construction work expenses.
　　　In FY 1994, construction works to prevent pollution (e.g., piling of cover dirt, planting of vegetation. etc.) at 31 mines and waste water treatment works at 24 mines were subsidized at mines where responsi-ble persons did not exist, and pit waste water treatment was subsidized at 48 mines where responsible persons did exist.
　(B) The Metal Mining Agency has: financed the money owed by private sectors for soil improvement projects and the funds necessary for mine-related pollution prevention projects and guaranteed obliga-tion of them at specially designated facilities whose use has been com-pleted:financed the contributions to the Mine Pollution Prevention Project Fund:managed and operated the Mine Pollution Prevention Reserve Fund and the Mine Pollution Prevention Project Fund ;investi-gated and researched to develop mine-related pollution prevention tech-nology ; and supported the guidance of surveys and the design of the mine-related pollution prevention projects by local government.

　　C, Countermeasures against Soil Pollution of Agricultural Land

　　　6,260 ha (66 sites) of the sites exceeding EQSs have been desig-nated as sites for remediation by 25 December 1995, and remediation plans have now been decided concerning 6,170ha (65 sites) of them. Remediation projects have been completed on 4,760ha by the Special Land Improvement Works for pollution prevention (nationally subsi-dized) in excavation and off-site removal, application of topsoil, water source conversion, etc. Together with the 400ha in which projects were completed by the prefectures alone, remediation projects have been completed on 5,160ha (including those scheduled to be completed by the end of FY 1995). The rate of progress of remediation projects with re-spect to the sites exceeding EQSs is 72.3% (Table 5-3-1).
　　　Furthermore, at sites polluted by cadmium, measures to prevent production of contaminated rice have been devised as provisional coun-termeasures until the remediation projects are completed.
　　　In addition, Soil Environment Basic Survey is being implemented at fixed points in order to study the overall state of the pollution of the soil of agricultural land due to heavy metals.
　　　Furthermore, on-site rermediation experiments are being carried out concerning the effects of application of topsoil, soil improvement, etc. at polluted agricultural land.
　　　Moreover, in recent years, because there is a trend towards the increased use of reclaimed organic materials made from sewage sludge at agricultural land, efforts are being made to prevent soil pollution based on a management standard aimed at preventing the accumula-tion of heavy metals in soil of agricultural land.

Table 5-3-1　State of Prgress for Agricultural soil Pollution Countermea-sures

Notes:1."Locations with detected levels greater than standard"is based on the result of detailed surveys conducted through fiscal year 1994.
　　　2. The totals for each column do not necessarily match the sum of columns because one location may be polluted by more than one hazardous substance.
　　　3. The totals for each row, and the"Locations with detected levels greater than standard"do not necessarily match the sum of the locations because of the existence of subdivided designated loca-tions and of locations deleted from the designated area list The number of locations in parenthe-ses contains the duplicates.
　　　4."Locations completing countermeasure projects" and "Locations completing projects by prefec-ture, etc."include areas converted to other uses.
　　　5."Locations completing countermeasure projects"are districts that have completed countermea-sure project operations(including projects that were expected to be completed by the end of fiscal year 1995) that relate to national subsidies.

