THE WORLD BANK LAW, JUSTICE, AND DEVELOPMENT SERIES 24131 2002 THE LEGAL AND REGULATORY FRAMEWORK FOR ENVIRONMENTAL IMPACT ASSESSMENTS A Study of Selected Countries in Sub-Saharan Afriica FILE COPY Mohammad A. Bekhechi and Jean-Roger Merder The Legal and Regulatory Framework for Environmental Impact Assessments Law, Justice, and Development The Law, Justice, and Development Series is offered by the Legal Vice Presi- dency of the World Bank to provide insights into aspects of law and justice that are relevant to the development process. Works in the Series will present new legal and judicial reform activities related to the World Bank's work, as well as analyses of domestic and international law. The Series is intended to be accessible to a broad audience as well as to legal practitioners. Series editor: Rudolf V. Van Puymbroeck The Legal and Regulatory Framework for Environmental Impact Assessments A Study of Selected Countries in Sub-Saharan Africa Mohammed A. Bekhechi Senior Counsel Environmentally and Socially Sustainable Development and International Law Group The World Bank Jean-Roger Mercier Lead Environmental Assessment Specialist Quality Assurance and Compliance Unit The World Bank THE WORLD BANK Washington, D.C. g 2002 The International Bank for Reconstruction and Development / The World Bank 1818 H Street, NW Washington, DC 20433 All rights reserved. 1 2 3 4 05 04 03 02 The findings, interpretations, and conclusions expressed here are those of the author(s) and do not necessarily reflect the views of the Board of Executive Directors of the World Bank or the govemments they represent. The World Bank cannot guarantee the accuracy of the data included in this work. The bound- aries, colors, denominations, and other information shown on any map in this work do not imply on the part of the World Bank any judgment of the legal status of any territory or the endorsement or acceptance of such boundaries. 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Contents FOREWORD ix ABSTRACT xi PREFACE xiii ACRONYMS AND ABBREVIATIONS xvii INTRODUCTION 1 CHAPTER ONE: EIA and Legal Development and Reform: General Considerations 5 CHAPTER TWO: EIA and International Law 7 International Environmental Conventions 7 International "Soft Law" Instruments 9 CHAPTER THREE: Analysis of Current SSA Countries' EIA-Related Laws, Regulations, and Statutes 13 General 13 Projects and Activities Subject to EIA 14 Prescribed Projects 15 Initial Environmental Evaluation 17 EIA Requirements Based on Specific Considerations of Projects Likely to Have Significant Impacts 18 What Impacts Are Dealt With in the EIA Process 20 i Contents CHAPTER FOUR: Public Participation and Consultation During the EIA Process: General Considerations 23 General 23 Provisions on Public Participation and Consultation in EIA-Related Laws of SSA Countries 24 Public Participation, Consultation, and Legal Enforcement Issues in SSA Countries 28 CHAPTER FIVE: The EIA Report 31 Format and Content of the EIA Report 31 Review of the EIA Report, Monitoring, and Auditing 32 CONCLUSION 37 EIA and National Capacity-Building 37 Toward Harmonization of EIA Legislation among SSA Countries 39 APPENDIX I: EIA-Related Issues in Sub-Saharan African Countries' Laws and Statutes 43 APPENDIX II: Basic Features of EIA Reports in Sub-Saharan African Countries' Laws and Statutes 45 APPENDIX III: Public Consultation and Participation in Environmental Impact Assessment-Related Legislation of African Countries 47 APPENDIX IV: Ratification of Four Major International Environmental Conventions With Provisions on EIA 49 APPENDIX V: Relevant Articles from Major International Environmental Conventions with Provisions on EIA 51 Contents d i APPENDIX VI: List of Environmental Impact Assessment-Related Laws, Statutes, and Regulations of Selected Sub-Saharan African Countries 53 APPENDIX VII: Legislation from Selected Sub-Saharan African Countries 57 Madagascar 59 Namibia 87 Nigeria 100 NOTES 139 Foreword The Legal and Regulatory Framework for Environmental Impact Assessments is intended to inform the discussion about the state of environmental laws and policies in Sub-Saharan African countries. It may also serve for comparative purposes with respect to environmental laws in the rest of the African conti- nent and other regions of the world. In particular, now that many African countries are moving decisively ahead with their own sustainable develop- ment agendas and are devising new environmental protection-oriented laws and regulations, this text can be used to assess where these countries stand in the development of their legal and regulatory frameworks and what still needs to be accomplished. It is a remarkable fact that during the 1990s practically half of the coun- tries in Sub-Saharan Africa developed legislation on environmental impact assessment (EIA). This is a first and indispensable step towards much needed capacity building in these countries. The ability to have in-country EIA re- view and compliance monitoring is key to the environmental and social sus- tainability of the new types of development activities