朱坦，

田麗麗

ZhuTan，Tian

Lili南開大學(xué)環(huán)境科學(xué)與工程學(xué)院

CollegeofenvironmentalscienceandengineeringNankaiUniv.我國(guó)戰(zhàn)略環(huán)境評(píng)價(jià)的特點(diǎn)、挑戰(zhàn)與機(jī)遇

——《環(huán)境影響評(píng)價(jià)法》頒布五年后的思考

Characteristics,ChallengesandOpportunitiesofSEAinChina

-------ThethinkingwhentheEnvironmentalImpactAssessmentLawofChinahasbeenpromulgatedforfiveyears

戰(zhàn)略環(huán)境評(píng)價(jià)(Strategicenvironmentalassessment,SEA)是環(huán)境影響評(píng)價(jià)在政策、計(jì)劃和規(guī)劃層面的應(yīng)用。實(shí)踐表明，SEA是確保環(huán)境因素在決策過(guò)程中得到充分考慮的有效手段，是使可持續(xù)發(fā)展戰(zhàn)略從概念到實(shí)踐的重要工具，已經(jīng)受到越來(lái)越多國(guó)家的重視。

Strategicenvironmentalassessment(SEA)istheapplicationoftheenvironmentalimpactassessmentinthelevelofpolicies,plansandprograms.Thepracticeshowsthatasanimportanttoolwhichisaimingtotaketheenvironmentalfactorsintoconsiderationindecision-makingprocessandputthetheoryofsustainabledevelopmentintopractice,SEAhasbeenplacedgreatemphasisbymoreandmorecountries.我國(guó)SEA仍處于不斷發(fā)展的階段，還有很多值得去開拓的領(lǐng)域和研究的問(wèn)題，譬如當(dāng)前我國(guó)規(guī)劃環(huán)境影響評(píng)價(jià)的法定評(píng)價(jià)對(duì)象中還沒(méi)有包含國(guó)民經(jīng)濟(jì)和社會(huì)發(fā)展規(guī)劃，政策SEA的實(shí)施模式更是一個(gè)嶄新的課題。

Inourcountry,SEAisinthedevelopingstage.Lotsoffieldsandproblemsareworthyopeningupandstudying.Forexample,currently,thestatutoryassessmenttargetsof

planning

environmentalimpactassessmentinourcountryhavenotcontainedthenationaleconomicandsocialdevelopment

plan.TheoperationalmodeofSEAinpolicyisabrand-newsubject.

2006年初國(guó)務(wù)院發(fā)布了《關(guān)于落實(shí)科學(xué)發(fā)展觀加強(qiáng)環(huán)境保護(hù)的決定》：“必須依照國(guó)家規(guī)定對(duì)各類開發(fā)建設(shè)規(guī)劃進(jìn)行環(huán)境影響評(píng)價(jià)。對(duì)環(huán)境有重大影響的決策，應(yīng)當(dāng)進(jìn)行環(huán)境影響論證?！?/p>

Earlyin2006,StateCouncilpromulgated《DecisiononImplementingtheScientificConceptofDevelopmentandSteppingupEnvironmentalProtection》：”Inaccordancewithstateregulations，theenvironmentalimpactassessmentsofvariousconstructionplansmustbecarriedout.Thedemonstrationmeetingsshouldbeheldwiththedecisionwhichhaveasignificantimpactonenvironment.”

周生賢局長(zhǎng)在《嚴(yán)格執(zhí)行環(huán)評(píng)制度全力推進(jìn)歷史性轉(zhuǎn)變》指出：“要著力加強(qiáng)規(guī)劃環(huán)評(píng)和決策環(huán)境影響評(píng)價(jià)能力建設(shè)，積極研究探索評(píng)價(jià)、評(píng)估的模式和方法，在創(chuàng)新中贏得聲譽(yù)，在工作中贏得主動(dòng)?！睂?duì)我們環(huán)評(píng)工作者來(lái)說(shuō)是一項(xiàng)巨大的挑戰(zhàn)，同時(shí)也是推進(jìn)政策SEA工作的一個(gè)新的契機(jī)。

ThedirectorofStateEnvironmentalProtectionAdministrationZhouShengxianpointedoutintheessayofStrictlyImplementingtheEIASystemtoPromoteHistoricalChanges:“Wemustfocusonstrengtheningthecapacityofplanenvironmentalimpactassessment,aswellasindecision-making.Weshouldactivelyexplorenewevaluationandassessmentmodesandmethods.Onlythroughthesewayscanwewinthereputationininnovationandgaintheinitiationinwork.”AsaEIApractitioner,it’sanbigchallengeaswellasanopportunitytopromotethedevelopmentofstrategicenvironmentalassessmentinpolicies.一、我國(guó)戰(zhàn)略環(huán)境評(píng)價(jià)的特點(diǎn)

CharacteristicsofSEAinChina以環(huán)境影響評(píng)價(jià)單行法確立SEA制度

EstablishingtheSEAsystembytheEIALaw2.從區(qū)域環(huán)評(píng)起步，經(jīng)歷區(qū)域環(huán)評(píng)和規(guī)劃環(huán)評(píng)兩個(gè)階段

StartingfromregionalEIAwith2steps:regionalEIA&PlanEIA3.公眾參與具有法律保障

Publicparticipationhaslegalprotection

4.建立了環(huán)境影響報(bào)告書審查制度

Thereviewsystemoftheenvironmentalimpactreporthasbeenestablished5.政府部門在推動(dòng)SEA能力建設(shè)方面發(fā)揮重要導(dǎo)向作用

GovernmentdepartmentsplayanimportantroleinguidingtopromotethecapacityofSEA

一、我國(guó)戰(zhàn)略環(huán)境評(píng)價(jià)的特點(diǎn)

