Introduction to Underlying Concepts of Environmental Justice

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1 Introduction to Underlying Concepts of Environmental Justice
Environmental Governance Programme EU-China 2nd EGP Training Course Training on Environmental Justice Yunnan Dianchi Garden Resort Hotel, Kunming 25 & 26 October 2012 Introduction to Underlying Concepts of Environmental Justice by Philippe Bergeron (Dr.-Ing.) Environmental Governance Expert 2nd EGP Training Course / 10/ 2012

2 环境司法中的重要概念 环境司法培训班 云南滇池温泉花园国际大酒店 2012年10月25-26日 中欧环境治理项目 第二次培训
菲利普·贝士荣博士 环境治理专家 2nd EGP Training Course / 10/ 2012

3 Overview Definition Obligation under Aarhus Principles and Rights
Legal Mechanisms and Areas of Environmental Law Jurisdictional Issues Pre-Trials and Trials Approaches Damages & Remedies Sanctions and Penalties 2nd EGP Training Course / 10/ 2012

4 大纲 定义 奥胡斯公约规定的义务 原则与权利 法律机制及环境法各领域 环境司法问题 初审与审讯 环境污染损害与修复 制裁与罚款
2nd EGP Training Course / 10/ 2012

5 Definition Article 9, Paragraph 1: Aarhus Convention
“”Each Party shall, within the framework of its national legislation, ensure that any person who considers that his or her request for information under article 4 (access to information) has been ignored, wrongfully refused, whether in part or in full, inadequately answered, or otherwise not dealt with in accordance with the provisions of that article, has access to a review procedure before a court of law or another independent and impartial body established by law.”” Article 9, Paragraph 1: Aarhus Convention 2nd EGP Training Course / 10/ 2012

6 定义 “每个缔约方应在国家立法的框架内确保，任何人，凡认为自己按照第四条（信息公开条例）所提索取信息的请求被忽视、部分或全部被不当驳回、未得到充分答复或未得到该条所规定的处理，都能够得到法庭或依法设立的另一个独立公正的机构的复审” 奥胡斯公约第九条，第一款 2nd EGP Training Course / 10/ 2012

7 Definition Article 9, Paragraph 2: Aarhus Convention
Each Party shall, within the framework of its national legislation, ensure that members of the public concerned (a) Having a sufficient interest, or, alternatively, (b) Maintaining impairment of a right, (…) have access to a review procedure before a court of law and/or another independent and impartial body established by law, to challenge the substantive and procedural legality of any decision, act or omission subject to the provisions of article 6 (public participation in environmental decision) Article 9, Paragraph 2: Aarhus Convention 2nd EGP Training Course / 10/ 2012

8 定义 “每个缔约方应在国家立法的框架内确保（a）具有充分利益的所涉公众，或（b）被认定为某项权利受到损害的所涉公众，能够求助于法庭和/或依法设立的另一个独立公正的机构的复审程序，以便就第六条（公共参与环境决策）规定范围内的任何决定、作为或不作为，在实质和程序上的合法性作出质疑。” 奥胡斯公约第九条，第二款 2nd EGP Training Course / 10/ 2012

9 Definition (USEPA) “fair treatment and meaningful involvement of all people regardless of race, color, national origin, or income with respect to the development, implementation, and enforcement of environmental laws, regulations, and policies” Executive Order : Federal Actions to Address Environmental Justice in Minority Populations and Low-Income Populations 2nd EGP Training Course / 10/ 2012

10 定义（美国国家环保局） “在制定、实施、执行环境法律、规章与政策时，确保人人享受公正的待遇并且能 够有意义地参与、不论种族、肤色、原国籍或收入水平。” 行政指令12.898: 联邦政府少数民族及低收入人群聚居区推行环境司法公正行动令 2nd EGP Training Course / 10/ 2012

11 Definition (USEPA) (2) Fair Treatment means:
No group of people should bear a disproportionate burden of environmental harms and risks, including those resulting from the negative environmental consequences of industrial, governmental, and commercial operations or programs and policies. Meaningful Involvement means: Potentially affected community members have an appropriate opportunity to participate in decisions about a proposed activity that will affect their environment and/or health; The public’s contribution can influence the regulatory agency’s decision; The concerns of all participants involved will be considered in the decision-making process; & The decision-makers seek out and facilitate the involvement of those potentially affected. 2nd EGP Training Course / 10/ 2012