that are now being car- ried out, whether funded by the World Bank or by other sources, both at the local level (community-driven development) and at the national level (bud- get support operations). In fact, environmental impact assessment remains the basic planning, in- formation sharing, and community empowering tool for sustainable devel- opment activities and projects. The lack of a sound legal framework to define the EIA's content, procedures and sanctions greatly reduces its effectiveness. Time and again we observe that in spite of greatly increased environmental awareness, it is much more difficult to implement progressive policies for dealing with natural resource use and depletion, waste emission, ecosystem pollution, etc. if there are no good, enforceable environmental laws and regu- lations. A sound legal framework for environmental impact assessment is a powerful instrument to improve environmental performance. ix Foreword The Legal and Regulatory Framework for Environmental Impact Assessments, the joint product of an environmental specialist formerly with the World Bank's Africa Regional Vice Presidency and an environmental lawyer from the Environmentally and Socially Sustainable Development and Internation- al Law Group in the Legal Vice Presidency, provides an overview of the devel- opment of environmental impact assessment-related laws and regulations in Sub-Saharan African countries. It analyzes issues of substance as well as of procedure, and highlights such important aspects as public participation and consultation, the relationships between govemment agencies and civil soci- ety, and compliance and monitoring mechanisms. Through this comprehen- sive treatment, the text provides a profound reflection on the role and func- tion of law and regulation for sustainable development. Ko-Yung Tung Kristalina Georgieva Vice President and General Counsel Director, Environment Department Abstract Environmental impact assessment, or EIA as it is known, is a procedure for evaluating the impact proposed activities may have on the environment. In recent years, significant strides have been made to build a legal foundation for ElAs in Sub-Saharan Africa. Whereas EIAs typically used to be carried out only to meet requirements of foreign donors, they are now mandated in 22 Sub-Saharan countries as an important element of domestic environmental law and policy. This publication traces the development of EIA, both in terms of national policies and international law, and analyzes EIA-related laws and regulations in these 22 countries. The substantive components of EIA requirements, as well as the similarities and differences of the various national statutes, are noted and commented upon. Special attention is paid to the role and degree of public participation for the further development of law and policy with respect to environmental impact assessments in Sub- Saharan Africa. xi Preface Gone are the days when environmental impact assessments (ElAs) were car- ried out only when they were imposed by donors of development assistance and there was no legal basis for their routine preparation, implementation, and monitoring in Sub-Saharan African countries. Welcome to a rapidly modernizing continent where exactly half of the countries have instituted their own rules and requirements and the remain- ing half are making great progress in the same direction. ElAs have been established as a standard requirement in 24 countries in Sub-Saharan Africa. This publication provides a review and evaluation of the current status of environmental impact assessment legislation in these coun- tries and a comparative methodology to assess the legal and regulatory framework applicable to EIA. The text is based on an in-depth analysis of the relevant legislation. Be- cause each country has established the legal basis for ElAs in an isolated way, the number of laws, statutes, and regulations differ significantly from one country to the other. These laws, statutes, and regulations are relatively recent-in the vast majority of cases, the laws were published during the last decade. SSA countries have copied their basic principles and rules from well-established EIA systems in developed countries, although trends in international environmental law also have influenced the domestic legal and regulatory framework and process. The development of the EIA-related legal and regulatory framework illustrates the fact that EIA is now consid- ered a major tool and process in environmental planning and management in SSA countries. The text focuses on and reviews specific aspects of the EIA system, includ- ing: (a) the definition of EIA in SSA laws, statutes, and regulations; (b) the pre- scribed activities, public participation, and consultation; (c) the review xiii xiv Preface process and the quality of EIA reports; (d) monitoring and enforcement; (e) compatibility with international norms; and (f) transboundary issues. Environmental impact assessment of major development projects is now reasonably well established in all the selected SSA countries. The establish- ment of