Abstract
This paper examines the process and significance of the enactment of exhaust emission control in Japan. In the 1960s, the health hazards caused by exhaust emissions became a serious social problem. The Ministry of Transport’s existing regulations had been based on insufficient research, and emissions were not regulated by numeric values. The Ministry therefore undertook another study and surveyed the effect of exhaust emissions on air pollution. It also took into account the views of automobile companies in drafting new regulations.
The resulting regulations proved only transitional, however. Because the study of exhaust emissions was not thorough enough, controls were imposed only on CO, in effect reflecting the technical capabilities of the automobile companies and having only a limited effect on air pollution. But it did have some significance as it served as the foundation for subsequent exhaust emission control and reduced the CO emissions of individual cars. The regulation led automobile companies to question air pollution in Japan and improve their products. This was a typical case in which national opinion spurred the Ministry to take the initiative in issuing regulations.
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Notes
- 1.
Masu Uekusa defines ‘economic regulations’ as ‘those on prices, the entry and withdrawal from the market and companies’ financial states, mainly concerning the public utility, telecommunications and Broadcasting industries, as well as the finance, insurance and securities sectors. He also defines ‘social regulations’ as those on ‘environment, security, health and so forth.’ (Uekusa 1997 p.9 and Uekusa 1981) The definitions of economic and social regulations adopted in this study are based on those of Uekusa.
- 2.
Here, Mutō is arguing about the effects of the 1978 regulation.
- 3.
Researchers who regard exhaust emissions control as economic regulation have repeatedly raised the question of whether the government’s protective policies or manufacturers’ efforts and competition contributed more to the development of the Japanese automobile industry.
- 4.
The content of this study has been confirmed by Hisashi Kageyama, then Division Director of the Maintenance Division of the Maintenance Department, in the Automobile Bureau of the Ministry of Transport.
- 5.
It should be noted that there are some questions about the credibility of this report.
- 6.
The ‘Safety Standard’ was a ministerial ordinance based on Chapter 3 of the Road Transport Vehicle Act. It prescribed in detail not only technological standards but also standards for the inspection of vehicles.
- 7.
Article 41 of the Road Transport Vehicle Act stipulated that no motor vehicle devices should be allowed to be used unless they met security standards specified in Ministry of Transport’s ordinances. Item (xii) of the same Article necessitated the installation of a device to prevent the emission of soot, smoke, fetid or poisonous gases and so forth.
- 8.
The consideration for air pollution was not the only reason this revision was made. Among other reasons were: the increase in the number of car accidents due to defective devices, the alleviation of traffic congestion, the maintenance of security during high speed driving and so forth. However, during the Diet deliberations, the problem of automobile exhaust emissions was addressed, and it was demanded that the Ministry of Transport should take some action(Dai 43-kai Kokkai Shūgiin Un’yuiinkai Gijiroku no. 37 1963). It can be said therefore that the air pollution problem was a major reason for this revision.
- 9.
The author’s insertion.
- 10.
Hisashi Kageyama told the author in an interview that police officers’ experience of nausea at heavy traffic crossroads was the direct impetus for the Ministry of Transport to take on the exhaust gases problem.
- 11.
The original name of the company at the time of its establishment was Horiba Radio Laboratory [Horiba Musen Kenkyūjo].
- 12.
So far as diesel-powered vehicles were concerned, the Safety Standard based on the Road Transport Vehicle Act had already prescribed that exhaust gas concentration should be below the level of Munsell N7.
- 13.
In this relation, the Division Director of the Vehicle Division of the Transport Ministry’s Automobile Bureau sent a document titled ‘Concerning the Promotion of the Measurement of Automobile Exhaust Gases’ (dated 28 May 1965) to the Japan Automobile Manufacturers Association and the Midget Motor Manufacturers’ Association of Japan .
- 14.
Although the regulation rates were eased from the original plan of February, the reason for this is unknown. As for the timing to tighten the regulation rate of carbon monoxide to 2 %, the Transport Ministry’s original intention cannot be known due to the lack of evidence. However, there is a possibility that it had been thinking about this timing from the beginning.
- 15.
The former is Ōharakōsaten 1-chōme, Setagaya Ward, Tokyo, and the latter is Tamagawayōga-chō, Setagaya Ward, Tokyo. When the measurement was conducted, other sources of air pollution such as factories and the heating of buildings had to be avoided as much as possible in order to isolate the effect of automobile exhaust emissions . It was for this reason that these two places were chosen for the measurement.
- 16.
It was set up in January 1965.
- 17.
Akazawa also talked about those automobile manufacturers that were exporting their products to the United States. He was of the opinion that cars produced by such manufacturers should meet a certain regulatory standard. He remarked that he was trying to make sure that all cars newly produced by such manufactures would be subject to regulation by about the fall of 1967.
- 18.
Remark by Keitarō Nakajima, Director of the Fourth Technology Department, Toyota Motor Co., Ltd . (Nihon Jidōsha Kōgyōkai 1969 p.4)
- 19.
It was only after 1973 that the observed values of carbon monoxide began to decline.
- 20.
It can be conjectured from the context that the correct year is 1966.
- 21.
During the interview with the author, Kageyama repeatedly remarked, “It is no use doing what is impossible.” This remark is indicative of the situation at the time.
Primary Sources
Dai 40-kai Kokkai Sangiin Shōkōiinkai Gijiroku [The 40th Session of the Diet, the House of Councilors, the Commerce and Industry Committee, Minutes], no. 28 (1962)
Dai 40-kai Kokkai Shūgiin Shakairōdōiinkai Gijiroku [The 40th Session of the Diet, the House of Representatives, the Labor and Welfare Committee, Minutes], no. 32 (1962)
Dai 43-kai Kokkai Shūgiin Un’yuiinkai Gijiroku [The 43rd Session of the Diet, the House of Representatives, the Transport Committee, Minutes], no. 37 (1963)
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Interview with Hisashi Kageyama conducted by the author on 25 August 2005.
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Itagaki, A. (2016). The Legislative Process of Automobile Exhaust Emissions Control in Japan—The 1966 Regulation and the Role of the Ministry of Transport. In: Takeda, H. (eds) Micro-Performance During Postwar Japan’s High-Growth Era. Monograph Series of the Socio-Economic History Society, Japan. Springer, Singapore. https://doi.org/10.1007/978-981-10-0709-5_2
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