A Policy-based Analysis of Marine Environmental Management

Evolution of the Bohai Sea

Jiawen Sun

, Qiang Qi

, Jie Huang

, Jing Yin

, and Ying Jiang

2,*

State Environmental Protection Key Laboratory of Marine Ecosystem Restoration, National Marine Environmental

Monitoring Center, Dalian, China

State Key Laboratory of Coastal and Offshore Engineering, Dalian University of Technology, Dalian, China

Keywords: The Bohai Sea, Ecological Environment, Management Policy, Renovation and Restoration

Abstract: In view of the serious damage to the marine environment of the Bohai Sea, the Chinese government has put

forward a series of policies to manage the marine environment. However, to the authors’ best knowledge, few

existing researches make use of these policies to scientifically and quantitatively analyze the changes of

marine environmental management of the Bohai Sea. Therefore, combined with the marine environmental

management policies of the Bohai Sea from 1982 to 2020, this paper counts the frequencies of key words in

these policy texts which could reflect the policy objectives to analyze the changes of marine environmental

management objectives and the results show that with the continuous development, the marine environmental

management of Bohai Sea has increased the restoration of the damaged marine environment on the basis of

preventing the disruption of marine environment. Meanwhile, on the other hand, this paper contrasts the

specific management contents involved in the marine environmental management plans of the Bohai Sea since

the 21st century issued by the Chinese government and finds that more and more restoration schemes are

developed. Then, based on the analysis results, the tread of the marine environmental management of the

Bohai Sea in the future is predicted. Moreover, solutions to problems in current projects of marine

environmental remediation and restoration by analyzing project implementing processes are explored as well.

As a whole, the management of marine environment of the Bohai Sea is becoming more and more

comprehensive, but there are still some problems such as complicated approval process and no unified

evaluation standard.

1 INTRODUCTION

China is a country with a vast coverage of ocean area

including the Bohai Sea, Yellow Sea, East China Sea

and the South China Sea. Among them, as the only

semi-enclosed inland sea, with an area of 77000 km

and an average depth of 18m (Li et al., 2018a) in

China, the Bohai Sea is well-known with its rich

marine resource (Zhang et al., 2009). The Bohai Rim,

which composes Shandong Province, Liaoning

Province, Hebei Province and Tianjin city, is the

agricultural base and heavy industry base of China

(Liu et al., 2015) (Figure 1). The Bohai Sea is located

in the center of Northeast Asia economic circle (Qiu

et al., 2018), which makes the Bohai Rim area one of

the most densely populated and industrialized areas in

China. (Gao et al., 2014; Liu et al., 2015). However,

with the economy development of the Bohai Rim, a

large number of industrial wastewater and

agricultural sewage are directly discharged into the

Bohai Sea. As the Bohai Sea is a semi-enclosed

marine area, the limited water exchange capacity has

led to serious pollution of the marine environment

(Lin et al., 2020; Wang & Wang, 2018). At the end of

the 20th century, the fishery resources in the Bohai

Sea were nearly exhausted, and the species richness

and species diversity decreased continuously (Jin,

2003) (Figure 2).

In order to improve and restore the marine

environmental quality of the Bohai Sea, the Chinese

government has formulated a series of national

marine environmental management policies and the

sub-national policies only for Bohai Sea. In

accordance with various policies including rules,

regulations and plans, actions have been taken to

improve the marine environment of the Bohai Sea,

such as sewage treatment and sewage outlet

inspection (Li, 2014).

204

Sun, J., Qi, Q., Huang, J., Yin, J. and Jiang, Y.

A Policy-based Analysis of Marine Environmental Management Evolution of the Bohai Sea.

In Proceedings of the 7th International Conference on Water Resource and Environment (WRE 2021), pages 204-211

ISBN: 978-989-758-560-9; ISSN: 1755-1315

Figure 1: The location and surrounding of the Bohai Sea.

Figure 2: The changes of species richness and diversity.