environmental management units in governmental agencies, some- times at both the national and local levels, and growing awareness within civil society has helped to promote the application of EIAs in these projects, especially in urban and sensitive areas. Many SSA countries have also adopted a combined strategy of awareness raising and gradual strengthening of the enforcement of EIA legislation. However, EIA systems in SSA countries are far from being stable and easily enforceable. Many SSA countries have already changed their EIA legal and regulatory frameworks over the last few years. For example, Madagascar en- acted its first EIA-related legislation on October 21, 1992 (Decree 92-926), which was subsequently reviewed and updated in 1995 and 1996. Nonethe- less, in almost all SSA countries implementation and enforcement of EIA-re- lated laws, statutes, and regulations are still hampered by a lack of clarity, technical and human capacities, and financial resources. However, as the study shows, the current legal and regulatory frameworks provide the poten- tial for significant further development and improvement. The Legal and Regulatory Framework for Environmental Impact Assessments shows that there is a clear need to strengthen the current legal and regulatory framework of EIA in the selected SSA countries, including: (a) the further development of guidelines to be used by project development proponents to facilitate the implementation of EIA laws, statutes, and regulations; (b) the strengthening of public participation in the EIA process and access to EIA reports; (c) a more concise definition of the obligation to provide envi- ronmental management plans; (d) implementation monitoring and environ- mental auditing; (e) the assessment of transboundary and global impacts; and (f) the strengthening of the capacity of govemments and courts to help enforce EIA requirements. SSA countries with no EIA requirements should be given strong incentives to integrate EIA into their legal framework by making them a factor in accessing foreign investment. This study should be considered a work in progress that will be updated as more information from SSA countries becomes available and can be used to compare the evolution of EIA-related legal frameworks in SSA countries with Preface xv those of other regions and continents. The text is also geared towards rein- forcing other World Bank initiatives related to the implementation of a re- gional initiative on capacity building and linkages in EIA in Africa and to the design of a new initiative on certification and capacity-building for environ- mental assessment and safeguard policies in borrowing countries. The au- thors welcome feedback on this paper from readers, as it will help improve the design of this new initiative. Acronyms and Abbreviations EA Environmental Assessment EIA Environmental Impact Assessment EPA Environmental Protection Agency (USA) IGADE Inter-Governmental Authority for Development IUCN The World Conservation Union NEPA National Environmental Protection Act (USA) OECD Organization for Economic Cooperation and Development SSA Sub-Saharan Africa SADC Southern Africa Development Community UNCED United Nations Conference on Environment and Development UNCLOS United Nations Convention on the Law of the Sea UNEP United Nations Environment Program UNFCC United Nations Framework Convention for Climate Change xvii INTRODUCTION Laws and regulations suited to country-specific conditions are among the most important instruments for transforming environment and development policies into action.' The 1991 Convention on Environmental Impact Assessment in a Trans- boundary Context defines environmental impact assessment as "a procedure for evaluating the likely impact of a proposed activity on the environment."2 The same provision defines "impact" very broadly as "any effect caused by a proposed activity on the environment including human health and safety, flora, fauna, soil, air, water, climate, landscape and historical monuments or other physical structures or the interaction among these factors; it also in- cludes effects on cultural heritage or socioeconomic conditions resulting from alterations to those factors."3 All national laws, regulations, and statutes that are analyzed in this paper refer without exception to EIA. In the approach taken by the World Bank on environmental assessment (EA), EIA is a subset of EA, which is defined as both a process and a tool. In the World Bank's terminology "EA is a process whose breadth, depth, and type of analysis depend on the nature, scale, and potential environmental impact of the proposed project. EA evaluates a pro- ject's potential environmental risks and impacts in its area of influence."4 While EA covers a project "from cradle to grave," EIA is usually seen as the preparatory study which examines the likely environmental impacts of the project as submitted and the likely environmental impacts of the alternatives to that particular design. Environmental assessment, in addition to EIA, also includes project supervision and the actual monitoring of its impacts. Under UNEP's definition, "EIA means an examination, analysis and assessment of planned activities with a view to ensuring environmentally sound, and sus- tainable development."