12 定义(美国国家环保局) (2) 公正待遇指： 有意义地参与指：
任何一个社会群组都不应当不合比例地承受工业、市政或商业活动、规划与政策所产生的不良环境影响 有意义地参与指： 可能受到环境影响的居民有适当机会参与决定对其生存环境或健康有影响的活动计划 公众意见能够影响监管部门的决定 决策程序尊重所有参与者的意见 决策者主动征求可能受影响者的意见并促进其参与 2nd EGP Training Course / 10/ 2012

13 Obligations under the Convention (1)
Obligation art. 9, § 1: Provides review procedures relating to information requests Implementation Elements: Judicial or other independent and impartial review Additional expeditious and inexpensive reconsideration or review procedure Standing requirements Binding final decisions Reasons for decision in writing 2nd EGP Training Course / 10/ 2012

14 奥胡斯公约中的义务(1) 第九条第一款义务: 针对任何索取信息公开的请求，可以开展复审程序 义务履行要素:
复审需来自司法或其他独立公正的机构 应保证复审程序快速且不昂贵 起诉要求 最终决策具有约束性 书写决策原因 2nd EGP Training Course / 10/ 2012

15 Obligations under the Convention (2)
Obligation art. 9, § 2: Provides review procedures relating to public participation Implementation Elements: Judicial or other independent and impartial review Possibility for preliminary administrative review procedure Standing requirements 2nd EGP Training Course / 10/ 2012

16 奥胡斯公约中的义务(2) 第九条第二款义务:针对公众参与的请求，可以开展复审程序 义务履行要素: 复审需来自司法或其他独立公正的机构
保证初步行政复审的可能性 起诉要求 2nd EGP Training Course / 10/ 2012

17 Obligations under the Convention (3)
Obligation art. 9, § 3: Provides review procedures for public review of acts and omissions of private persons or public authorities concerning national law relating to the environment. Implementation Elements: Administrative review procedures Judicial review procedures 2nd EGP Training Course / 10/ 2012

18 奥胡斯公约中的义务(3) 第九条第三款中的义务：确保公众能够对违反国家环境相关法律规定的个人或公共当局之作为或不作为，提出复审要求
履行义务要素： 可诉诸行政程序 可诉诸司法程序 2nd EGP Training Course / 10/ 2012

19 Obligations under the Convention (4)
Obligation art. 9, § 4: Minimum standards applicable to access-to-justice procedures, decisions and remedies. Implementation Elements: Adequate and effective remedies, including injunctive relief Fairness Equity Timeliness Not prohibitively expensive Record decisions in writing Publicly accessible decisions 2nd EGP Training Course / 10/ 2012

20 奥胡斯公约中的义务(4) 第九条第四款中的义务：最低标准适用于诉诸司法、决策制定及补救措施 履行义务要素：
提供充分和有效的补救措施，酌情考虑强制救济 公正 平等 及时 费用不过于昂贵 裁决过程应以书面记录 裁决应予以公布 2nd EGP Training Course / 10/ 2012

21 Obligations under the Convention (5)
Obligation art. 9, § 5: Requires Parties to facilitate effective access to justice Implementation Elements: Information on access to administrative and judicial review procedures Appropriate assistance mechanisms to remove or reduce financial and other barriers to access to justice 2nd EGP Training Course / 10/ 2012

22 奥胡斯公约义务(5) 第九条第五款中的义务: 要求各缔约方协助，以实现诉诸司法渠道畅通 履行义务要素：
为公众提供诉诸行政复审程序和司法复审程序的信息 建立适当的协助机制，以消除或减少在诉诸司法方面的经济障碍和其他障碍 2nd EGP Training Course / 10/ 2012

23 Sources of Environmental Law
National Laws Constitutional Law Environmental Legislation Administrative Regulation Tort & Civil Liability Law Criminal Liability Law Industrial Standards and Code of Conduct International Laws Convention or Treaty Custom General principles of Law Non bindings International Instruments 2nd EGP Training Course / 10/ 2012

24 环境相关法律来源 国家级别法律 宪法 环境法 行政法规 民事侵权法&民事责任法Tort & Civil Liability Law
刑事责任法 行业标准及行为规范法 国际法 公约或条约 国际惯例 一般法律原则 不具法律约束力的国际契约 2nd EGP Training Course / 10/ 2012

25 Basic Principles of Environmental Law
Sustainability Principle Polluter Pays Principle Precautionary Principle Equity Principle Human Rights Principle Participation Principle 2nd EGP Training Course / 10/ 2012

