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Heavy Air Pollution Contingency Plan of Beijing Municipality

(2018 Revision)

As required by the Ministry of Ecology and Environment, and based on actual city conditions, the Heavy Air Pollution Contingency Plan of Beijing Municipality (2018 Revision) (hereafter the Contingency Plan) is hereby revised on the basis of the previous 2017 version. The new Plan aims to improve emergency response mechanisms, and to fine-tune management of environmental matters, so as to effectively reduce air pollution and protect public health.

I. Alert Levels

The municipal heavy air pollution alert system is divided into three levels, in accordance with the Technical Regulation on Ambient Air Quality Index (on trial) (HJ633-2012), and the alert criteria issued by the Ministry of Ecology and Environment. An assessment of heavy pollution is based on air quality forecasts, as well as concentration and duration. The three levels range from yellow to orange to red alerts, in increasing severity.

1. Yellow alert: for any forecasted daily mean citywide air quality index greater than 200 for two days (48 hours) or more, with short periods of heavier pollution below the conditions for higher-level alerts.

2. Orange alert: for any forecasted daily mean citywide air quality index greater than 200 lasting for three days (72 hours) or more, but lower than higher-level alert conditions.

3. Red alert: for any forecasted daily mean citywide air quality index greater than 200 lasting for four days (96 hours) or more, with two days (48 hours) or more at over 300; or for any forecasted daily mean citywide air quality index reaching 500.

Ⅱ. Emergency Measures

Based on the alert levels, health advice will be issued, and proposed and mandatory emission reduction measures adopted. In the case of heavy air pollution caused by sand and dust storms, the Emergency Plan for Sand and Dust Storm Disasters in Beijing Municipality shall apply. Health advice shall be issued in cases of shorter periods of heavy pollution that do not meet alert levels, and of ozone-induced heavy pollution.

1. Yellow Alert (Level III response)

(1) Health Advice

1) Children, the elderly and those with respiratory, cardiovascular, cerebrovascular or other chronic diseases are advised to stay indoors as much as possible, and to avoid outdoor activities.

2) Kindergartens, primary and secondary schools shall stop outdoor PE classes, exercises during recess, and sports meetings.

3) Environmental protection, health and family planning, and educational departments, as well as district governments will all step up pubilicity efforts within their sectors or jurisdictions on health measures and emergency responses to heavy air pollution.

(2) Proposed Emission Reduction Measures

1) People are encouraged to use public transport to reduce the number of motor vehicles on the roads; drivers are advised to switch off their engines immediately after parking and to avoid unnecessary idling.

2) More dust control measures on construction sites, bare land surfaces and materials stacking areas.

3) Increased road cleaning to reduce traffic dust.

4) Prohibit outdoor barbecues.

5) Limit the use of raw materials and products containing volatile organic compounds such as coatings, paints and solvents.

(3) Mandatory Emission Reduction Measures

While ensuring normal city operations:

1) An extra round or more of street cleaning will be carried out on major roads every day.

2) A halt to all outdoor brush or spray painting, slope stabilization using gunite, all demolition, stone and concrete cutting, and earthwork.

3) Manufacturers on the yellow alert list must suspend or restrict production.

2. Orange Alert (Level II response)

(1) Health Advice

1) Children, the elderly and those with respiratory, cardiovascular, cerebrovascular or other chronic diseases are advised to stay indoors as much as possible, and to avoid outdoor activities. The general public is also advised to reduce outdoor activities.

2) Kindergartens, primary and secondary schools shall stop all outdoor classes and activities.

3) Medical and health institutions shall provide publicity information and medical advice to those with respiratory diseases.

(2) Proposed Emission Reduction Measures

1) People are encouraged to use public transport to reduce the number of motor vehicles on the roads; drivers are advised to switch off the engine immediately after parking, and to avoid unnecessary idling.

2) Increase dust control on construction sites, bare land surfaces and materials stacking areas.

3) More road cleaning to reduce traffic dust.

4) Cut back on the use of raw materials and products containing volatile organic compounds such as coatings, paints and solvents.

5) Enterprises and institutions may stagger working hours where appropriate.

(3) Mandatory Emission Reduction Measures

While ensuring normal city operations:

1) Increase one or more extra rounds of cleaning on major roads every day.

2) Suspend all outdoor brush or spray painting, slope stabilization using gunite, all demolition, stone and concrete cutting, and earthwork.

3) In addition to work-day restrictions on rush-hour traffic in certain districts, all light-duty gasoline vehicles following China I and China Ⅱ emission standards (including driving school vehicles) shall be forbidden on the roads.

4) Transport vehicles (except clean-energy ones) carrying construction waste, earth and gravel shall be forbidden on the roads.