From the founding of China in 1949 to the

beginning of reform and opening up (A period of

rapid economic development in China) in 1979, the

Chinese government formulated marine policies

mainly for the security of its territory and sovereignty,

however, marine environmental problems were

generally ignored (Zhang, 2016). In 1982, the

Chinese government promulgated the Marine

Environment Protection Law of the People's Republic

of China, which is the first law on marine

environmental management in China. Since then,

China has successively issued a series of marine

environmental management policies to improve the

marine environmental quality.

Considering the timing of the promulgation of

policies that have a significant impact on China’s

marine environmental management and the number

of the policies issued in different years (Bai, 2019;

Xu, 2018; Xu et al., 2016; Yu & Bi, 2019), the marine

environmental management policies of the Bohai Sea

from 1982 to 2020 can be divided into the following

five phases.

1) The construction phase (1982-1985). In this

phase, China began to promulgate regulations and

policies related to marine environmental management

in accordance with the Marine Environment

Protection Law of the People's Republic of China,

representing the beginning of the marine

environmental management system of China.

2) The continuation phase (1996-2005). In this

period of time, compared with marine environmental

protection, the Chinese government paid more

attention to the development of marine resources. As

a result, the policies of the previous stage were

basically continued.

3) The refinement phase (2006-2010). This phase

is a period of continuous improvement of policy

system. The administrative intensity of marine

environmental protection policy is higher than that of

marine resources development policy.

4) The diversification and consolidation phase

(2011-2015). In this stage, the marine environmental

management had been further strengthened, and the

management methods had gradually diversified.

5) The innovation phase (since 2016). The

government has paid more and more attention to the

innovation of marine environmental management

model, and began to emphasize the collaborative

management of land and sea, and bring coastline into

the scope of marine environmental management.

This paper firstly employed the word frequency

analysis method to obtain the number of keywords in

the Bohai Sea marine environmental management

policy that could reflect the marine environmental

management objectives in different phases, so as to

analyze the changes of the objectives of Bohai Sea

marine environmental management. Next, Since the

policies issued in the 20th century for the marine

environmental management of the Bohai Sea are

mainly qualitative quotas, this paper analyzes the

changes of specific management contents based on

the quantitative management and control indicators

specified in the management plan proposed since the

21st century. Finally, combined with the

implementation of the current management plan, the

problems existing in the current scheme has been

discussed with the constructive suggestions to the

authorities.

The structure of this paper is divided into six parts.

The first part elaborates the way of dividing the

marine environmental management policies of the

Bohai Sea issued from 1982 to 2020 into different

phases, and describes the structure and potential

contribution of the paper. The second part reviews the

relevant studies based on the marine environmental

management policies of China. The third part deploys

A Policy-based Analysis of Marine Environmental Management Evolution of the Bohai Sea

205

the method of word frequency analysis to

quantitatively count the keywords of policy content,

and analyzes the change of management objectives.

In the fourth part, through the parallel comparison of

the quantitative control indicators in the marine

environmental management plan of the Bohai Sea

formulated since the 21st century, the changes of the

specific management contents of the marine

environment were analyzed. The fifth part discusses

the change trend and existing problems of the marine

environmental management of the Bohai Sea, and

puts forward constructive suggestions to the

authorities. Finally, the main conclusions of this

paper are summarized in part six.

2 EXISTING RESEARCH ON

MARINE ENVIRONMENTAL

MANAGEMENT IN CHINA

In recent years, the Chinese government has laid more

stresses on the importance of marine environmental

pollution problem, and has issued a series of marine

environmental management policies to manage this

problem. Research related to these policies has also

been conducted by scholars to analyze China's marine

environmental management.