　　D. Countermeasures against Soil Pollution of Urban Areas

　　　Concerning the soil of urban areas, when soil pollution is detected or seems imminent, and when land use is changed, a Survey of the State of Conformance to the EQSs aimed to achieve and preserve the EQSs is conducted, and in cases where there is evidence of soil pollution, volun-tary measures by the private sector are promoted for taking the neces-sary actions to achieve the EQSs as soon as possible. For this purpose, in November 1994. the"Guidelines for Surveys and Countermeasures for Soil Pollution Caused by Heavy Metals"Tentative Guidelines for Surveys and Countermeasures for Soil and Groundwater Pollution Caused by Organic Chloride, etc.,"involving the methods and proce-dures necessary for accurate surveys and remediation of polluted soil and groundwater, were distributed to the prefectures. Furthermore, in addition to subsidizing the expenses of Surveys of the State of Confor-mance to the EQSs implemented by the local government themselves, the Japan Environment Corporation undertakes financing for the ex-penses of remediation, in order to contribute to the harmonious imple-mentation of urban soil pollution countermeasures　by private busi-nesses.
　　　Besides these measures, a number of measures have been car-ried out, including : surveys and development of technology to provide for the establishment of innovative cleanup technology for soil polluted by heavy metals, trichloroethylene, etc.; subsidies for projects of com-prehensive model demonstrations of the technical systems of surveys and remediation of soil pollution by local government; and surveys to accumulate knowledge of analytical methods, etc., for substances that do not yet fall under the EQSs concerning soil pollution.

2. Conservation of the Ground Environment

　　(1) Present State of the Ground Environment

　　　Ground subsidence has a long history in Japan, first receiving at-tention in the early Taisho Period (1912-1926). Annual changes in ground subsidence in typical areas are shown in Fig. 5-3-1.
　　　The main reason for ground subsidence is excessive extraction of groundwater. Groundwater is not just extracted for industrial use and building use. but for diverse uses such as drinking water, agricul ture, aquaculture and snow removal (Table 5-3-2).
　　　Through FY 1994, 62 districts in 37 of Japan's 47 prefectures had been recognized as ground subsidence areas (Figure 5-3-2).
　　　The principal characteristics of Japan's recent ground subsi-dence are as follows:
　(i) Although it can be seen that there is a long-term trend toward a decrease in the area of ground subsidence, the area of ground subsi-dence in FY 1994 increased greatly compared to FY 1993 (Figure 5-3-2). That can be regarded as due to the increase in the amount of ground-water pumped during the severe drought of FY 1994.

Fig. 5-3-1 Changes in Ground Subsidence in Representative Areas

　　　The area where the greatest amount of ground subsidence was observed in FY 1994 was Chikugo and th Saga Plain in Saga Prefec-ture, where the amount of ground subsidence was 16.0cm. Other areas where ground subsidence exceeded 4.0cm a year were Minami-Uonuma in Niigata Prefecture, the Kanto Plain in Tochigi Prefecture , the Kanto Plain in Ibaraki Prefecture, the Kanto Plain in Saitarna Prefecture and Nobi Plain in Gifu Prefecture.

Table 5-3-2　State of Groundwater Use in Japan

Notes:1."industrial us." was calculated based on the"Fiscal Year 1995 Industrial Statistical Ta-bles"compiled by the Ministry of International Trade and Industry (1993 survey) as number of operating days which is 300. The overall water volume for industrial use is the volume of fresh water taken excluding recycled water, while groundwater refers to well water (water extracted from shallow wells, deep wells or springs).
　　　2."Drinking water"was calculated in the "Fiscal Year 1993 Water Service Statistics" compiled by the Ministry of health and Welfare (1993 survey) as the volume of water extractced (total of waterworks operations and water service and supply operations). Groundwater refers to well water (shallow wells and deep wells).
　　　3. The overall water volume for agricultural use is the total volume of agricultural water used according to the "Fiscal Year 1995 Japan's Water Resources."Agricultural-use groundwater is according to the"Fiscal Year 1991 State of Groundwater for Agricul-tural Use" compiled by the Ministry of Agriculture, Forestry and Fisheries (survey of use volume from September 1984 to August 1985). Groundwater refers to water ex-tracted from deep wells, shallow wells, water catchment basins, springs, etc.
　　　4. "Building use, etc." shows the amount of groundwater used as determined through the Environment Agency's"Study on the Conditions of Volume of Groundwater Pumped FY 1971 to FY 1994." and to fact finding surveys conducted by local governments on actual groundwater use.