26 环境法基本原则 可持续发展原则 污染者治理原则 预防原则 平等原则 人权原则 参与原则
2nd EGP Training Course / 10/ 2012

27 Basic Rights of Environmental law
Access to Information Public Participation Access to Justice Environmental Quality 2nd EGP Training Course / 10/ 2012

28 环境法中的基本权利 信息公开权利 公共参与权利 诉诸司法权利 环境质量权利
2nd EGP Training Course / 10/ 2012

29 Common Legal Mechanisms and EU Directives
Prohibiting or restricting activities and substances Hazardous products, processes or activities (COMAH, IE, REACH) Use of biological resources (HABITAT, BIRDS) Product and Process Standards Process Standards (IE, BAT, BREF) Product Standards (WEEE) Emission Standards (ELV, GBR, CAFE) Ambient Quality Standards (CAFÉ, WF, DW) Prior Licensing & Permits (IE, COMAH) Prior Informed Consent (PIC) Environmental Impact Assessment (EIA, SEA) Land Use Regulation (COMAH) 2nd EGP Training Course / 10/ 2012

30 常见法律机制与欧盟指令 禁止或限制某项活动或物质类
危险物品、过程或活动 （重大事故危险控制条例、工业排放指令、化学品注册、评估、许可和限制指令） 自然资源使用（自然生境指令、野生鸟类指令） 产品及过程标准类 过程标准（工业排放指令、最佳可行技术指令及其指南） 产品标准(报废电子电气设备指令) 排放标准 (报废汽车指令、 GBR、 欧洲清洁空气指令) 环境质量标准 (欧洲清洁空气指令、水框架指令 、DW) 3) 准入许可类 (重大事故危险控制条例、工业排放指令) 4) 事先知情同意类 (事先知情同意指令) 5) 环境影响评估类（环评指令、战略环境评估指令） 6) 土地使用条例 (重大事故危险控制条例) 2nd EGP Training Course / 10/ 2012

31 Areas of Environmental Law; - Water -
Freshwater Water rights Water regulation Water as public resources or commodity Water resources management Access to water resources Trans-boundary water resources Marine Ecosystem Marine pollution (vessels, waste dumping, exploration, land based pollution) Protection of marine living resources (fisheries, marine species conservation) 2nd EGP Training Course / 10/ 2012

32 环境法各领域; - 水资源 - 淡水资源 水资源权利 水资源法规 水资源作为公共资源或公共商品 水资源管理 水资源获取 跨域水资源
环境法各领域; - 水资源 - 淡水资源 水资源权利 水资源法规 水资源作为公共资源或公共商品 水资源管理 水资源获取 跨域水资源 海洋生态系统 海洋污染（海洋船只、废弃物排放、开发、陆地源污染） 保护海洋生物资源（渔业、海洋物种保护） 2nd EGP Training Course / 10/ 2012

33 Areas of Environmental Law; - Air -
Air pollution emissions and imissions (in particular SO2 ,NOx, O3, PM, heavy metals, POPs) Stratospheric Ozone depletion (CFCs) Global Climate Change (Greenhouse gases: CO2, CH4, NO, CFCs) 2nd EGP Training Course / 10/ 2012

34 环境法各领域; - 空气 - 空气污染排放（尤其是二氧化硫、氮氧化物、抽样、可吸入颗粒物、重金属及持久性有机污染物的排放）
环境法各领域; - 空气 - 空气污染排放（尤其是二氧化硫、氮氧化物、抽样、可吸入颗粒物、重金属及持久性有机污染物的排放） 平流层臭氧消耗 (氯氟烃) 国际气候变化(温室气体: 二氧化碳、甲烷、一氧化氮、氯氟烃) 2nd EGP Training Course / 10/ 2012

35 Areas of Environmental Law; - Anthropogenic -
Solid Waste Hazardous Substances (Chemicals) Noise Transportation Tourism 2nd EGP Training Course / 10/ 2012

36 环境法各领域; - 人为污染 - 固体废弃物 危险物（化学品） 噪声 交通 旅游业
环境法各领域; - 人为污染 - 固体废弃物 危险物（化学品） 噪声 交通 旅游业 2nd EGP Training Course / 10/ 2012