(Wang & Liu, 2012) and (Xu et al., 2014)

classified the marine policies of China according to

four standards, including levels, management

objectives, fields and subjects, to analyze the

problems existing in the marine policy system of

China and put forward suggestions. According to the

marine environmental management policies issued by

the Chinese government from 1979 to 2015, (Xu et

al., 2016) used quantitative analysis and content

analysis to study the tendency of the marine

environmental policy system of China and the

proportion of different policy tools used in marine

environmental management. (Zhang, 2016) digested

the contents of the Government Work Report of China

from 1954 to 2015, so as to analyze the change of the

proportion of marine policy in all aspects of

government policy and the change of the focus of

marine management policy. (Xu, 2018) considered

the marine environmental management policies

issued by the government from 1982 to 2015, and

used content analysis and word frequency analysis to

investigate the changes in the concept and structure

of the policy. (Yu & Bi, 2019) divided the marine

environmental management policies issued by the

Chinese government from 1982 to 2020 into multiple

stages, and used mathematical methods to analyze the

evolution process of the policies, such as co-word

analysis and word frequency analysis. (Ma & Zhao,

2019) divided the legal history of the marine

environmental protection of China from 1949 to 2019

into three stages, defined the characteristics of each

stage, and prospected the legal development in the

future. (Wang & Mao, 2019) analyzed the change of

the government's emphasis on marine environmental

management by using content analysis method and

social network analysis method according to the

marine environmental policies issued by the

government from 1983 to 2016. (SONG et al., 2019)

established an evaluation system of marine

environmental management effect, which includes

three aspects: institutional setting and management,

legal system and state of the marine environment. The

results indicated that the legal system of marine

environmental management in China is still in a

backward position. (Yu & Yu, 2021) used the NVivo

software to analyze the qualitative data of coastal

ecological policy documents and found that ecology

is a priority factor in policy-making. In addition, it is

also found that more attention is paid to the process

of policy implementation instead of evaluation and

feedback. (Yu & Cui, 2021) divided the policy

evolution of marine litter governance in China into

three stages based on the important time points of

promulgating policies and extracted the keywords

and calculated their frequencies of each stage, which

are used to analyze and compare the characteristics

and performances of policies of different stages.

From the aforementioned review, it can be found

that, based on China's marine environmental

management policies, most of the existing studies are

still solely focusing on the policy system, such as

establishment and development, instead of analyzing

the objectives and specific contents of marine

environmental management. Therefore, in view of the

impact of management policies on the change of

management objectives and specific management

contents, this paper makes a trial with series of

analysis and discussion to propose a theoretical basis

for clarifying the evolution process of the marine

environmental management of the Bohai Sea.

3 THE CHANGE OF MARINE

ENVIRONMENTAL

MANAGEMENT OBJECTIVES

IN THE BOHAI SEA

Since the Chinese government promulgated the

Marine Environment Protection Law of the People's

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206

Republic of China in 1982, a series of marine

environmental management policies have been

promulgated in succession, which have become

important tools for marine environmental

management. This paper selects 102 policies issued

from 1982 to 2020, including national marine

environmental management policies and sub-national

policies only for the Bohai Sea, to analyze the

changes of marine environmental management

objectives of the Bohai Sea. As described in Part I,

the period 1982-2020 is divided into five phases, and

each policy is classified into specific phases

according to the year in which it was enacted.

Based on the key words proposed by (Xu, 2018)

and (Yu & Bi, 2019), which can reflect the core

contents of China's marine environmental

management policies, and the research requirements,

this paper selects 8 key words that can reflect the

objectives of marine environmental management in

the Bohai Sea. The 8 keywords are "Pollution",

"Environment", "Protection", "Ecological",

"Prevention", "Renovation", "Restoration" and

"Reclamation".

This paper uses the word frequency software of

ROST CM6 developed by Wuhan University to count

the frequency of 8 key words appearing in each phase.

Meanwhile, the growth rates of each keyword in

different phases relative to the previous phase are

calculated and the upper and lower growth rates of

each keyword has been calculated (Figure 3).