5) Manufacturers on the orange alert list must suspend or restrict production.

6) Forbid firework displays and outdoor barbecuing.

3. Red Alert (Level I response)

(1) Health Advice

2) Those working outdoors are advised to wear face masks and take other preventive measures.

3) Kindergartens, primary and secondary schools may adopt flexible class schedules or suspend classes altogether.

4) Medical and health institutions shall organize specialized staff to offer health consultations, give information on preventive measures, and ensure that emergency services and diagnosis and treatment for patients with related diseases are available.

(2) Proposed Emission Reduction Measures

1) People are encouraged to use public transport to reduce the number of motor vehicles on the roads; drivers are advised to switch off their engines immediately after parking, and to avoid unnecessary idling.

2) Increase dust control on construction sites, bare land surfaces and materials stacking areas.

3) Increase road cleaning to reduce traffic dust.

4) All industrial polluters shall comply with emission standards, and step up efficient use of equipment for treating air pollution. .

5) Reduce the use of raw materials and products containing volatile organic compounds such as coatings, paints and solvents.

6) Enterprises and institutions may adopt flexible arrangements such as staggering work and off-duty days, as well as working remotely.

(3) Mandatory Emission Reduction Measures

While ensuring normal city operations:

1) One or more additional rounds of road cleaning every day on major thoroughfares.

2) Suspend all outdoor brush or spray painting, slope stabilization using gunite, all demolition, stone and concrete cutting, and earthwork.

3) All light-duty gasoline vehicles following China I and China Ⅱ emission standards (including driving school vehicles) shall be banned from the roads; motor vehicles (including driving school ones ) that conform to the China Ⅲ emission standard are permitted to run on alternate days depending on whether their license plates end in odd or even numbers (electric vehicles exempted). Government vehicles must also conform to the odd-even ban, and an additional 30 percent shall remain off the streets.

4) Transport vehicles (except clean-energy ones) carrying construction waste, earth and gravel shall be banned from the roads.

5) Manufacturers on the red alert list must suspend or restrict production.

6) Forbid firework displays and outdoor barbecuing.

7) Increase electricity transmission from other cities to reduce Beijing’s power generation load.

Ⅲ. Emergency Responses

1. Issuing Alerts

A yellow alert and its corresponding response measures shall be issued by the Office of the Beijing Municipal Headquarters for Emergency Response to Heavy Air Pollution. (shortened to the Office) upon the approval of its director. Red and orange alerts shall first be proposed by the Office to the Office of the Municipal Emergency Management Committee which shall in turn report to both the director of the Municipal Emergency Management Committee and to the chief of the Beijing Municipal Headquarters for Emergency Response to Heavy Air Pollution (shortened to the Headquarters) for joint approval. The Office will then announce the specific alert and corresponding response measures. In principle, alerts shall be issued 24 hours in advance. For all cross-region emergency coordination responses, the Ministry of Ecology and Environment will first issue a warning message to the Office, which will then announce the corresponding alert and measures for coordinated action.

The Office, the Publicity Department of the CPC Beijing Municipal Committee and the Municipal Emergency Information Center shall release alert information in a timely manner through television, radio, newspapers, the internet, mobile phones and other channels to inform the public so it can take steps to protect itself.

2. Alert Response

All department members of the Headquarters shall take prompt action upon receiving the alert and response instructions. They shall supervise and inspect implementation, and report back to the Office in a timely manner. City departments shall effectively organize and manage the emergency response measures in their respective industries/sectors. District-level governments shall strictly implement the response measures in the sub-districts (townships and towns) under their jurisdiction, and also in their relevant departments.

The municipal and district-level departments concerned shall tighten law enforcement during the alert period, in particular, the rules on suspending or restricting production, dust control at construction sites, the ban on earth and gravel transport vehicles, traffic limitations, open burning, and the illegal use of coal and inferior bulk coal for commercial purposes. All violations of environmental protection laws shall be dealt with severely.

3. Alert adjustments

The Office can propose alert adjustments according to changes in pollution levels and the latest forecasts. After approval procedures, the Office may then raise or lower the alert level.

4. Ending Alerts

An alert shall be lifted when the air quality, as forecasted or monitored, falls below the threshold of that alert level, and is predicted to remain so for more than 36 hours. An alert shall also be lifted when the Ministry of Ecology and Environment announces an end to cross-region emergency coordination responses. When the alert ends as planned, no further approvals are needed and the Office will make the announcement.