-5 2 The Legal and Regulatory Framework for Environmental Impact Assessments The World Bank's operational policy statement on environmental assess- ment provides that "the EA report for a Category A project is normally an en- vironmental impact assessment, with elements of other instruments included as appropriate."6 The present paper takes the pragmatic view that the exis- tence and relevance of an EIA requirement is the right first step in the direc- tion of a national EA requirement. In conclusion, environmental impact assessment is defined generally as a process and a tool to identify the likely consequences a particular project would have on the biophysical environment and on human health and wel- fare and to convey this information to those responsible for sanctioning pro- ject proposals at a stage when it can materially affect decisions about future project implementation.7 (Box 1) EIA, like many other planning and environmental management instru- ments and tools, plays a critical role in ensuring the sustainable development of a country's economy. Many African countries are aware of the costs of en- vironmental degradation and the effect of development planning, and some of them have years of experience in attempting to assess, mitigate, and mon- itor adverse environmental impacts of development projects and programs. Others however are only now taking the first steps toward the introduction of an environmental impact assessment mechanism as the potential benefits of the implementation of ElAs are becoming more widely understood. Beyond economy, the potential benefits of EIA include effective compli- ance with sound environmental standards, sustainable use of natural Box 1. EIA as Process One can see that EIA is moving away from being a defensive tool of the kind that dominated the 1970s to a potentially exciting environmental and social betterment technique.. .lf one sees EIA not so much as a tech- nique, rather as a process that is constantly changing in the face of shift- ing environmental politics and managerial capabilities, one can visualize it as a sensitive barometer of environmental values in a complex envi- ronmental society. Long may EIA thrive. T. O'Riordan, EIA from the Environmentalist's Perspective (1990). Introduction 3 resources, better decision-making processes through the involvement of stakeholders, and improved design of infrastructures. But in order to be effec- tive, an EIA mechanism needs to be grounded in well-defined legislation and procedural rules where the rights and obligations of all stakeholders are clear- ly defined, and its enforcement must be ensured through appropriate imple- mentation and compliance monitoring procedures and other instruments. CHAPTER ONE EIA and Legal Development and Reform: General Considerations Environmental laws and regulations constitute a critical instrument for envi- ronmental protection and management in most countries. Environmental standards provide the context and measure for broader economic means of promoting environmental protection and long-term productivity-the twin goals of sustainable development.8 In less than three decades the vast majori- ty of countries has adopted a variety of policies, guidelines, regulations, and laws related to environmental assessment. This is the case not only in indus- trialized countries, but also in developing countries across all continents. Ma- jor factors underlying this reality include: (a) the adoption in 1969 of the Na- tional Environmental Policy Act (NEPA) in the United States which introduced environmental assessment into the realm of public policy; (b) the 1987 publication of Our Common Future, also known as the Brundtland Re- port, which called for improved environmental impact assessment proce- dures to be applicable at all levels of government;9 (c) the endorsement of NEPA and the Brundtland Report by a growing number of countries, busi- nesses and international institutions;'0 and (d) the adoption in industrialized and developing countries of formal EIA principles and practices for a variety of activities that impact the environment. It should be pointed out that the development of environmental law ir Sub-Saharan Africa is often perceived as the direct consequence of the re- quirements of international donor agencies rather than the outcome of a na- tional willingness to strengthen the environmental agenda. The introduction and acceptance of EIA, as a policy and legislative tool, has been challenged by a general misconception that EIA may hamper economic and technological development. In addition, there is the frequently voiced opinion that EIA i; unnecessary, costly, and may duplicate existing monitoring procedures and 6 The Legal and Regulatory Framework for Environmental Impact Assessments other planning tools."1 Despite these criticisms, there has been a recent in- crease in domestic EIA legislation in Sub-Saharan Africa