As shown in Figure 3, along with the advance of

marine environmental management of the Bohai Sea,

the key words "Pollution", "Environment" and

"Protection" appear frequently. The rising trend of

those key words indicates that protecting marine

environment and reducing pollution of the Bohai Sea

are always the objectives of China's marine

environmental management. For example, Marine

Environment Protection Law of the People's Republic

of China (1982), Some Opinions on Further

Strengthening Marine Ecological Protection and

Construction (2009), and Regulations on Prevention

and Control of Marine Environmental Pollution by

Ships (2017) are mainly focus on strictly controlling

the discharge of pollutants into the sea and protecting

the marine environment.

The frequency of the key word "Ecological" is

relatively low in the policies issued in the first phase

(1982-1995), but it increases rapidly in the following

phases. In the two phases of 2011-2015 and 2016-

2020, the frequency of "Ecology" is close to or even

more than that of "Pollution", "Environment" and

"Protection", which indicates that in the 21st century,

the scope of marine environmental management

objectives in the Bohai Sea has been further expanded

on the basis of controlling the discharge of pollutants

into the sea. For example, the 13th Five-year Plan for

Ecological and Environment Protection (2016) and

Opinions of the State Oceanic Administration on

Further Strengthening the Protection of the

Ecological and Environment in the Bohai Sea (2017)

all call for strictly controlling the discharge of

pollutants into the sea and for strengthening

protection of the marine ecological.

The frequency of the keyword "Prevention"

shows a growth rate of greater than zero in each phase

compared with the previous phase, indicating that the

Chinese government has always taken preventing

further damage to the marine environment as the

objective of marine environmental management in

the Bohai Sea. It should be noted that before 2005, the

frequency of "Remediation", "Restoration" and

"Reclamation" was very low, but since then, the

frequency of these three keywords shows a positive

growth trend. This shows that the objective of marine

environment management of the Bohai Sea

emphasizes the restoration of the damaged marine

environment on the basis of preventing the disruption

of marine environment.

Figure 3: The frequency and growth rate of keywords of the Bohai Sea marine environmental management policy.

A Policy-based Analysis of Marine Environmental Management Evolution of the Bohai Sea

207

4 THE CHANGE OF MARINE

ENVIRONMENTAL

MANAGEMENT CONTENTS IN

THE BOHAI SEA

In the 20th century, most marine environmental

management policies of the Bohai Sea are merely

focused on the setup of the management objectives,

the specific management contents are ignored. Since

the 21st century, the Chinese government has

formulated a series of plans with specific contents and

scale for the marine environmental management of

the Bohai Sea in order to protect the marine

environment more effectively. By sorting out the

management contents and corresponding quantitative

indicators stipulated in these management plans, this

part analyzes the changes of specific marine

environmental management contents of the Bohai Sea

in the past 20 years.

In 2001, for dealing with the serious pollution

problem in Bohai Sea, the Chinese government

formulated the Clean Bohai Sea Program (CBSP) to

strengthen the marine environment management of

the Bohai Sea. The CBSP is the earliest regional

marine environmental management plan at the

national level in China (Tong et al., 2014), which

stipulates that the management plan will be

implemented in three five-year stages from 2001 to

2015 and the specific management content of the

first-stage is to reduce the discharge of pollutants into

the sea. Specifically, by 2005, compared with 2000,

the discharges of phosphorus, ammonia nitrogen,

COD, and oil into the Bohai Sea should be dropped

by 20%, 20%, 10%, and 20%, respectively. However,

an investigation in 2006 showed that there were still

serious problems in the ecological environment of the

Bohai Sea, with the total amount of land-sourced

pollutants into the sea remaining high and the wetland

area shrinking. The CBSP failed after only five years

of implementation (Li et al., 2018b)