　(ii) In Tokyo's wards. Osaka City, Nagoya City and other urban ar-eas, where there had been significant degrees of ground subsidence, this phenomenon appears to have slowed or virtually stopped as a re-sult of controls on withdrawal of groundwater and other measures. In other areas, although there is a long-term trend towards improvement, ground subsidence is continuing, as before, in some areas such as Minami-Uonuma in Niigata Prefecture and the northern area of the Kanto Plain.
　(iii) As a result of many years of ground subsidence, buildings and structures, irrigation facilities, port and harbor facilities, and farmland and agricultural facilities have been damaged in many districts, and in some areas that are at or below sea level, there is a danger of severe dis-asters such as floods, high tides and tidal waves (tsunami).

Fir 5-3-2 State of Ground Subsidence in Japan (FY1994)

Note: Some affected locations have not been measured. The lower figures in parentheses show the number of affected locations. The figure of areas is rounded off. A figure of 0 km² therefore, refers to an area of up to 0.5 km² where one level point located in the area subsided 2 cm or more in a year.

　　(2) Conservation Measures for the Ground Environment

　　A. Groundwater Conservation Countermeasures

　　　In order to prevent ground subsidence,the withdrawal of groundwater had been controlled under the Industrial Water Law and the Law Concerning the Regulation of Pumping-up of Undergroundwa-ter for use in Buildings (the Building Water Law). At present some dis-tricts of 10 prefectures and of 4 prefectures have been designated under these laws. Also,in many districts,efforts of reducing the volume of groundwater withdrawal are being made,such as local government controls on withdrawal. of groundwater,voluntary restraints on use of groundwater for industrial purposes and administrative guidance for reducing the volume of groundwater use,etc.
　　　In order to reduce the withdrawal of groundwater,projects were also carried out to develop other water resources and provide substi-tute water. In those areas where measures were specially needed for in-dustrial water,projects for industrial water supplies as a measure of ground subsidence prevention were carried out.
　　　In areas where significant ground subsidence has already oc-curred,projects were carried out to repair the resulting damage,to con-struct facilities for dealing with damages from floods and high tides,to construct facilities for removing inner drainage,to construct facilities for conserving seacoasts,and to carry out land improvement.
　　　Furthermore,the popularization of,and enlightenment about, equipment that melts snow without sprinkling withdrawn groundwater have been implemented in order to ensure sound water cycling under-ground in order to prevent ground subsidence due to the extraction of groundwater for melting and removing snow.

　　B. Outline of Measures for Preventing Ground Subsidence

　　　In order to synthetically promote extensive ground subsidence countermeasures,outlines of measures for preventing ground subsi-dence were formulated in April 1985 for Nobi Plain and for Chikugo-Saga Plain,and in November 1991 for the northern Kanto Plain. In these outlines,various countermeasures,such as securing supply of substitute water are promoted. In this,concerning the two areas of Nobi Plain and Chikugo-Saga Plain,review that includes a ten-year extension of the tar-get year was carried out in September 1995 and synthetic measures continue to be promoted.

　　C. Surveys and Investigations

　　　As surveys for the purpose of ground environment Conservation various surveys were conducted,including a survey to investigate countermeasures for ground subsidence during periods of drought; a survey of emergency countermeasures for ground subsidence on the Northern Kanto Plain ; a survey on the appropriate level of Usage of groundwater to provide guidance for voluntary restraints in the use of groundwater for industrial purposes ; a survey and guidance to enhance the efficiency of industrial water usage; a survey to manage and pre-serve groundwater through monitoring the level of groundwater and water quality; and a survey to investigate countermeasures for ground subsidence such as restoration of agricultural facilities and irrigation systems; and related activities. Furthermore,in order to prevent envi-ronmental problems from accompanying the use of underground space, a survey was conducted to equip for ground environment information around the Tokyo area
　　　Furthermore,a survey to measure the amount of water with. drawn from underground and leveling to determine the extent of ground subsidence were conducted. in addition to carrying out assis-tance to local governments in the conducting of leveling,fluctuation of the groundwater level and geological surveys for monitoring and meas-uring in the restricted areas.

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