CharacteristicsofSEAinChina

以環(huán)境影響評(píng)價(jià)單行法確立SEA制度

EstablishingtheSEAsystembyEIALaw環(huán)境影響評(píng)價(jià)制度在性質(zhì)上主要具有行政程序法的特點(diǎn)，是《中華人民共和國(guó)環(huán)境保護(hù)法》和各單項(xiàng)環(huán)境保護(hù)法律所容納不了的，同時(shí)評(píng)價(jià)范圍由建設(shè)項(xiàng)目擴(kuò)展到一些規(guī)劃，僅靠修改當(dāng)時(shí)的相關(guān)法律和法規(guī)也是不夠的，在我國(guó)制定一部完整的環(huán)境影響評(píng)價(jià)法非常必要。

TheEIAsystemhasthecharacteristicoftheadministrativeprocedurelaw,whichcannotbecontainedinEnvironmentalProtectionLawofthePeople'sRepublicofChinaandotherindividualenvironmentalprotectionregulations.Meanwhile,justrevisingtherelevantlawsorregulationsisn’tenoughforthesituationthattherangeoftheenvironmentalassessmenthasbeenexpandingfromconstructionprojectstosomeplans.Soit’sreallynecessarytomakeacomprehensivelawofenvironmentalimpactassessmentinChina.

2002年通過(guò)的《環(huán)評(píng)法》不僅提高了環(huán)境影響評(píng)價(jià)的法律地位，還以法律的形式確立了我國(guó)的SEA制度，規(guī)定“一地三域”綜合性規(guī)劃以及十個(gè)專項(xiàng)規(guī)劃需要開展環(huán)境影響評(píng)價(jià)，范圍囊括了我國(guó)大部分與經(jīng)濟(jì)發(fā)展、資源開發(fā)利用有關(guān)的規(guī)劃。

TheEIALawofChinawhichwaspassedin2002improvesthelegalstatusofEIA.Furthermore,theEIAsystemwasestablishedbytheformoflaw.Thereareclearlegalprovisionsthattheenvironmentalimpactassessmentmustbeconductedontheplansof“onelandandthreeareas”and”tenspecial”whichincludemostof

plansrelatedtotheeconomicdevelopmentandutilizationofresource.1以環(huán)境影響評(píng)價(jià)單行法確立SEA制度

EstablishingtheSEAsystembyEIALaw中華人民共和國(guó)環(huán)境影響評(píng)價(jià)法第一章總則第二章規(guī)劃的環(huán)境影響評(píng)價(jià)第三章建設(shè)項(xiàng)目的環(huán)境影響評(píng)價(jià)第四章法律責(zé)任第五章附則EnvironmentalImpactAssessmentLawofPeople’sRepublic

ofChinaChapterⅠGeneralprinciplesChapterⅡEIAofPlansChapterⅢEIAfordevelopmentconstructionprojectsChapterⅣLegalliabilityChapterⅤSupplementaryprovisions

規(guī)劃環(huán)境影響評(píng)價(jià)的范圍

ThescopeofPEIA:

國(guó)務(wù)院有關(guān)部門、設(shè)區(qū)的市級(jí)以上人民政府及其有關(guān)部門編制的“一地三域”綜合性規(guī)劃和“十種專項(xiàng)”規(guī)劃

根據(jù)《環(huán)評(píng)法》AccordingtoEnvironmentalImpactAssessmentLawofChina:

The“onelandandthreeareas”plansand“tenspecial”

planswhichareworkedoutbytherelevantdepartmentsoftheStateCouncil,citygovernmentsabovecountylevelwithdistrictsandtherelevantdepartments“一地三域”規(guī)劃：土地利用規(guī)劃，區(qū)域、流域、海域的建設(shè)、開發(fā)利用規(guī)劃“onelandandthreeareas”plans:

plansonlanduseandexploration,utilizationanddevelopmentofregions,riverbasinsandcoastalareas“十種專項(xiàng)”規(guī)劃：工業(yè)、農(nóng)業(yè)、畜牧業(yè)、林業(yè)、能源、水利、交通、城市建設(shè)、旅游、自然資源開發(fā)的有關(guān)專項(xiàng)規(guī)劃“tenspecial”plans:

plansconcerningindustry,agriculture,stockbreeding,forestry,energy,watermanagement,transport,civilconstruction,tourismanddevelopmentof

naturalresources規(guī)劃環(huán)境影響評(píng)價(jià)的范圍

ThescopeofPEIA:

1.以環(huán)境影響評(píng)價(jià)單行法確立SEA制度

EstablishingtheSEAsystembyEIALaw

根據(jù)國(guó)外的SEA經(jīng)驗(yàn)，以法律為基礎(chǔ)建立的SEA制度比以行政命令為基礎(chǔ)建立的SEA制度權(quán)威性更高，對(duì)政府和部門的約束力更大。

AccordingtotheSEAexperienceabroad,theSEAsystemwhichisestablishedbythelawasthefoundationhashigherauthoritythanthatbytheexecutiveorderandalsoithasmorebindingforcetothedepartmentandthegovernment.我國(guó)在國(guó)家一級(jí)制定了專門的《環(huán)評(píng)法》，要求國(guó)家及地方政府或部門對(duì)其編制的規(guī)劃開展環(huán)境影響評(píng)價(jià)，這在世界上也不多見。我國(guó)的戰(zhàn)略環(huán)境評(píng)價(jià)制度具有強(qiáng)制性，《環(huán)評(píng)法》是我國(guó)環(huán)境保護(hù)一部具有里程碑意義的法律。

Atthenationallevel,"EnvironmentalImpactAssessmentLawofChina"requiresthestateandlocalgovernmentordepartmenttocarryouttheenvironmentalimpactassessmentofplans.Itisrareintheworld.Ourstrategicenvironmentalassessmentsystemismandatory."EnvironmentalImpactAssessmentLawofChina”isamilestoneintheenvironmentalprotectionofChina.1.以環(huán)境影響評(píng)價(jià)單行法確立SEA制度