In 2007, the Chinese government formulated the

Bohai Sea Environmental Protection General Plan

with a coverage of two stages: 2008~2012 and

2013~2020. The management contents of the first

stage plan include reducing the discharge of

pollutants into the sea. The discharges of COD,

ammonia nitrogen, and total phosphorus should be

reduced from 1.5 million tons to 1.2 million tons, 110

thousand tons to 90 thousand tons, and 105 thousand

tons to 9 thousand tons respectively. In addition, the

restoration of marine ecological environment has

been supplemented to the management contents,

including the restoration of 210 thousand hectares of

wetland area and the increase of 460 thousand

hectares of shelterbelt area. The management

contents of the second stage of the plan are roughly

the same as that of the first stage, with quantitative

indicators include reducing COD into the sea to 800

thousand tons and increasing the area of shelterbelt

by 210 thousand hectares by 2020. In 2013, the

Chinese government proposed the implementation of

The Blue Bay project to restore the marine ecological

environment of seriously polluted bays across the

country, including several bays of Panjin City,

Jinzhou City and Qinhuangdao City in the Bohai Rim.

The Blue Bay project is proposed at the second stage

of the Bohai Sea Environmental Protection General

Plan, so this paper regards the implementation of the

Blue Bay project as a supplement to the restoration of

the marine ecological environment included in the

management contents of the second stage of the

Bohai Sea Environmental Protection General Plan,

including restoration schemes of damaged shoreline

restoration, dredging and the removal of offshore

structures.

When the implementation of the Bohai Sea

Environmental Protection General Plan entered its

final stage in 2018, unfortunately, the ecological

environment of important estuaries, bays and marine

ecosystems in the Bohai Sea is still in a sub-health or

unhealthy state. Hence, the Chinese government

formulated an Action Plan for The Comprehensive

Management of the Bohai Sea to speed up the solution

of the prominent ecological and environmental

problems in the Bohai Sea. The management contents

of the plan include reducing the discharge of

pollutants into the sea and restoring the marine

ecological environment. By the end of 2020, the

proportion of coastal seawater with good quality

should reach over 75% by reducing land-sourced

pollutants into the sea and the natural shoreline rate,

the restored wetland area and shoreline length should

be greater than 35%, 6,900 hectares and 70 km

respectively by means of restoration schemes such as

sand filling, dredging and the removal of offshore

structures.

By comparing the management contents of the

above marine environmental management plans of

the Bohai Sea, one uniform management code can be

summarized: reducing the discharge of pollutants into

the sea. Importantly, the restoration of the marine

ecological environment has also been emphasized

gradually with restoration schemes developed (Table

1).

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208

Table 1: Restoration schemes covered by different management plan.

Restoration

schemes

management

plan

Wetland

restoration

Vegetation

restoration

Shoreline

restoration

Dredging

Offshore

structures

removed

Sand

filling

the Clean Bohai Sea

Program

(2001)

/ / / / / /

The Bohai Sea

Environmental Protection

General Plan-the first stage

(2007)

◎ ◎

/ / / /

The Bohai Sea

Environmental Protection

General Plan-the second

stage (2013)

◎ ◎ ◎ ◎ ◎

the Action Plan

for The Comprehensive

Management of the Bohai

Sea

(

2018

)

◎ ◎ ◎ ◎ ◎ ◎

“ / ” is not covered in the management plan, “◎” is covered in the management plan.

5 RESULT AND DISCUSSION

5.1 Evolution Trend of Marine

Environmental Management in the

Bohai Sea

According to the analysis of the change of objectives

and contents of marine environmental management in

the Bohai Sea, it is recognized that before 2005, the

key words related to restoration are rarely mentioned

in the marine environmental management policies of

the Bohai Sea, but since 2005, relevant keywords

have been mentioned repeatedly with a rising trend.