IV. Organizational Arrangements

1. Stronger Leadership

The Beijing Municipal Headquarters for Emergency Response to Heavy Air Pollution (the Headquarters) operates under the Municipal Emergency Management Committee, and is headed by the Executive Vice Mayor. Deputies can be a Vice Mayor and a Deputy Secretary-General in charge of the environment (if environmental protection is already a responsibility of the Executive Vice Mayor, then the Deputy Secretary-General alone shall be the deputy). Members of the Headquarters are those municipal departments that have environmental protection responsibilities, district-level governments and the Administrative Committee of Beijing Economic-Technological Development Area. The Headquarters’ Office is located in the Beijing Municipal Bureau of Environmental Protection, and is headed by the same director. The municipal departments involved shall effectively organize, manage and inspect the emergency responses to heavy air pollution in their respective industries/sectors. District-level governments and the Administrative Committee of Beijing Economic-Technological Development Area have prime responsibility for emergency responses within their jurisdictions. They must each set detailed tasks and complete them fully.

2. Better Support Measures

Each of the department members of the Headquarters shall, in line with the general requirements of this Contingency Plan, draw up their own heavy air pollution sub-plans on the basis of conditions in their respective sectors and jurisdictions. These sub-plans must be filed with the Office within 10 days after this Contingency Plan is issued, and the public informed of their implementation. Municipal departments whose sectors affect air quality shall draw up a list of enterprises subject to suspension or restriction of production; they must also draw up a list of enterprises, construction projects and major activities that must continue during an alert so as to ensure the people's livelihood and the normal operation of the city. These lists shall be regularly updated and filed with the Office. Those enterprises listed for production suspension or restriction are required to draw up their own contingency plans based on the principle of “one plan per factory.” Districts and sub-districts (townships and towns) shall, on the basis of the overall municipal Plan, refine their own procedures of emergency response for meeting different alert levels. They must also state clearly their proposed or mandatory measures, and divide up the responsibilities accordingly.

3. Strict Duties and Responsibilities

Each department member of the Headquarters shall set up a detailed system for emergency staffing to ensure smooth operation. During a yellow alert, there must always be extra staff on standby. During an orange alert, a greater number of staff must remain on active duty. During a red alert, there must be round-the-clock staffing (including holidays). During a red alert, the Office can temporarily transfer staff from department members to jointly direct, coordinate, manage, inspect and supervise emergency procedures.

4. Strict Supervision and Assessment

Each department member of the Headquarters shall formulate plans to supervise and motivate those in their respective sectors/jurisdictions to implement emergency measures. All sub-districts (townships and towns) shall tighten supervision over their respective jurisdictions, organize targeted on-site inspections in accordance with the law and urge timely remedies. The Supervision Office of the People’s Government of Beijing Municipality and the Municipal Bureau of Environmental Protection shall tighten supervision and inspection of how well emergency measures are implemented. If this is poorly done due to incompetence, inefficiency or irresponsibility, the organizations or individuals involved will be held accountable according to the rules.

5. Information and Education

The Publicity Department of the CPC Beijing Municipal Committee shall, together with all the department members of the Headquarters, make full use of the media to inform the public and increase understanding of emergency responses for heavy air pollution. The causes of such pollution must be further explained and timely updates provided to the public about the response efforts. The public’s concerns must be addressed so there is more understanding and support from all sectors of society. People are encouraged to adopt a low-carbon lifestyle and to use green transport, to reduce the use of materials and products containing volatile organic compounds, to cut back on outdoor barbecuing and open burning, and to refrain from letting off fireworks and firecrackers. People are encouraged to join efforts to prevent and control air pollution so there is a favorable environment for all sectors to work together to tackle the issue.

6. More Public Scrutiny

Each department member of the Headquarters shall create more ways for public participation, and accept public scrutiny. Timely announcements shall be made about air quality, and about emergency response sub-plans and measures so as to guarantee the public’s right to know and to participate. The public shall also be encouraged to supervise the implementation of emergency measures in accordance with the law, and to report environmental problems and hidden dangers (Complaint telephone numbers: 12345, 12369, 96310).

The new Contingency Plan will be effective from the date of its promulgation, and the Heavy Air Pollution Contingency Plan of Beijing Municipality (2017 Revision) (No.27 [2017], Beijing Municipal Government) shall then cease to apply.

Appendix 3

Division of Responsibilities for Emergency Responses to Heavy Air Pollution among Beijing Gov. Departments

I. Beijing Municipal Headquarters for Emergency Response to Heavy Air Pollution

1. It shall implement the Emergency Response Law of the People’s Republic of China, the Law of the People's Republic of China on the Prevention and Control of Atmospheric Pollution, Beijing Municipality Measures to Implement the ‘Emergency Response Law of the People's Republic of China’, and the Regulations of Beijing Municipality on the Prevention and Control of Atmospheric Pollution.