EstablishingtheSEAsystembyEIALaw部分國(guó)家和國(guó)際組織SEA制度框架及應(yīng)用范圍

SEASystemFrameworkandRangeofApplicationsInSomeCountriesandInternationalOrganizations國(guó)家/組織Countries/Organizations法律/行政命令Law/ExecutiveOrder應(yīng)用范圍RangeofApplication美國(guó)UnitedStates國(guó)家環(huán)境政策法案（1969）及實(shí)施條例（1978）TheNationalEnvironmentalPolicyAct(1969)andImplementingregulations(1978)對(duì)人類環(huán)境質(zhì)量具有重大影響的立法、政策、計(jì)劃、規(guī)劃Position、Policy、Plan、Programwhichhavegreatinfluenceonhuman-beings加拿大Canada內(nèi)閣指令（1990年，1999年修訂）CabinetDirective(1990,Amendmentin1999)向內(nèi)閣提交的政策、計(jì)劃、規(guī)劃Policy、Plan、Programsubmittedtocabinet歐盟EUSEA指令2001/42/EC，從2004年7月21日起所有歐盟成員國(guó)必須執(zhí)行該指令，取代成員國(guó)原來(lái)的SEA體系或者是對(duì)其進(jìn)行補(bǔ)充。SEADirective2001/42/EC,from2004.7.21allMembersStatesofEUmustfollowthedirective,insteadoforiginalonesorsupplementit規(guī)定范圍內(nèi)的計(jì)劃和規(guī)劃PlanandPrograminprovisionalscope荷蘭NetherlandsEIA法令（1987年，1994、1999年修訂）EIAAct(1987,Amendmentin1994,1999)特定計(jì)劃與規(guī)劃（通過(guò)修訂使之與歐盟SEA指令相一致）Specialplanandprogram(throughamendmenttoconsistwithEUdirective)內(nèi)閣指令（1995年，2002年修訂）CabinetDirective(1995,Amendmentin2002)對(duì)法律法規(guī)的環(huán)境檢驗(yàn)（e-test）Environmentaltesttolaw(e-test)丹麥Denmark總理辦公室行政命令（1993年，1995、1998年修訂）PrimeMinister'sOfficeexecutiveOrder(Amendmentin1993,1995,1998)向議會(huì)提交的立法提案和政府提案Legislativeproposalsandgovernmentproposalstoparliament計(jì)劃、規(guī)劃的環(huán)境評(píng)價(jià)法（2004）EnvironmentalAssessmentActofPlan、Program(2004)計(jì)劃、規(guī)劃Plan、Program部分國(guó)家和國(guó)際組織SEA制度框架及應(yīng)用范圍（續(xù)）

SEASystemFrameworkandRangeofApplicationsInSomeCountriesandInternationalOrganizations（continued）國(guó)家/組織Countries/Organizations法律/行政命令Law/ExecutiveOrder應(yīng)用范圍RangeofApplication部分國(guó)家和國(guó)際組織SEA制度框架及應(yīng)用范圍（續(xù)）SEASystemFrameworkandRangeofApplicationsInSomeCountriesandInternationalOrganizations（continued）國(guó)家/組織Countries/Organizations法律/行政命令

Law/ExecutiveOrder應(yīng)用范圍RangeofApplication英國(guó)England政策評(píng)價(jià)與環(huán)境（1991年，1997年修訂）規(guī)劃和計(jì)劃的環(huán)境評(píng)價(jià)法規(guī)（英格蘭，2004）規(guī)劃和計(jì)劃的環(huán)境評(píng)價(jià)法規(guī)（威爾士，2004）規(guī)劃和計(jì)劃的環(huán)境評(píng)價(jià)法規(guī)（北愛爾蘭，2004）環(huán)境評(píng)價(jià)法令（蘇格蘭，2005）Policyappraisalandtheenvironment(1991,amendmentin1997)EnvironmentalAssessmentActofPlan、Program（England,2004）EnvironmentalAssessmentActofPlan、Program(welsh,2004)EnvironmentalAssessmentActofPlan、Program(NorthIreland,2004)EnvironmentalAssessmentAct(Scotland,2005)政策、計(jì)劃、規(guī)劃Policy、Plan、Program國(guó)家/組織Country/Organizations法律/行政命令Law/ExecutiveOrder應(yīng)用范圍RangeofApplication新西蘭NewZealand資源管理法（1991）Resourcesmanagementlaw(1991)政策、計(jì)劃、規(guī)劃Policy、Plan、Program澳大利亞

Australia環(huán)境保護(hù)和生物多樣性保護(hù)法（1999）EnvironmentalprotectandBiodiversityprotectlaw(1999)政策、計(jì)劃、規(guī)劃Policy、Plan、Program世界銀行TheWorldBank操作指令4.00（1989，1999修訂為操作政策/銀行程序4.01）Operatingdirective4.00(1989,amendmentin1999toOperatingpolicy/bankprocess4.01)部門或區(qū)域戰(zhàn)略行動(dòng)，包括政策、計(jì)劃、規(guī)劃apartmentorareaStrategicAction,includingPolicy、Plan、Program操作政策/銀行程序8.60（2004）Operatingpolicy/bankprocess8.60(2004)借款國(guó)的開發(fā)政策Developmentpolicyoflendingcountries部分國(guó)家和國(guó)際組織SEA制度框架及應(yīng)用范圍（續(xù)）

SEASystemFrameworkandRangeofApplicationsInSomeCountriesandInternationalOrganizations（continued）（4）1990年7月，國(guó)家環(huán)境保護(hù)局在上海召開了“區(qū)域開發(fā)建設(shè)環(huán)境影響評(píng)價(jià)程序與方法研討會(huì)”

InJuly1990,StateEnvironmentalProtectionAdministrationheldasymposiumabouttheEIAofregionaldevelopmentandconstructioninShanghai.（3）1986年3月和1987年6月，中國(guó)環(huán)境學(xué)會(huì)環(huán)境質(zhì)量評(píng)價(jià)專業(yè)委員會(huì)先后在石家莊和北戴河召開了兩次有關(guān)環(huán)境影響評(píng)價(jià)和區(qū)域環(huán)境研究的學(xué)術(shù)討論會(huì)，提出：為了有效地控制區(qū)域性的環(huán)境污染，應(yīng)該把建設(shè)項(xiàng)目環(huán)境影響評(píng)價(jià)與區(qū)域環(huán)境規(guī)劃、區(qū)域環(huán)境影響評(píng)價(jià)結(jié)合起來(lái)進(jìn)行