In addition, by analyzing the specific management

contents of the marine environmental management

plan of the Bohai Sea in the past 20 years, it can be

found that the restoration schemes corresponding to

the marine ecological environment restoration are

becoming more and more comprehensive. However,

it is worth noting that in the General Plan for

Environmental Protection of the Bohai Sea issued in

2007, the specific contents of marine environmental

restoration of the Bohai Sea are proposed for the first

time, so far just 13 years. Naturally, the mature

marine environmental restoration system of the Bohai

Sea has not been formed. Therefore, it can be

predicted that marine environmental management of

the Bohai Sea in the future will continue to focus on

reducing the discharge of pollutants into the sea and

restoring the marine ecological environment, and

gradually form a mature marine environment

restoration system of the Bohai Sea.

5.2 Existing Problems and

Countermeasures in the Marine

Environmental Restoration of the

Bohai Sea

The recent management plan for marine

environmental restoration of the Bohai Sea is the

Action Plan for The Comprehensive Management of

the Bohai Sea, which was promulgated by the

Chinese government in December 2018 and finished

by December 2020. The plan involves 64 marine

environmental restoration projects. This paper firstly

summarizes the process of 26 related projects and

finds out the existing problems, then analyzes the

possible causes of these problems, and finally

proposes exploratory solutions.

The process of marine environmental restoration

project of the Bohai Sea generally includes eight

steps: review, approval, preliminary work,

preliminary design, environmental impact

assessment, construction, completion acceptance and

project acceptance. In August 2019, all the 26

projects passed the review. However, by March 2020,

7 of the 26 projects are in the approval step, 3 projects

in the preliminary design step, 13 projects in the

environmental impact assessment step, and only one

projects in the construction step. It can be seen that

overall progress is slow and the projects are

A Policy-based Analysis of Marine Environmental Management Evolution of the Bohai Sea

209

concentrated in the environmental impact assessment

step.

The main causes of these problems may include:

(a) The process of the project is cumbersome,

requiring a complex approval process for each step

and each step should be executed in strictly sequential

order;

(b) The lack of unified standards for

environmental impact assessment of marine

environmental restoration projects in China makes it

difficult to pass the environmental impact assessment

step.

In view of the existing problems in marine

environmental restoration of the Bohai Sea, this paper

suggests that, on the one hand, the process of marine

environmental restoration project should be

simplified, such as reducing the number of approval

steps or taking place simultaneously. On the other

hand, the environmental impact assessment standards

for marine environmental restoration projects should

be promulgated as soon as possible.

6 CONCLUSIONS

Dealing with the deficiencies in the academic

research on marine environmental management of the

Bohai sea, with a special focus on the marine

environmental management policy content, this paper

tried to exploring the existing problems in marine

environmental restoration of the Bohai sea based on

the detail investigation of the objective and content

changes of marine environmental management in

Bohai sea since 1982. Future marine environmental

management direction of the Bohai sea has also been

predicted with exploratory solutions proposed in this

paper.

From 1982 to 2020, great changes have taken

place in the marine environmental management of the

Bohai Sea. The management objective has changed

from targeted pollution control to comprehensive

ecological management, and the management content

has increased the marine environmental restoration

on the basis of reducing the discharge of pollutants

into the sea. In addition, the marine environmental

restoration schemes are becoming more and more

comprehensive. From the simple vegetation

restoration, various schemes such as coastal

restoration, dredging, and offshore structure removal

have been gradually added. It is expected that marine

environmental management of the Bohai Sea in the

future will continue to take into account the reduction

of the pollutants into the sea and the restoration of

marine ecological environment. The marine

environmental restoration project will further

simplify the process and promulgate the

environmental impact assessment standards as soon

as possible, which are currently the key issues to be

addressed in China. Study in the policy evolution of

environmental management scheme in China can also

provide importance hints and directions for other

developing countries, which are now suffering from

the environmental problems caused by the reginal

economic developments.

ACKNOWLEDGEMENTS

The authors would like to thank the financial supports

from National Key R&D Program of China

(2019YFC1407705 and 2020YFE0201200),

Fundamental Research Funds for the Central

Universities (DUT20RC (3)010) and Research

Center for Port Development at Dalian University of

Technology.

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