due to the following factors: (a) increasingly onerous costs of environmental problems that could have been prevented at low cost; (b) a general increase in awareness of envi- ronmental problems and issues; (c) the autochthon development of impor- tant environmental legislation, including EIA regulations, without the in- volvement of donor agencies; and (d) the inclusion of environmental legislation reform as part of an overall legal reform agenda. This paper describes the EIA-related legislation of a number of African countries'2 in order to assess their status in establishing EIA systems using the resources of the law and to compare the different approaches they have de- veloped for EIA procedure and content."3 Analyzing environmental impact assessment legislation in the SSA countries is an important step in measuring what has been achieved so far by these countries with regard to the develop- ment of an effective and operational EIA system, but also and ultimately in defining future steps to: (a) enhance the legal and regulatory framework; (b) strengthen the institutional framework; (c) develop an enforcement regime and other economic instruments in environmental management; (d) increase public participation in the development decision-making process; and (e) de- velop the capacity and role of stakeholders in environmental protection. Finally, the paper discusses the possible harmonization of domestic EIA laws and statutes among SSA countries and with other international rules and standards where needed and feasible. In fact, at the intemational level, envi- ronmental impact assessment is increasingly considered to be a general prin- ciple of international environmental law'4 and this affects states' behavior. It is generally accepted that sound economic development requires a well-de- veloped environmental legal framework, which provides all necessary instru- ments, mechanisms, and planning tools.-' CHAPTER TWO EIA and International Law EIA is recognized as a principle of law and as such has increasingly become a feature of modern international environmental law. It is referred to in major international environmental conventions16 and other international legal in- struments of a "soft law" nature. Also, many authors refer to EIA as a general principle of sustainable development law, and it is likely that in a few years from now all countries will formally recognize it as such and will have intro- duced it into their domestic legal order."7 International Environmental Conventions Four international environmental conventions bear mentioning to highlight the extent to which EIA is recognized and to focus the discussion on domes- tic compliance with international law: the United Nations Convention on Bi- ological Diversity;18 the United Nations Convention on the Law of the Sea (UNCLOS);19 the United Nations Framework Convention on Climate Change (UNFCCC);20 and the United Nations Convention to Combat Desertification in Those Countries Experiencing Serious Drought and/or Desertification, Par- ticularly in Africa.2' The choice of these four conventions is based on the fact that thirty-two Sub-Saharan African countries have ratified the United Nations Convention on the Law of the Sea, forty-two the United Nations Biological Diversity Convention, thirty-eight the United Nations Framework Convention on Climate Change and forty-five the United Nations Conven- tion to Combat Desertification.22 The recognition of EIA as a legally binding requirement and its translation into enforceable laws and regulations addresses the need for a predictable regulatory framework with clear norms and regulations to improve the busi- ness environment.23 Further, it also lays the basis for the establishment of 7 8 The Legal and Regulatory Framework for Environmental Impact Assessments safeguard policies to mitigate and compensate for negative impacts resulting from development projects. (Box 2) It is important to monitor compliance with the provisions of the above- mentioned conventions in the countries that have ratified them. This is a very complex task given the fact that they do not deal with the details of how the EIAs are to be conducted, but merely establish the obligation for states to undertake EIAs when planned activities have potentially detrimen- tal effects.24 In general, it may be said that the challenge for international conventions of this nature is to enhance their impact and effectiveness, even though the instruments themselves often lack the appropriate mechanisms to do so. In practice and with few exceptions (such as Nigeria), there are no direct references to international conventions in EIA-related legislation in SSA countries.25 This does not mean, however, that SSA countries are not willing to implement these conventions. Quite to the contrary, African governments increasingly participate in drafting international treaties, adopt domestic rules that are consistent with international treaties and Box 2. The EIA Principle in International Conventions: The 1992 Convention on Biological Diversity Article 14 Impact Assessment and Minimizing