InMarchof1986andSeptemberof1987,China'sEnvironmentalQualityAssessmentCommitteeofCSESheldtwoacademicsymposiumsonenvironmentalimpactassessmentandregionalenvironmentalstudyinShijiazhuangandBeidaihe,inwhichthecommitteereportedthatitwasnecessarytocombineEIAofconstructionprojectswithregionalenvironmentalplansandassessments.（2）1989年由中國(guó)國(guó)家環(huán)保局和安徽省城鄉(xiāng)建設(shè)環(huán)境保護(hù)廳正式組織的“馬鞍山市區(qū)域環(huán)境影響評(píng)價(jià)”被列為國(guó)家環(huán)保局的“區(qū)域環(huán)境影響評(píng)價(jià)”試點(diǎn)項(xiàng)目。同期進(jìn)行了甘肅省白銀市、福建省湄州灣和云南省開遠(yuǎn)市區(qū)域環(huán)境影響評(píng)價(jià)試點(diǎn)工作

In1989theStateEnvironmentalProtectionAdministration,togetherwithUrbanandRuralAreaConstructionandEnvironmentalProtectionBureauofAnhuiProvince,carriedout“EIAoftheurbanareaofMa’anshan”,whichwaslistedaspilotprogramof“regionalEIA”bySEPA.Atthesametime,pilotprogramsofregionalEIAofBaiyin(Gansu),MeizhouBay(Fujian)andKaiyuan(Yunnan)wereunderoperation.國(guó)內(nèi)（1）20世紀(jì)80年代初期，開展了山西能源開發(fā)和煤化工基地、京津唐地區(qū)發(fā)展和深圳經(jīng)濟(jì)特區(qū)開發(fā)的區(qū)域開發(fā)環(huán)境影響評(píng)價(jià)。但它們并不是獨(dú)立的環(huán)境影響評(píng)價(jià)，而是為區(qū)域環(huán)境規(guī)劃提供環(huán)境質(zhì)量評(píng)估和對(duì)策措施Domestic:Inearly1980s,theregionaldevelopmentenvironmentalimpactassessmentsoftheindustrialbasesofenergyexplorationinShanxiprovince,coalchemicalindustry,Beijing–Tianjin–TangshandistrictandShenzhenspecialeconomiczoneshadbeencarriedout.However,alltheseabovecannotbedefinedasindependentEIAs.Theyprovidedtheenvironmentalqualityassessmentsandsuggestionsfortheregionalenvironmentalplanning.2.從區(qū)域環(huán)評(píng)起步，經(jīng)歷區(qū)域環(huán)評(píng)和規(guī)劃環(huán)評(píng)兩個(gè)階段

StartingfromRegionalEIAwithtwosteps:RegionalEIA&planEIA

80年代初，區(qū)域開發(fā)環(huán)境影響評(píng)價(jià)在美國(guó)引起重視，它們先后進(jìn)行了大西洋沿岸及阿拉斯加灣外大陸架石油及天然氣開發(fā)的環(huán)境評(píng)價(jià)，美國(guó)西部8個(gè)州的區(qū)域能源、資源開發(fā)的環(huán)境影響評(píng)價(jià)，美國(guó)南部陽(yáng)光地帶13個(gè)州環(huán)境開發(fā)的區(qū)域評(píng)價(jià)等

Inearly1980s,theUnitedStatespaidattentiontotheEIAofregionaldevelopment.TheycarriedoutsomeenvironmentalimpactassessmentssuchasEIAofoilandgasexploitationinAtlanticcoastandincontinentalshelfoftheGulfofAlaska,theEIAofregionalenergyandresourcesexploitationandtheEIAofregionaldevelopmentin13SunshineStripsofSouth.國(guó)外日本是開展區(qū)域開發(fā)環(huán)境影響評(píng)價(jià)較早的國(guó)家之一。它將區(qū)域開發(fā)環(huán)境影響評(píng)價(jià)稱為“計(jì)劃評(píng)價(jià)”，即對(duì)區(qū)域開發(fā)計(jì)劃可能產(chǎn)生的環(huán)境影響進(jìn)行預(yù)測(cè)與評(píng)價(jià)。日本開展較多的為濱海工業(yè)區(qū)的環(huán)境影響評(píng)價(jià)Abroad:JapanisoneofthecountrieswhichintroducedEIAintoregionaldevelopmentquiteearly.TheycalledEIAofregionaldevelopmentas“planningassessment”,whichmeansthepredictionandassessmentoftheenvironmentalimpactofregionaldevelopmentplans.ThemostfrequentassessmentswhichhavebeencarriedoutinJapanareEIAsatcoastalindustrialzones.（5）到目前為止，中國(guó)政府批準(zhǔn)的各類開發(fā)區(qū)已達(dá)2000多個(gè)。隨著區(qū)域環(huán)境影響評(píng)價(jià)理論研究的進(jìn)展和評(píng)價(jià)制度的建立，各種區(qū)域開發(fā)的環(huán)境影響評(píng)價(jià)正逐步全面展開

Tillnowthereareover2000developingareassanctionedbyChinesegovernment.WiththedevelopmentoftheoreticalstudyonregionalEIAandtheestablishmentoftheassessmentsystem,EIAofvariouskindsofregionaldevelopmentwillbegraduallyandcomprehensivelycarriedout.2.從區(qū)域環(huán)評(píng)起步，經(jīng)歷區(qū)域環(huán)評(píng)和規(guī)劃環(huán)評(píng)兩個(gè)階段

StartingfromregionalEIAwithtwosteps:regionalEIA&planEIA

區(qū)域環(huán)境影響評(píng)價(jià)是我國(guó)特定的經(jīng)濟(jì)發(fā)展時(shí)期的產(chǎn)物，在我國(guó)還未將規(guī)劃環(huán)境影響評(píng)價(jià)法定化以前，區(qū)域環(huán)評(píng)是由我國(guó)建設(shè)項(xiàng)目環(huán)評(píng)的法律規(guī)定的，但實(shí)際上已經(jīng)體現(xiàn)了SEA的性質(zhì)。

RegionalEIAisthecharacteristicofourowneconomicdevelopment,andbeforethelegislationofPEIA,regionalEIAwascarriedoutaccordingtotheEIALawforconstructionprojects,whichalreadyreflectedacharacterofSEA.