2. It shall draw up policies and guiding principles on how to fight heavy air pollution.

3. It shall direct all emergency activities in the city, and coordinate all district governments’ responses in accordance with the law.

4. It shall coordinate implementation of the Contingency Plan, and oversee its implementation by municipal departments concerned, as well as all districts.

5. It shall review past responses, and draw up working proposals and annual plans.

6. It shall build and organize its emergency response team, and ensure sufficient emergency supplies.

7. It shall perform other tasks entrusted to it by the Municipal Emergency Management Committee and by the Municipal Leading Group for Comprehensive Control of Atmospheric Pollution.

II. Office of the Beijing Municipal Headquarters for Emergency Response to Heavy Air Pollution

1. It shall implement the decisions of the Headquarters, and coordinate the responses of the department members.

2. It shall organize staffing duties for emergency responses.

3. It shall collect and analyze data, and report important information immediately.

4. It shall carry out emergency risk assessment and control as well as hazard identification, and make the necessary improvements.

5. It is responsible for issuing yellow alerts, and proposing red or orange ones to the Municipal Emergency Management Department; it also announces the lifting of alerts.

6. It shall cooperate with relevant departments to release news and announcements from the Headquarters.

7. It shall draft (revise) the emergency plans of the departments and specific programs of the Headquarters, and guide department members to formulate (revise) their own sub-plans.

8. It shall organize drills for emergency responses to heavy pollution.

9. It shall increase awareness on and training for emergency responses.

10. It shall build and manage the technical systems of the Headquarters.

11. It shall consult with experts on the Headquarters’ advisory panel.

12. It shall run the day-to-day business of the Headquarters.

Ⅲ. Responsibilities of the member departments of the Headquarters

1. Beijing Municipal Commission of Transport

(1) Based on the Contingency Plan, it will formulate its own sub-plan, define its detailed tasks, and implement it when heavy air pollution happens..

(2) It shall, together with the Beijing Traffic Management Bureau, draw up the Notice on Temporary Traffic Control in Response to Heavy Air Pollution.

(3) It shall be responsible for ensuring public transport.

(4) It shall prohibit high-emission vehicles on the road according to the alert level.

(5) It shall oversee the implementation of its sub-plan.

2. Beijing Traffic Management Bureau

(1) As the Contingency Plan requires, it will formulate its own sub-plan, define detailed tasks, and implement it when heavy air pollution happens.

(2) It shall draw up a list of official cars prohibited from use during days of heavy pollution, and list the public vehicles that are exempt from such a ban.

(3) As the Contingency Plan requires, during episodes of heavy air pollution, it shall inform the public of mandatory traffic control measures via Beijing Traffic Radio 103.9 FM, and by LED electronic traffic signs. The Bureau shall ensure the enforcement of bans on light-duty gasoline vehicles following China I and Ⅱ emission standards (including driving school cars), and also enforce the rules for alternate driving days for odd and even number plates; it shall tighten regulations on vehicles violating traffic bans.

(4) It shall assist the Beijing Municipal Commission of Transport to draw up the Notice on Temporary Traffic Control in Response to Heavy Air Pollution.

(5) It shall oversee implementation of its own sub-plan.

3. Beijing Municipal Commission of Economy and Information Technology

(1) As the Contingency Plan requires, it shall draw up its own sub-plan, define detailed tasks, and implement it when heavy air pollution happens.

(2) It shall draw up a list of enterprises crucial to the people’s livelihood and the normal functioning of the city, as well as a list of manufacturers and enterprises that should suspend or curtail production during alerts, and require them to formulate their “one policy per factory” emergency plans; it shall, along with departments concerned, guide district governments and the Administrative Committee of Beijing Economic-Technological Development Area to draw up similar lists at the district level;

(3) As required by the Contingency Plan, it shall organize key manufacturers with high emissions of air pollutants to suspend or curtail production.

(4) It shall oversee implementation of its sub-plan.

4. Beijing Municipal Commission of Housing and Urban-Rural Development

(1) As required by the Contingency Plan, it shall draw up its own sub-plan, define its detailed tasks, and implement it when heavy air pollution happens.

(2) It shall draw up a list of construction projects crucial to the people’s livelihood and the normal functioning of the city during alerts and shall, with departments concerned, guide district governments and the Administrative Committee of Beijing Economic-Technological Development Area to draw up similar lists at the district level.

(3) As required by the Contingency Plan, it shall implement dust control measures on construction sites, suspend all outdoor brush or spray painting, slope stabilization using gunite, all demolition, stone and concrete cutting, and earthwork, and prohibit the use of heavy-duty vehicles transporting building waste, sand and gravel.

(4) It shall oversee the implementation of its sub-plan.

5. Beijing Water Authority