Transcript 完善云南环评公众参与的政策建议Policy recommendations on

This project is funded by the European Union
完善云南环评公众参与的政策建议
Policy recommendations on
improving PP of EIA in Yunnan
杨宗慧 Zonghui Yang
2014-3-20
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完善云南环评公众参与的政策建议
Policy recommendations on improving PP of EIA in Yunnan
1、建立、健全半官方性质的组织和监督机构
Establish and complete semi-official governmental organization and supervision institution
2、培育非官方性质的社会组织Foster non-governmental organisations
3、优化、细化环评公众参与的执行流程Optimize and refine the process of public participation in EIA
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完善云南环评公众参与的政策建议
Policy recommendations on improving PP of EIA in Yunnan
1、建立、健全半官方性质的组织和监督机构Establish and complete semi-official
governmental organization and supervision institution
建议在云南省建设项目环境审核受理中心下设置专门的对环评公众参与进行组织和监督
的半官方性质的委员会。该委员会由官方审批机构、专家、NGO和公众代表组成。该
委员会的主要职责包括：确定特定环评项目的公众调查的范围及对象、审查公众参与
计划、监督信息公开次数、时间、方式和信息公告的内容、指导调查的方法、抽查或
核对环评单位提交的公众意见的汇总分析、审查报告书中公众调查的相关章节。该委
员会可以针对具体的环评项目的公众意见调查组建临时的公众意见调查技术团队，以
支撑该机构的技术工作。It is suggested to establish a semi-official committee to be
responsible for organise and supervise public participation under the Yunnan Environmental
Evaluation Centre for Developments (YEECD). The committee member is composed of EIA
authority, experts, NGO and public representatives. The role of the committee is to decide
the scope and target groups of public consultation, review the public participation plan,
supervise information disclosure (frequency, timing, methods, content of information to be
provided), guide the development of public consultation methodologies, randomly review
and verify the public consultation results provided by the EIA institutions, and review the
relevant chapter in the EIA reports. The committee may establish one-time technical team
for public participation of a specific project to support the technical work of the committee if
necessary.
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完善云南环评公众参与的政策建议
Policy recommendations on improving PP of EIA in Yunnan
2、培育非官方性质的社会组织Foster non-governmental organisations
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一是培育能参与环评的主体。建议在现有体制内，有计划地、逐步地有将居民委员会
委会环境卫生委员会发展为制度化、常态化的居民环境利益代言人。以社会组织来代
替分散的、弱小的民众来参与环评。通过这种目前已经有一定基础的方式，在基层社
区，建立一个稳定的、理性的、能为居民环境利益代言的草根组织，并确保这种组织
是在市、县、街道等相应层级的共产党委的组织领导下工作、与现行体制能良好衔接、
并符合《宪法》和《居民委员会组织法》等的要求。 Firstly, fostering organisations
could participate in EIA process. It is suggested to gradually institutionalize the
environmental committee under the community committee as the representative of the
public whenever environmental interest is concerned, through which vulnerable and
separated citizens could also have a voice in the EIA process. Currently the basis is ready
there. At the community level, stable, rational grass-root organisations that are able to speak
for the environmental interests of the public are required. And these organisations should be
work under the leadership of communist parties at the respective level and connect to the
current system and meet the legal requirements of the constitution and organisation law of
residents’ committee.
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完善云南环评公众参与的政策建议
Policy recommendations on improving PP of EIA in Yunnan
二是建立有资格参与环评等听证的社会组织的遴选规则和标准。遴选标准既要保证居民有
通畅的环境权益诉求通道，又要将一些非理性的社会组织排除在外。受影响社区的居
委会环境卫生委员会拥有当然的、最优先的参与权，其次是这些社区内的草根环保组
织。此外，还可以在社区以外，遴选若干在专业能力、信誉、与政府合作经验等方面
有良好表现的环保组织。Secondly, rules and criteria for selection of social organisations to
participate in public hearings and other EIA consultation events shall be established. The
selection criteria shall not only ensure smooth communication channels for the
environmental interests of the citizens but also to exclude organisations which are irrational.
The environmental committees of affected communities certainly should be given the
priority participation opportunities. After that grass-root environmental NGOs of the
communities shall be included. In addition to them, environmental organisations outside
these communities with sufficient professional capacity, credibility and cooperative
experience with government should be considered as well.
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完善云南环评公众参与的政策建议
Policy recommendations on improving PP of EIA in Yunnan
3、优化、细化环评公众参与的执行流程Optimize and refine
the process of public participation in EIA
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一是公众参与的方案应该是按照《环评公众参与暂行管理办法》编制，并在得到征得建设项目当地
环保局或省环保厅环境审核受理中心审查并同意后后方可开展调查工作。方案中应当明确实施主体、
参与对象、参与形式、调查方法等。 Firstly, the public consultation plan shall be developed in line with
the “Provisional guidelines for public participation in EIA” and approved by local EPB or YEECD.
Consultation work could be carried out only if the approval is secured. The plan shall specify who will carry
out the consultation, whom to be consulted, and how and in which form, etc.
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二是合理设置调查范围。要确保公众调查表发放对象的代表性和覆盖性。对于搬迁范围、卫生防护
距离范围、环境防护距离范围内涉及的所有住户或单位应逐个进行调查；对于评价范围内可能受到
影响的公众，按不少于当地常住人口的10%比例进行调查；被征求意见的对象必须包括可能受到建
设项目影响的公民、法人或者其他组织的代表,同时鼓励对项目感兴趣的民众和社团积极参加
Secondly, the scope of public consultation should be appropriate and being representative and
reasonable coverage. The individual households, companies, and organisations to be resettled or located
in the proximity exposed to health risk and environmental risk shall be all consulted. For the public
potentially to be affected, 10% of the permanent residents shall be consulted. Those must be consulted
include citizens, legal representatives or representative of other organisations. And participation of
citizens and social organisations that are interested in the project shall be encouraged.