1998年11月頒布的國(guó)務(wù)院令253號(hào)《建設(shè)項(xiàng)目環(huán)境保護(hù)管理?xiàng)l例》第五章第31條明確規(guī)定：流域開發(fā)、開發(fā)區(qū)建設(shè)、城市新區(qū)建設(shè)和舊區(qū)改建等區(qū)域性開發(fā)，編制建設(shè)規(guī)劃時(shí)，應(yīng)當(dāng)進(jìn)行環(huán)境影響評(píng)價(jià)。進(jìn)一步明確區(qū)域環(huán)境影響評(píng)價(jià)的對(duì)象和時(shí)段，為開展區(qū)域環(huán)境影響評(píng)價(jià)提供法律依據(jù)。

RegulationsontheAdministrationofConstructionProjectEnvironmentalProtectionenactsinNovember1998asStateCouncilDecreeNo.253reportelucidatedinArticle31,Chapter5thatenvironmentalimpactassessmentshouldbecarriedoutwhenworkingouttheconstructionplansforregionaldevelopmentsuchriverbasinsexploitation,coastal

construction,newurbandistrictconstructionandoldurbandistrictreconstruction.

1993年，國(guó)家環(huán)保局發(fā)布的《關(guān)于進(jìn)一步做好建設(shè)項(xiàng)目環(huán)境保護(hù)管理工作的幾點(diǎn)意見》第二條規(guī)定：開展區(qū)域環(huán)境影響評(píng)價(jià)，積極主動(dòng)地參與經(jīng)濟(jì)開發(fā)區(qū)綜合決策。對(duì)開展區(qū)域開發(fā)環(huán)境影響評(píng)價(jià)做出明確規(guī)定，但未上升到強(qiáng)制性高度。

OpinionsonFurtheringEnvironmentalImpactAssessmentofConstructionProjectsbySEPAelucidatesinArticle2thatregionalenvironmentalimpactassessmentshouldbecarriedoutandactiveparticipationinintegrated

decision-makingoftheeconomicdevelopmentofthedevelopingareasshouldbeencouraged.Itisclearlydefinedtocarryouttheregionalenvironmentimpactassessment,butitisnotmandatory

2.從區(qū)域環(huán)評(píng)起步，經(jīng)歷區(qū)域環(huán)評(píng)和規(guī)劃環(huán)評(píng)兩個(gè)階段

StartingfromregionalEIAwithtwosteps:regionalEIA&planEIA

2.從區(qū)域環(huán)評(píng)起步，經(jīng)歷區(qū)域環(huán)評(píng)和規(guī)劃環(huán)評(píng)兩個(gè)階段

StartingfromregionalEIAwithtwosteps:regionalEIA&planEIA

2002年，《環(huán)評(píng)法》要求對(duì)規(guī)劃開展環(huán)境影響評(píng)價(jià)，并根據(jù)我國(guó)規(guī)劃的特點(diǎn)，對(duì)不同規(guī)劃提出不同的評(píng)價(jià)方式：綜合性規(guī)劃、指導(dǎo)性專項(xiàng)規(guī)劃需要編制環(huán)境影響篇章或說(shuō)明；非指導(dǎo)性專項(xiàng)規(guī)劃需要編制環(huán)境影響報(bào)告書。我國(guó)規(guī)劃種類、數(shù)量繁多，這種分類管理的評(píng)價(jià)方式適應(yīng)了我國(guó)的國(guó)情，提高了評(píng)價(jià)的工作效率。

In2002,EnvironmentalImpactAssessmentLawofChinacallsforthe

planEIA.Furthermore,itisneededtoworkoutchaptersorexplanationsconcerningenvironmentalimpactsinintegrated

plans

anddirectivespecialplanswhileitisnotneededinthenon-directivespecial

plans

The

plans

inChinaarevariousandplentiful.TheclassificationapproachadaptstotheChina’ssituationandimprovestheefficiencyoftheassessment.

2.從區(qū)域環(huán)評(píng)起步，經(jīng)歷區(qū)域環(huán)評(píng)和規(guī)劃環(huán)評(píng)兩個(gè)階段

StartingfromregionalEIAwithtwosteps:regionalEIA&planEIA

2006年國(guó)家環(huán)保總局《關(guān)于進(jìn)一步做好規(guī)劃環(huán)境影響評(píng)價(jià)工作的通知》（環(huán)辦【2006】109號(hào)文件）中第二條規(guī)定：國(guó)務(wù)院及各省、自治區(qū)、直轄市人民政府批準(zhǔn)設(shè)立的經(jīng)濟(jì)技術(shù)開發(fā)區(qū)、高新技術(shù)產(chǎn)業(yè)開發(fā)區(qū)、保稅區(qū)、旅游度假區(qū)、邊境經(jīng)濟(jì)合作區(qū)以及有關(guān)地方人民政府批準(zhǔn)設(shè)立的各類工業(yè)園區(qū)，其區(qū)域開發(fā)規(guī)劃應(yīng)當(dāng)進(jìn)行環(huán)境影響評(píng)價(jià)，編制環(huán)境影響評(píng)價(jià)報(bào)告書。開發(fā)區(qū)及工業(yè)園區(qū)開發(fā)規(guī)劃的環(huán)境影響報(bào)告書由批準(zhǔn)設(shè)立該開發(fā)區(qū)及工業(yè)園區(qū)人民政府所屬的環(huán)保部門負(fù)責(zé)組織審查。

In“NoticeonFurtheringPlanningEnvironmentalImpactAssessment”bySEPAin2006,regionaldevelopmentPEIAintheeconomicandtechnologicaldevelopmentareas,highandnew-techindustrialdevelopmentareas,bondedzones,touristresortsandeconomiccooperativezonesonborderswhicharesanctionedbyStateCouncil,provinces,autonomiesormunicipalities,togetherwithvariouskindsofindustrialareassanctionedandestablishedbyregionalgovernmentsshouldbecarriedoutandthereportsareneeded.Thereviewofthereportsbelongstotheenvironmentalprotectiondepartmentwhichisattachedtothelocalgovernmentwhoapprovetoestablishthedevelopingareas.區(qū)域環(huán)評(píng)(RegionalEIA)