Adverse Impacts 1. Each Contracting party, as far as possible and as appropriate, shall: (a) Introduce appropriate procedures requiring environmental impact assessment of its proposed projects, that are likely to have signifi- cant adverse effects on biological diversity with a view to avoid- ing or minimizing such effects and, where appropriate, allow for public participation and procedures; (b) Introduce appropriate arrangements to ensure that the environ- mental consequences of its programmes and policies that are likely to have significant adverse impacts on biological diversity are duly taken into account;... Chapter Two: EM and International Law 9 conventions,26 and develop processes to support the implementation of international conventions. African countries should also take strong steps toward compliance with these conventions by empowering all the actors involved in the EIA process, and by penalizing non-compliant behavioL However, their efforts to imple- ment international law may be hindered by the lack of human and financial capacities. Experience shows that a way to help developing countries to build capacity and to implement their obligations under international agreements is to incorporate adequate financial and technical assistance provisions in the conventions themselves. As stated by the former General Counsel of the World Bank: Continuous cooperation among national agencies through direct, permanent contacts has been instrumental in the success of many environmental agree- ments. Establishing permanent networks to operate as channels of communi- cation and verification should serve as an effective way to ensure compliance with the monitoring requirements of international environmental agreements under present conditions. The agreement can facilitate the task by increasing- ly empowering national agencies (both governmental and non-governmental) to carry out such functions, thus ensuring the "self enforcement" of treaty obligations.27 International "Soft Law" Instruments Besides these international conventions, it is worth mentioning that during the 1992 Rio Summit UNCED recognized EIA as an essential tool to promote sustainable development and to protect the integrity of the global environ- ment. Principle 17 of the Rio Declaration provides that: environmental impact assessment, as a national instrument, shall be under- taken for proposed activities that are likely to have a significant adverse impact on the environment and are subject to a decision of a competent national authority.28 The World Conservation Union's Commission on Environmental Law has developed and proposed to the General Assembly of the United Nations a draft international covenant on environment and development which recog- nizes EIA as a tool for complying with the precautionary principle and for promoting sustainable development. Article 37 of the draft covenant pro- vides for the establishment or enhancement of EIA systems and procedures.29 10 The Legal and Regulatory Framework for Environmental Impact Assessments The World Bank Group has adopted environmental assessment directives and refined them since 1989, the most recent being Operational Policy Statement 4.01 of January 1999.30 The application of such policies is mandatory in projects supported by the Bank. Finally, mention must be made of the EIA guidelines and principles elabo- rated by UNEP. They are of particular interest for all SSA countries in the process of strengthening their environmental regulatory framework and have already had a significant impact across the continent.31 Although these instruments are not legally mandated, the Rio Declaration is indisputably viewed as an international instrument that reflects a consen- sus on certain general principles of law on the part of many countries from both the North and the South. To this extent, if such principles are followed by state practice, they can provide evidence of the existence of the opinio juris from which customary rules develop and become binding. It is important to note that states have supplemented the adoption of treaties and conventions ("hard law") with the development of international "soft law" instruments to foster their cooperation in the field of environment and to develop their en- vironmental management capacity. In many cases, EIA-related laws and regu- lations in African countries are mostly inspired by the UNEP guidelines or other similar guidelines such as those used by multilateral development insti- tutions or donor agencies. Some of the laws and statutes refer explicitly to the international agree- ments to which the country is party,32 but in other instances compliance with international conventions can be measured in substance, i.e., the do- mestic legislation is consistent with international conventions even though there is no explicit reference to such instruments in the legislation. Environ- mental impact assessment in countries that have ratified international con- ventions with EIA-related provisions should make reference to the relevant provisions of these conventions. The EIA report should clearly