37 Areas of Environmental Law; - Nature Protection -
Soil (pollution, contamination, desertification) Biological Diversity (ecosystem, species, subspecies) Migratory Species Trade in Endangered Species Habitat Protection (including wetlands) birds Bio-Technology and GMOs Agriculture and Forests Cultural and Natural Heritage 2nd EGP Training Course / 10/ 2012

38 环境法各领域; - 自然保护 - 土地 （污染、中毒、荒漠化） 生物多样性（生态系统、物种、亚种群） 迁徙物种 濒危物种贸易
环境法各领域; - 自然保护 - 土地 （污染、中毒、荒漠化） 生物多样性（生态系统、物种、亚种群） 迁徙物种 濒危物种贸易 栖息地保护（包括湿地系统） 鸟类保护 生命科学与转基因生物 农业与森林 自然遗产、文化遗产 2nd EGP Training Course / 10/ 2012

39 EU Criminalization of Environmental Offences
Directive 2008/99/EC: protection of the environment through criminal law The discharge, emission or introduction of a quantity of materials or ionising radiation into air, soil or water ….. likely to cause serious injury.. The collection, transport, recovery or disposal of waste, including the supervision of such operations and the aftercare of disposal sites, …. likely to cause serious injury.. The illegal shipment of waste in significant quantities.. The production, processing, handling, use, holding, storage, transport, import, export or disposal of nuclear materials or other hazardous radioactive substances ….. likely to cause serious injury.. 2nd EGP Training Course / 10/ 2012

40 欧盟构成刑事定罪的 环境犯罪 欧盟委员会指令2008/99/EC: 刑法保护环境
向空气、土壤或水资源中…排放、泄露或流入一定量可能造 成严重伤害的…物质或电离辐射者 从事可能造成严重伤害的…垃圾收集、运输、回收或清理过 程者…，受法律制裁的还包括这一过程的监管及废弃物处理点 的善后安置工作者 从事大规模非法垃圾货运者 从事可能造成严重伤害的…核物质或其他危险放射性物质的 生产、加工、处理、使用、持有、存储、运输、进口、出口及 清理过程者 2nd EGP Training Course / 10/ 2012

41 EU Criminalization of Environmental Offences
Directive 2008/99/EC: Protection of the Environment through Criminal Law (e) The the killing, destruction, possession or taking of specimens of protected wild fauna or flora species; The Trading in specimens of protected wild fauna or flora species or parts or derivatives; (g) Any conduct which causes the significant deterioration of a habitat within a protected site; The production, importation, exportation, placing on the market or use of ozone-depleting substances 2nd EGP Training Course / 10/ 2012

42 欧盟委员会指令Directive 2008/99/EC: 刑法保护环境
欧盟构成刑事定罪的 环境犯罪 欧盟委员会指令Directive 2008/99/EC: 刑法保护环境 (e) 对受保护野生动植物物种进行杀戮、破坏、占有或采集标本 者 从事受保护野生动植物物种的标本、器官、或衍生物品贸易 者 (g) 任何造成保护区内栖息地严重退化的行为 生产、进口、出口、投入市场或使用任何臭氧消耗物者 2nd EGP Training Course / 10/ 2012

43 Jurisdiction Issues Locus Standi (plaintiff to have sufficient interest or stake in the outcome of the case brought to a defendant) Individual & groups Enforcement of statutes Public interest standing Subject Matter Jurisdiction Timeliness Forum non conveniens 2nd EGP Training Course / 10/ 2012

44 司法相关问题 诉讼资格 (原告在起诉被告案件中有充分相关利益） 个人&集体 执行法规 公益诉讼的资格 对事管辖权 及时性 不方便法院原则
2nd EGP Training Course / 10/ 2012

45 Pre-Trial Approaches Dispute Settlement Negotiation Compromise
Alternative Dispute Resolution Mediation Arbitrator Case management Provisional or interim remedial measures 2nd EGP Training Course / 10/ 2012

46 预审方法 解决纠纷 协商 妥协 其他纠纷解决方案 调停 仲裁 个案管理 临时性或过渡性补救措施
2nd EGP Training Course / 10/ 2012

47 Trials issues Rules of procedures Evidentiary proof Burden of proof
Standards of proof Scientific uncertainty (cause to effect) Choice of Law 2nd EGP Training Course / 10/ 2012

48 审判相关问题 规则流程 证据证明 举证责任 证明标准 科学不确定性 (生效条件) 适用法律选择
2nd EGP Training Course / 10/ 2012

