第五届中国环境与发展国际合作委员会2013年年会，北京，11月13-15日 公众参与的价值目标与绿色发展 The Value of Public Participation and Green Development ——以环境利用关系为中心 ——Centering on Environmental Utilizing Relations 汪 劲 北京大学法学院教授 Dr. Wang Jin, Professor of Peking University Law School wangjin_law@pku.edu.cn

目 录/ Contents 前言 人类利用环境资源行为的分类 公众、政府与企业：环境利用关系中的地位 通过公众参与实现绿色发展的法律途径 结论 Foreword Classification of human environment and resource utilization behaviors Public, governments and enterprises: status in environmental utilizing relations Legal method to achieve green development through public participation Conclusion

前 言/Foreword 1. Government 绿色发展的本质：保护基本人权与维护社会进步 绿色发展的主体及其与环境资源保护的关系 The essence of green development: protecting fundamental human rights and safeguarding social development Subjects of green development and their relations with environmental and resource protection 1. Government As the state’s environment and natural resource management and protection authority according to the Constitution and the laws, government should: Protect state property; Maintain and increase the value of the state’s natural resources and environmental assets; Supervise environment utilization and pollutant emissions; Balance multiple social interests; Protect people’s life, health and property from pollution damages Sustainably develop economic and society 绿色发展的本质：保护基本人权与维护社会进步 绿色发展的主体及其与环境资源保护的关系 1. 政府 作为宪法和法律授权国家所有的自然资源与环境管理，和国家环境与资源保护的主体 国家财产保护职能 国家自然资源与环境财产的保值、增值 监管开发利用环境与污染物排放 社会利益衡平职能 保护人民生命健康、财产安全不受污染破坏致害 经济、社会可持续发展

2. Enterprises Legally exploit and utilize natural resource (utilizing environmental factors) Legally discharge pollutants to the environment (utilizing environmental capacities) 3. Citizens, Natural persons/Public (Represented by Environmental NGOs) Original user of environmental factors and environmental capacities (instinctive utilization) The original source theory in the Natural Right Creatures in the nature have general inherent rights, which are not limited by laws or religions For example: rights to breath, drink, eat, enjoy good scenery, and etc. 2. 企业 依法开发利用自然资源（环境要素利用）的主体 依法向环境排放污染物（环境容量利用）的主体 3. 公民、自然人/公众（以环境NGO组织为代表） 环境要素和环境容量的原初利用者（本能的利用） 天赋人权（Natural Right）的原始源论 自然界生物普遍固有的权利，并不限由法律或信仰来赋予 呼吸、饮水、饮食、风景

人类利用环境资源行为的分类/Classification of human behavior on environment and resource utilization 类别 Category 本能利用行为 /Instinctive Utilization 开发/排放利用行为Environmental Factors/ Capacities Utilization 主体/ Subject 自然人 /Natural person 企业事业单位等/ Enterprises and other units 目的/ Aim 生存繁衍/ Survive and multiply 排放污染物占用环境容量 /Discharge pollutants and occupy environmental capacities 开发自然资源获取经济价值/ Exploit natural resources for economic value 动机/Motivation 被动利用、适可而止/ Passively use, without over-use 主动占用与获取、多多益善 /Actively occupy and possess, the more the better 权利来源 /Source of right 生存权/ Right to survive 发展权/Right to develop 性质/ Nature 利用自然产品与环境效益/ Utilize natural products and environmental benefits 占用环境容量/Occupy environmental capacities 减少自然要素/Reduce natural factors 生态影响/Ecological Impact 对生态系统不产生大的不利影响/No significant adverse impact 产生不利于生态系统稳定的环境污染，自然破坏现象/Generate pollutions and damages harmful to the balance of ecological system

公众、政府与企业：环境利用关系中的地位/ Public, governments and enterprises: status in environmental utilizing relations Relations between the government and the public Elections by representatives of the people and legitimate development decisions Improvement of public welfare and maintenance of environmental quality Protection of citizens to achieve their appeals Relations between the enterprises and the public Sharing environmental and resource protection interests Competitive relation with the shift in interests 政府与公众之间 民意代表选举与正当开发决策 提高公共福祉、维护环境品质 保障公民诉愿实现 公众与企业之间 环境与资源保护利益的分享者 此生彼长的利益竞争

公有制下的政府与企业之间 赋权资源利用与衡平环境利益 特许；许可； 公开信息、听取公众意见 公众与企业环境利用规则 监管 标准 市场 环境/资源产权、价值 交易 Relations between the enterprises and the government under a public ownership system Authorizing resource utilization and balancing environmental interests Special licences and permissions Open information and solicit public opinions Utilization plans for the public and enterprises Supervision Environmental standards Market Property rights and value of environment/ resources Transactions

通过公众参与实现绿色发展的法律途径/ Legal Method to achieve green development through public participation 1.Basic participation rights in environmental decisions must be established Rights to access environmental information Responsibility of enterprises and governments to disclose environmental information Rights to make comments Protect proper legal procedure—governments’ obligation of consultation, investigation, instructions, holding hearings and other obligations Rights to get comments respected Protect proper legal procedure—governments’ obligation of Accepting and dealing with reports Explaining why comments are not accepted Rights to get legal remedy Rights to apply for administrative reconsiderations and file lawsuits Qualification to file environmental public interest lawsuits 1.必须确立公众参与环境决策的基本权能 知悉信息的权利 企业、政府环境信息公开义务 建言（谏言）的权利 正当法律程序保障一——开发决策机制中的咨询、调查、说明与听证等义务 建言被（得到）尊重的权利 正当法律程序保障二—— 接受举报的查处义务 意见不采纳的说明义务 获得司法救济的权利 不服行政决定的复议权与诉讼权 环境公益诉讼的主体资格

2.必须确立公众参与环境决策的法律程序 3.扩大环境公益诉讼的主体范围 经济发展与环境资源保护利用的法律法规，应当明确规定公众如何参与开发与环境决策的途径、方法 3.扩大环境公益诉讼的主体范围 建议《环境保护法》修订草案再扩大环境公益诉讼的主体范围，从现在的全国性环保团体扩大到至少省一级环保团体，取消“信誉良好”条件的限制 2.Legal procedure to get public involved in environmental decision making Laws and regulations on economic development and environmental and resource protection or utilization should clearly stipulate public’s access to participate in environmental decision making 3. Expand qualification to file public interest litigation Suggest that the Environmental Protection Law expand qualification to file public interest litigation Enable provincial environmental organizations to file public interest litigations, and cancel the limit of “with good reputation”

小结/ Conclusion

Thanks a lot and look forward to your comments！ 完 谢谢大家，欢迎交流与讨论！ Thanks a lot and look forward to your comments！ wangjin_law@pku.edu.cn 11