規(guī)劃環(huán)評(píng)(PlanEIA)相關(guān)法規(guī)和文件Therelevantregulationsanddocuments《關(guān)于進(jìn)一步做好建設(shè)項(xiàng)目環(huán)境保護(hù)管理工作的幾點(diǎn)意見》Severaladviceonfurtheringplanningaboutthemanagementofenvironmentalprotection《建設(shè)項(xiàng)目環(huán)境保護(hù)管理?xiàng)l例》Regulationsontheadministrationofconstructionprojectenvironmentalprotection《中華人民共和國(guó)環(huán)境影響評(píng)價(jià)法》EnvironmentalImpactAssessmentLawofChina執(zhí)行時(shí)間Executiontime1993年1月11日Nov.1,19932003年9月1日Sep.1,2003技術(shù)導(dǎo)則

TechnicalGuideline《開發(fā)區(qū)區(qū)域環(huán)境影響評(píng)價(jià)導(dǎo)則》（HJ/T131-2003）Technicalguidelinesforenvironmentalimpactassessmentofdevelopmentarea(HJ/T131-2003)《規(guī)劃環(huán)境影響評(píng)價(jià)技術(shù)導(dǎo)則》（試行）(HJ/T130-2003)Technicalguidelineforplanenvironmentalimpactassessment(ontrial)(HJ/T130-2003)區(qū)域環(huán)評(píng)與規(guī)劃環(huán)評(píng)RegionalEIA&PlanEIA區(qū)域環(huán)評(píng)(RegionalEIA)

規(guī)劃環(huán)評(píng)(PlanEIA)評(píng)價(jià)任務(wù)

Assessmenttasks不僅分析區(qū)域經(jīng)濟(jì)發(fā)展規(guī)劃中擬開發(fā)活動(dòng)對(duì)環(huán)境影響程度，而且重點(diǎn)論證區(qū)域內(nèi)未來(lái)建設(shè)項(xiàng)目的布局、結(jié)構(gòu)，資源的合理配置，提出對(duì)區(qū)域環(huán)境影響最小的整體優(yōu)化方案和綜合防治對(duì)策，為制定環(huán)境規(guī)劃提供依據(jù)Notonlyanalysistheimpactofregionaleconomicdevelopmentactivitiesonenvironment,butalsothefocusonthelayout,structure,therationalallocationofresourcesofconstructionprojectsdemonstratedinthefuture.Itcanprovideanoveralloptimizationprogramandintegratedcontrolmeasuresthatwillminimizetheenvironmentalimpacttotheregion對(duì)擬議規(guī)劃實(shí)施后可能造成的環(huán)境影響進(jìn)行分析、預(yù)測(cè)和評(píng)估，提出預(yù)防或者減輕不良環(huán)境影響的對(duì)策和措施，實(shí)現(xiàn)環(huán)境與發(fā)展綜合決策Analyzing,predictingandassessingtheimpactsofplansandconstructionprojectsthatmightoccuraftertheyarecarriedoutsoastoproposecountermeasuresforpreventingormitigatingtheunfavorableimpactsandmakingfollow-upmonitoring評(píng)價(jià)對(duì)象

Assessmenttarget流域開發(fā)、開發(fā)區(qū)建設(shè)、城市新區(qū)建設(shè)和舊城改建等區(qū)域性開發(fā)活動(dòng)（評(píng)價(jià)對(duì)象是開發(fā)活動(dòng)）RegionaldevelopmentactivitiesSuchasdrainageareasexploitation,developingareasconstruction,newurbandistrictconstructionandoldurbandistrictreconstruction(Theappraisaltargetisthedevelopmentactivities)區(qū)域、流域、海域的建設(shè)、開發(fā)利用規(guī)劃，以及工業(yè)、農(nóng)業(yè)、畜牧業(yè)、林業(yè)、能源、水利、交通、城市建設(shè)、旅游、自然資源開發(fā)的有關(guān)專項(xiàng)規(guī)劃Plansofconstructions,developmentsandexploitationsofregion,riverbasinsandcoastalareasPlansofindustry,agriculture,animalhusbandry,forestry,energy,waterconservancy,communications,municipalconstruction,tourism,andnaturalresourcesexploitation委托單位Commissionedunits開發(fā)區(qū)管委會(huì)TheManagementCommitteeoftheDevelopmentArea組織編制規(guī)劃的機(jī)關(guān)Theorganwhichdraftthereport區(qū)域環(huán)評(píng)(RegionalEIA)

規(guī)劃環(huán)評(píng)(PlanEIA)3.公眾參與具有法律保障

Publicparticipationhaslegalprotection《環(huán)評(píng)法》明確鼓勵(lì)有關(guān)單位、專家和公眾以適當(dāng)方式參與環(huán)境影響評(píng)價(jià)

《環(huán)評(píng)法》規(guī)定公眾參與的時(shí)間和方式。

EnvironmentalImpactAssessmentLawinChinadefinitelyencouragestherelevantentities,experts,andthegeneralpublictoparticipateinenvironmentalimpactassessmentbyaproperway.EnvironmentalImpactAssessmentLawinChina

prescribesthewaysandthetimeofpublicparticipation

對(duì)于非指導(dǎo)性專項(xiàng)規(guī)劃環(huán)境影響評(píng)價(jià)，專項(xiàng)規(guī)劃的編制機(jī)關(guān)對(duì)可能造成不良環(huán)境影響并直接涉及公眾環(huán)境權(quán)益的規(guī)劃，應(yīng)當(dāng)在該規(guī)劃草案報(bào)送審批前，舉行論證會(huì)、聽證會(huì)，或者采取其他形式，征求有關(guān)單位、專家和公眾對(duì)環(huán)境影響報(bào)告書草案的意見。