49 Remedies & Enforcement
1. Injunctive relief to halt the harmful activity; 2. Damages to compensate for harm suffered; 3. Orders of restitution or remediation; 4. Sanctions to punish the wrongdoer and to deter future violations; & 5. Awards of costs and fees 2nd EGP Training Course / 10/ 2012

50 补救措施及执法 1. 强制救济以中止伤害行为; 2. 补偿受害方所受损害; 3. 下达赔偿或补救命令
1. 强制救济以中止伤害行为; 2. 补偿受害方所受损害; 3. 下达赔偿或补救命令 4. 对违法犯罪方实施制裁处罚，并威慑日后 类似违法行为 5. 赔偿费与诉讼费 2nd EGP Training Course / 10/ 2012

51 Damages Property Damages Loss of values Lost profits
Other economic costs (rental, celan-up, repair, etc.) Personal Injury Damages Injury Disease Increased risks of disease Emotional distress Fear of contracting disease Medical monitoring for early detection 2nd EGP Training Course / 10/ 2012

52 损失 财产损失 价值损失 利益损失 其他经济损失（租用、清理、修复费用等） 个人伤害损失 受伤 疾病 感染疾病几率增加 精神紧张
感染疾病恐慌 医疗监控与早期检测 2nd EGP Training Course / 10/ 2012

53 Restitution and Remediation
Restoring the pre-injury state Restoring an healthy eco-system Fair market value of property 2nd EGP Training Course / 10/ 2012

54 赔偿与补救 恢复至损害前水准 恢复至健康的生态系统 财产的正当市值
2nd EGP Training Course / 10/ 2012

55 Sanctions Types of Sanctions in EU Guidelines for Sanctions
Financial Sanctions & Penalties Community Services for Environment Imprisonment (very seldom) Confiscation of property or profits Remediation works Disqualification as director of company Guidelines for Sanctions Seriousness of offence Ability to pay Economic gain Polluter pays Abatement costs 2nd EGP Training Course / 10/ 2012

56 制裁 欧盟制裁处罚方法 处罚原则 经济制裁与罚款 参与环境社区服务 入狱服刑(极少数) 没收财产或利润 开展补救工作 免除公司领导职位
犯罪严重程度 接受惩罚能力 经济所得 污染者付费原则 污染治理成本 2nd EGP Training Course / 10/ 2012

57 Penalties General Rules for Environmental Financial Penalties in EU
Aim to deter future non-compliance; Aim to eliminate any financial gain or benefit from non-compliance; Be proportionate to the nature of the offence and the harm caused; & Be responsive and consider what is appropriate for the particular offender and regulatory issue. 2nd EGP Training Course / 10/ 2012

58 罚款 欧盟环境违法罚金一般规定 以威慑未来违法者为目的； 以清除违法者所有不义之财及既得利益为目的；
同其违法行为对自然造成的污染损害成正比； 可具备灵活性，根据具体犯罪行为及法律法规制定 2nd EGP Training Course / 10/ 2012

59 Penalties Factors Affecting the Probability of Offence and therefore the Penalty The size of the harm: less harmful violations have a smaller likelihood of detection; Whether a violator is subject to mandatory self- reporting; The ratio of facilities to inspectors in a jurisdiction; The violator‟s compliance history, possibly making him subject to increased scrutiny. 2nd EGP Training Course / 10/ 2012

60 罚款 影响定罪及罚金严重程度的因素 造成损害的规模：规模越小，被定罪的可能性越小； 违法者是否自首报案; 审判过程中陪审员意见比例;
违法者犯罪记录，可能引发违法者接受深入调查 2nd EGP Training Course / 10/ 2012

61 Penalties Importance of Fairness, Consistency and Flexibility of Fines based on: Degree of wilfulness and/or negligence of the offender; History of non-compliance; Ability to pay; Degree of cooperation/non-cooperation with the enforcement agency; & Other unique factors specific to the violator or the case. 2nd EGP Training Course / 10/ 2012

62 罚金 罚金的公平性、一致性和灵活性基于以下因素： 违法者犯罪意愿/过失犯罪程度; 犯罪历史; 缴纳罚金经济能力; 合作意愿/不配合执法机构
其他具体案件或违法者相关的特殊因素 2nd EGP Training Course / 10/ 2012

63 Thanks for Attention Questions ??
2nd EGP Training Course / 10/ 2012

64 谢谢 欢迎提问！ 2nd EGP Training Course / 10/ 2012