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完善云南环评公众参与的政策建议
Policy recommendations on improving PP of EIA in Yunnan
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三是调查内容设置要合理且全面。公众参与调查表首先应该是一份建设项目的信息披露、
通报表。其次，调查内容应包括水环境、大气、生态与土壤、环境风险等主要的环境要
素，并必须包括被调查者对项目建设最关心的问题、意见建议和是否同意项目建设等内
容。Thirdly, issues to be consulted shall be appropriate and complete. Announcement of the
project information shall be made in advance. Public’s opinions towards key environmental
elements, such as water, air, ecology and soil and environmental risk shall be surveyed. And the
issues they concern most, suggestions and opinions towards the project must be asked.
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四是公告、沟通的方式、沟通渠道要多样化且覆盖面足够。应根据项目特性及项目的区
域特点灵活采取不同的公示方式如：网络、报纸、海报、电台广播、地方电视台节目插
播等，同时根据不同的公示方式确定合理的公示时间，确保70%以上的目标公众已获取项
目的准确信息；同时实施主体在调查过程中均应根据不同的公示方式向参与的公众提供
相应的沟通渠道，并确保沟通渠道畅通Fourthly, information disclosure and communication
methods and channels shall be diverse and with good coverage. Various information disclosure
methods shall be employed according to the project nature and characters of the area, such as
internet, newspaper, posters, radio and TV, etc. The timing of information disclosure shall be
selected in line with the methods it applied to ensure that 70% of the target public have
received accurate information. The one who carry out the consultation should also provide
proper feedback channels to ensure smooth communication and dialogue.
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完善云南环评公众参与的政策建议
Policy recommendations on improving PP of EIA in Yunnan
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五是信息公告要充分、且有针对性。不仅应当按照《办法》规定的信息，还应当向公
众公开环评报告全本（除涉及国家秘密和商业秘密等内容外）、公众意见调查方案、
调查过程、调查结论和公众意见处理结果等。Fifthly, the information provided shall be
sufficient and well targeted. According to the Guidelines, announcements shall be made
before EIA starts and EIA report is ready for authority to review on the local major media and
notification shall be made at the information board of all the villages concerned and
questionnaire distribution points shall be established there as well. Announcement shall
include all the information required by article 8 and 9 of the Guideline. Each announcement
shall be kept at least for 20 days to ensure project messages are crossed. When the second
announcement is made, the public shall be informed the key issues for consultation during
the first announcement and feedback received and make necessary explanations or
clarifications.
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完善云南环评公众参与的政策建议
Policy recommendations on improving PP of EIA in Yunnan
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六是对公众意见必须要进行反馈。对于环境影响评价报告书草案编制阶段未采纳的公
众意见的需要说明理由并附证明材料；必要时应当由建设单位或主管部门与公众进行
质证与辩论。对于未采纳公众意见，且未进行理由说明或质证辩论的环境影响评价应
不予审批。对超过20%的公众有反对意见的项目，应采取座谈会、论证会的形式征询公
众意见；必要时可召开听证会公开征求公众意见。座谈会、论证会、听证会等均应形
成会议记录(应包括会议现场全程影像记录资料)，经与会代表签字后存档。建设单位和
环评单位要公开联系人员名单。
Sixthly, public opinions must be feedbacked. Public opinions have not been taken when
drafting the EIA report shall be explained why and proofing documents shall be provided.
When it is necessary, project developer or proponent need to have open discuss or debate
with the selected public representatives. If reasons are not given or debate is not organized
for untaken opinion, then EIA authority shall not approve the EIA report. When it is
necessary, public hearing could be organised. Miniatures or even video records of the
routable meetings, professional discussion, evaluation workshops, etc. organised shall be
filed after signature of all the participants. Project developer and EIA authority shall provide
the contacts of their responsible staff.
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完善云南环评公众参与的政策建议
Policy recommendations on improving PP of EIA in Yunnan
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七是对调查意见的统计和报告要进行核查。由建设项目所在地县级环保部门
对其公众参与调查问卷真实性进行核查，并出具核查证明文件。省建设项目
环境审核受理中心在建设项目评估过程中应随机抽取不少于10份公众意见调
查表核查其真实性。经核实，凡与实际调查情况一致性低于80%的，必须重
新开展公众参与工作。Seventhly, public consultation results and report shall be
verified. The county level EPB of the project locality needs to verify the survey
results and issue a report on this matter. YEECD shall randomly take at least 10
questionnaires to verify their truthfulness when they evaluate the EIA project. If
the consistence is lower than 80%, then public consultation shall be redone.
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《云南省环评公众参与管理办法实施细则（暂行）》建议稿
proposal of “Detailed management rules for public participation in EIA in Yunnan”
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行政执行机构Administrative supervision institution
实施主体 implementing bodies
适用范围 scope
调查方案编制要求requirements on consultation methods
调查方案审核程序review procedures for consultation methods
《建设项目公众意见调查报告》审查 review and evaluation of consultation report of
public opinion of projects
信息公告 information discourse
公众意见调查（方法、范围、对象）consultation of public opinion (methods, scope,
targets)
沟通渠道communication channels
信息公开指南guidelines on information disclosure
调查意见的核查 review of consultation results
调查意见使用 handling of consultation results
监督和处罚supervision and punishment
完善云南环评公众参与的政策建议
谢 谢thanks！
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