----摘自《環(huán)評(píng)法》第十一條第一款

Article11:Publicparticipation.DepartmentswhodraftSpecialPlansthatcouldcausepossibleadverseenvironmentalimpactsanddirectlyaffectpublicinterestsshouldholdahearingorotherapproachestocollecttheopinionsofrelevantorganizations,expertsandthepublicbeforesubmittingtheproposal.3.公眾參與具有法律保障

Publicparticipationhaslegalprotection3.公眾參與具有法律保障

Publicparticipationhaslegalprotection

編制機(jī)關(guān)應(yīng)當(dāng)認(rèn)真考慮有關(guān)單位、專家和公眾對(duì)環(huán)境影響報(bào)告書草案的意見，并應(yīng)當(dāng)在報(bào)送審查的環(huán)境影響報(bào)告書中附具對(duì)意見采納或者不采納的說(shuō)明。

----摘自《環(huán)評(píng)法》第十一條第二款A(yù)rticle11,paragraph2:Thedraftingdepartmentshalltaketheopinionsoftherelevantentities,expertsandthegeneralpublicaboutthedraftreportofenvironmentalimpactsintocarefulconsideration,andshallattacharemarkwhethertheopinionsareadoptedorrefusedtothereportofenvironmentalimpactstobesubmittedforexaminationandapproval.

2006年國(guó)家環(huán)?？偩职l(fā)布《環(huán)境影響評(píng)價(jià)公眾參與暫行辦法》，進(jìn)一步規(guī)范了環(huán)境影響評(píng)價(jià)中的公眾參與。

TheSEPAdecreedRegulationforPublicParticipationintheEnvironmentalImpactAssessmentin2002,whichstandardizethepublicparticipationinEIA.《環(huán)評(píng)法》明確公眾意見的重要性，使公眾意見成為環(huán)境影響報(bào)告書不可缺少的組成部分。

EnvironmentalImpactAssessmentLawinChinaemphasizestheimportanceofthegeneralpublicviewwhichisanundividedpartofthereportofenvironmentalimpacts.3.公眾參與具有法律保障

Publicparticipationhaslegalprotection4.建立了環(huán)境影響報(bào)告書審查制度

EstablishingtheReviewSystemofEnvironmentalImpactReport(EIR)對(duì)專項(xiàng)規(guī)劃草案的環(huán)境影響報(bào)告書要組織審查

Thedraftsofspecial

plans

shouldbereviewed

專項(xiàng)規(guī)劃的編制機(jī)關(guān)在報(bào)批專項(xiàng)規(guī)劃草案時(shí)，應(yīng)當(dāng)將環(huán)境影響報(bào)告書一并附送審批機(jī)關(guān)審查；未附送環(huán)境影響報(bào)告書的，審批機(jī)關(guān)不予審批。

----摘自《環(huán)評(píng)法》第十二條

Article12

SubmissionofEIR.DepartmentswhodraftSpecialPlansshouldsubmittheEIRtogetherwiththedraftoftheplan.ApprovalauthoritywillnotreviewthedraftplansifthereisnoEIR.4.建立了環(huán)境影響報(bào)告書審查制度

EstablishingtheReviewSystemofEnvironmentalImpactReport(EIR)

審查小組要從專業(yè)技術(shù)的角度對(duì)環(huán)境影響報(bào)告書提出審查意見。

Thereviewteamshouldgiveadvicefromprofessionalperspective.設(shè)區(qū)的市級(jí)以上人民政府在審批專項(xiàng)規(guī)劃草案，作出決策前，應(yīng)當(dāng)先由人民政府指定的環(huán)境保護(hù)行政主管部門或者其他部門召集有關(guān)部門代表和專家組成審查小組，對(duì)環(huán)境影響報(bào)告書進(jìn)行審查。審查小組應(yīng)當(dāng)提出書面審查意見。

----摘自《環(huán)評(píng)法》第十三條第一款

Article13:Reviewprocess.BeforetherelevantauthorityapprovesaSpecialPlan,theyshouldappointanEPB5orotherrelevantdepartmenttoorganizeareviewteamwhichconsistsofdepartmentrepresentativesandexperts.ThereviewteamshouldreviewtheEIRoftheSpecialPlanandsubmitawrittenreport.審查意見是決策的重要依據(jù)，審查意見具有重要的法律地位，也促使審批機(jī)關(guān)充分考慮審查意見、慎重決策。

TheconclusionoftheEIRandtheopinionsofreviewareimportantbasisfordecision-making.

4.建立了環(huán)境影響報(bào)告書審查制度

EstablishingtheReviewSystemofEnvironmentalImpactReport(EIR)設(shè)區(qū)的市級(jí)以上人民政府或者省級(jí)以上人民政府有關(guān)部門在審批專項(xiàng)規(guī)劃草案時(shí)，應(yīng)當(dāng)將環(huán)境影響報(bào)告書結(jié)論以及審查意見作為決策的重要依據(jù)。

----摘自《環(huán)評(píng)法》第十四條Article14:Decision-making.Citygovernmentsabovecounty-levelandgovernmentdepartmentsaboveprovincelevelshouldtaketheconclusionofanEIRanditsreviewcommentsasimportantgroundsfordecidingwhetherornottoapprovethedraftSpecialPlans.

在審批中未采納環(huán)境影響報(bào)告書結(jié)論以及審查意見的，應(yīng)當(dāng)作出說(shuō)明，并存檔審查。

IftheconclusionofanEIRanditsreviewcommentsarenotadoptedbytheapprovalauthority,anexplanationshouldbegivenandrecorded.5.政府部門在推動(dòng)SEA能力建設(shè)方面發(fā)揮重要導(dǎo)向作用

GovernmentdepartmentsplayanimportantroleinguidingtopromotethecapacityofSEA

為更好地為規(guī)劃環(huán)境影響評(píng)價(jià)提供技術(shù)支持和人員保障，國(guó)家環(huán)?？偩纸?jīng)過(guò)篩選已先后分四批向社會(huì)公布了300多個(gè)規(guī)劃環(huán)境影響評(píng)價(jià)推薦單位。

InordertodeveloptheprovisionoftechnicalsupportandguaranteeofthestaffforEIA,theSEPAhasbeenproclaimingover300entitiesofplanningEIAbyfourbatches.

