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Building Gaobeidian: Developing the Environmental Infrastructure of Modern Beijing

2023-07-27ADB亓***

ASIANDEVELOPMENTBANKINSTITUTE ADBIDevelopmentCaseStudyNo.2023-2(July) BuildingGaobeidian:DevelopingtheEnvironmentalInfrastructureofModernBeijing NaohiroKitano,FangqiQu,andMichaelBennon ©2023AsianDevelopmentBankInstitute ThisworkislicensedundertheCreativeCommonsAttribution- Stanford LeadershipAcademyforDevelopment NonCommercial-ShareAlike4.0 InternationalLicense.https://doi.org/10.56506/ARPZ7242 CenteronDemocracy,DevelopmentandtheRuleofLaw BuildingGaobeidian:DevelopingtheEnvironmentalInfrastructureofModernBeijing NaohiroKitano,FangqiQu,andMichaelBennon NaohiroKitanoisaprofessorattheFacultyofScienceandEngineering,WasedaUniversity.FangqiQuisamaster’sstudentattheGraduateSchoolofPublicPolicy(GraSPP),UniversityofTokyo.MichaelBennonisaresearchscholarandprogrammanageratGlobalInfrastructurePolicyResearchInitiativeattheCenterforDemocracy,DevelopmentandtheRuleofLawatStanfordUniversity. TheauthorswouldliketothankthestaffandresearchersattheAsianDevelopmentBankInstituteandtheUniversityofTokyofortheirinvaluableassistanceinthedevelopmentandrefinementofthisteachingcasestudy. Introduction In2019,BeijingDrainageGroup(BDG)wasinthemiddleofarenegotiationofthetermsofitsconcessionagreementwiththecity,whichwasonly7yearsintoits30-yearterm.BDGhadrecentlycompletedamajorupgradeofitsflagshipGaobeidianWastewaterTreatmentPlant,whichallowedthecompanytoproduceandsellreclaimedwater.Thiswasanewrevenuesourcethatpromptedthecitytorenegotiatetheconcessiontermswiththecompany,whichoperatedthesewernetworkand11treatmentfacilitiesinthecity. ThiswasfarfromthefirstchallengeBDGfacedinimplementingandmanagingBeijing’swastewatertreatmentinfrastructure.FewmunicipalsystemsinhistoryhavefacedthescaleandspeedofurbanizationasthosefacedinBeijing,whichgrewfromapopulationofroughly5millionin1980tomorethan20millionby2020.Thecity’sphysicalinfrastructuretomanageurbanenvironmentalwastewasvirtuallynonexistentatthebeginningofthisperiod. BDGwouldfacenoshortageofenvironmentalchallengesandwouldneedtoconstantlygrowthecity’scapacitytotreaturbanwastewhilesimultaneouslyreformingtheinstitutionsthatmanagethisinfrastructure.Perhapsmoreimportantly,Beijingresidentswouldneedtoadjusttheirownbehavior,notonlytouseanewsanitationsystem,butalsotobuildandpayforit. Beijing’sflagshipwatertreatmentfacility,Gaobeidian,wouldexpandandevolvealongwiththenetworksofsewers,people,andinstitutionsthatfedintoit. ThePRC’sEarlyEnvironmentalDevelopment In1949,therewereroughly6,000kilometersofdrainagepipelinesinallofthePeople’sRepublicofChina(PRC)andonlyfoursmallwatertreatmentplantsnationwide,noneofwhichwereinBeijing.Today,thePRChasmorewastewatertreatmentcapacitythananyothercountryonearth.In2019,therewere4,140operatingwastewatertreatmentplantsinthePRC,dischargingmorethan66billioncubicmeters(m3)oftreatedwastewater.Thecountry’swastewatertreatmentratethatyearwas96.8%inthePRC’surbanareasand93.6%inruralareas. ThePRC’spathtowarditscurrentwatertreatmentsectorwasmuchmorerapid,butthecountrylargelyfollowedasimilardevelopmentpathtocountriesthathaddevelopedbeforeit.Economicgrowthandrapidurbanizationledtoadegradingwaterandairenvironment,whicheventuallyledtodisastersandarisingpublicconsciousnessofenvironmentalissues.Leveraginginternationalsupport,thePRCdevelopedinstitutionsandinfrastructurenetworkstoallowformoresustainableformsofdevelopment. Upuntilthemid-20thcentury,thesanitationsectorinPeking(nowBeijing)evolvedfroma“nightsoil”circulareconomydatingbacktotheQingdynasty.Nightsoilmerchantscollectedwastefromcitydistrictsandmadefertilizertoselltoruralfarmersoutsidethecity.Cityresidentswerenotparticularlyhappywiththissystem,andonlyinpartbecauseitwasnothygienic.“Gangs”ofnightsoilmerchantsfoughtoverterritoryandthenchargedmonopolyratesfortheirservices.In1951,theChineseCommunistPartyinstitutionalizedtheservice.ThiscirculareconomycontinuedinsomepartsofthegreaterBeijingmetroareauntilthe1980s,whenitwasrapidlyrendereduntenablebydevelopment. EarlyGaobeidianSiting ThesitefortheGaobeidianWastewaterTreatmentPlantwasperfectlysituatedforacentraltreatmentnodeforBeijing.Thesitewasoriginallyidentifiedin1955byaSovietdesignernamed M.S.Rybnikov,whowassecondedtoBeijing’smunicipalgovernment.RybnikovwaspartofalargerteamofSovietdesignerstaskedwithhelpingcityofficialsdevelopacitywideurbanconstructionmasterplan,whichwascompletedin1958.SeeFigure1forthelocationoftheGaobeidiansiteinthecontextofmodernBeijing. TheconstructionofaninitialprimarytreatmentplantattheGaobeidiansitebeganlaterthatyear.However,theplant’scapacitywasonly200,000cubicmetersperday,andsinceitwaslimitedtoprimarytreatment,thetreatedwaterfromtheplantwasusedforwastewaterirrigation.ThelimitedcapacityandlowleveloftreatmentwouldsoonproveinadequateforrapidlyurbanizingBeijing. Anenvironmentaldisasterintheearly1970sattractednationwideattentionandbroughtanewsenseofurgencytoBeijing’senvironmentalmanagementinfrastructure.Throughoutthewinter,largequantitiesofdeadfishsurfacedinGuantingReservoirdownstreamfromBeijing,andtherewerecasesofpeoplebecomingpoisonedfromeatingfishfromthereservoirandconnecting

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