2003年國(guó)家環(huán)?？偩职l(fā)布了《規(guī)劃環(huán)境影響評(píng)價(jià)技術(shù)導(dǎo)則（試行）》。2005年國(guó)家環(huán)?？偩衷凇?005年第三批國(guó)家標(biāo)準(zhǔn)計(jì)劃》中要求編制城市總體規(guī)劃、城市綜合交通規(guī)劃、煤炭礦區(qū)開采規(guī)劃、油氣開采總體規(guī)劃、流域水利水電開發(fā)規(guī)劃等專項(xiàng)規(guī)劃環(huán)境影響評(píng)價(jià)導(dǎo)則。

SEPAenactedTechnicalguidelineforPEIA(ontrial)in2003.Thenin2005,SEPAdemandstocompiletheguidelineofspecialplanssuchasoverallurbanplans,thecity'scomprehensivetransportationplans,coalminingplans,petrolminingoverallplans,waterresourcesandhydropowerdevelopmentplansforriverbasininTheThirdBatchofTheNationalStandardPlan

國(guó)家環(huán)?？偩峙c世界銀行、國(guó)際影響評(píng)價(jià)協(xié)會(huì)等機(jī)構(gòu)合作開展了戰(zhàn)略/規(guī)劃環(huán)境影響評(píng)價(jià)的國(guó)際和國(guó)內(nèi)培訓(xùn)，并對(duì)各地的培訓(xùn)工作給予指導(dǎo)。

SEPAhascooperatedwithTheWorldBankandIAIAtoholdtrainingcoursesofSEA/PEIAhomeandabroadandguidethetrainingworkinmanycitiesinChina.5.政府部門在推動(dòng)SEA能力建設(shè)方面發(fā)揮重要導(dǎo)向作用

GovernmentdepartmentsplayanimportantroleinguidingtopromotethecapacityofSEA二、

我國(guó)戰(zhàn)略環(huán)境評(píng)價(jià)的問(wèn)題分析

AnalysisofproblemsofStrategicEnvironmentalAssessmentinChinaSEA的法定范圍僅限于規(guī)劃層次

ThelegislativescopeofSEAislimitedtothelayerofplan2.對(duì)SEA人員的角色定位認(rèn)識(shí)上存在誤區(qū)

MisunderstandingswhichexistintherealizationoftheroleofSEApractitioners3.評(píng)價(jià)的工作模式問(wèn)題

Theissueoftheoperationmodesintheassessment

4.重視“評(píng)價(jià)結(jié)果”，相對(duì)忽視“評(píng)價(jià)過(guò)程”

Attachingimportancetothe“resultoftheassessment”andignoringthe“processoftheassessment”relatively5.審查機(jī)構(gòu)是由政府部門臨時(shí)召集的審查小組

Therevieworganisatemporaryreviewteamwhichiscalledinbythegovernmentagency6.缺乏在有關(guān)政府機(jī)構(gòu)之間進(jìn)行有效協(xié)調(diào)的機(jī)制

LackoftheeffectivecoordinationmechanismbetweentherelevantgovernmentagenciesSEA的法定范圍僅限于規(guī)劃層次

ThelegislativescopeofSEAislimitedtothelayerofplan

不當(dāng)?shù)娜祟惢顒?dòng)，超過(guò)了資源環(huán)境的承載能力，是環(huán)境問(wèn)題產(chǎn)生的根源。政策、計(jì)劃、規(guī)劃是指導(dǎo)和規(guī)范人類各種活動(dòng)的重要途徑和手段，決策的層次越高，越靠近決策的“源頭”，對(duì)人類社會(huì)、經(jīng)濟(jì)、環(huán)境發(fā)展的影響就越重大。

Improperhumanactivitieswhichexceedthecarryingabilityoftheresourceandenvironmentaretherootcausesofenvironmentalproblems.Policies,plansandprogramsareimportantapproachestoguideandregulatepeople’sallkindsofactivities.Thehigherlevelofdecision-makingisat,thecloseritistothedecision-makingsourceandthebiggertheinfluencetohumansociety,economicsandenvironmentaldevelopmentare.

僅僅對(duì)規(guī)劃開展環(huán)境影響評(píng)價(jià)還滿足不了可持續(xù)發(fā)展的要求，應(yīng)對(duì)政策、計(jì)劃、規(guī)劃開展SEA。由于我國(guó)技術(shù)和行政方面的原因，政策以及我國(guó)特有的國(guó)民經(jīng)濟(jì)和社發(fā)展規(guī)劃還沒(méi)有納入《環(huán)評(píng)法》評(píng)價(jià)范圍中。2000年以來(lái)，我國(guó)在政策和國(guó)民經(jīng)濟(jì)和社會(huì)發(fā)展規(guī)劃的SEA方面進(jìn)行了一些有益的嘗試，但這還遠(yuǎn)遠(yuǎn)不夠。

Onlyassessingtheenvironmentalimpactofplanswasfailedtomeettherequirementofsustainabledevelopment.Policies,plansandprogramsshouldbetakenintoconsideration.Duetosometechnicalandadministrativereasons,policiesandtheplans

ofnationaleconomicandsocialdevelopmentarenotincludedintheEIAlawofChina.Since2000,wehavemadesomeusefulattemptsinSEAofpoliciesandtheplans

ofthenationaleconomicandsocialdevelopment,butthosearenotenough.

1SEA的法定范圍僅限于規(guī)劃層次

ThelegislativescopeofSEAislimitedtothelayerofplan2.對(duì)SEA人員的角色定位認(rèn)識(shí)上存在誤區(qū)

MisunderstandingswhichexistintherealizationoftheroleofSEApractitioners

SEA的核心和目的，是使環(huán)境因素與社會(huì)、經(jīng)濟(jì)等因素一樣在不同層次的決策中得到充分考慮和重視，為制定科學(xué)的決策服務(wù)，是實(shí)施綜合決策、實(shí)現(xiàn)可持續(xù)發(fā)展的重要工具