discuss and analyze the extent and nature of environmental impacts, taking into consid- eration the international obligations to which the country subscribed. Some intemational conventions provide mechanisms for the declaration of nation- al wetlands of international significance, which, once declared carry state obligations.33 This is the policy and legal background in which African countries devel- oped EIA systems and procedures, often pursuant to the preparation and Chapter Two: EIA and International Law 11 adoption of their national environmental action plans (NEAP). In an effort to equip themselves with an enabling environmental legal framework, many Sub-Saharan African countries have developed an EIA system comprising laws, regulations, and guidelines that is commensurate with their needs and local requirements. Many African countries have enacted some form of envi- ronmental legislation which invariably includes, among other elements, a policy statement, objectives, institutional arrangements, the content of the EIA report, enforcement mechanisms and rules, a definition of the scope and functions of the central environmental agency, and a statutory environmen- tal review procedure.34 CHAPTER THREE Analysis of Current SSA Countries' EIA-Related Laws, Regulations, and Statutes General At the end of 1999, 24 of the 48 SSA countries had enacted environmental legislation of some kind dealing with environmental impact assessment is- sues.35 Others had some form of administrative procedure or policy in place with respect to EIA without background legislation, but were considering adopting environmental impact legislation, or are in the process of doing so.36 The remaining countries have no formalized procedures and responsi- bility for EIA is diffuse; EIA is conducted on an ad hoc basis by the project's proponent. Benin is an interesting example where a full set of EIA guidelines for various categories of projects have been drafted by the Benin Environ- mental Agency without any legal basis, making the implementation of these guidelines a voluntary exercise by project proponents. How far such guide- lines are effectively followed and implemented remains to be seen, especially since no incentive is provided for such implementation and no sanction could be enforced against project proponents who do not agree to imple- ment them. Current EIA requirements are embodied in framework environmental laws,37 planning-oriented laws, in statutes and regulations specifically devot- ed to EIAs,38 or policy documents that require and describe EIAs' procedural and substantial aspects.39 In South Africa, Zambia, and C6te d'Ivoire EIA re- quirements have been introduced in framework legislation, which is imple- mented through specific regulations and guidelines that describe the content, procedure, and sanctions of the EIA process.40 The case of Kenya is somewhat unique because, even though it has developed an important body of environ- mental legislation, it has not yet enacted a statute on EIA and is still in the 13 14 The Legal and Regulatory Framework for Environmental Impact Assessments process of developing a comprehensive environmental law, the draft of which has been circulated to stakeholders for comment since 1998. It should be noted, however, that certain sectoral laws provide for EIA with regard to specific natural resource sectors, such as water (under the Water Act) and land use (under the Land Planning Act and the Pest Control Act).41 Other coun- tries have a framework law on environmental management and are currently developing decrees for implementing EIA and drafting EIA regulations. Cameroon is developing EIA regulations to be applied to all development projects to be undertaken in buffer zones of protected areas42 and another set for all other potentially polluting projects. Without exception, all laws, statutes, and regulations examined in this chapter have basic provisions relating to the definition of EIA and the cate- gories of projects to be subjected to EIA. Sometimes the legislation includes the requirement of an initial environmental evaluation before a decision is made on subjecting a given project to a full EIA. Some legislation specifies the various mandates and responsibilities of the agencies involved in the EIA process, the status of public participation and disclosure, implementation of an environmental management plan (EMP), or monitoring and compliance with EIA report recommendations and/or EMP. Projects and Activities Subject to EIA As stated in Principle 2 of UNEP's Goals and Principles of EIA: The criteria and procedures for determining whether an activity is likely to significantly affect the environment and is therefore subject to an EIA, should be defined clearly by legislation, regulation and other means, so that subject activities can be quickly and surely identified, and EIA can be applied as the activity is being planned.43 However, there is no universal rule for determining which projects and ac- tivities are subject to EIA.44 The Sub-Saharan African countries' legal instru- ments define the activities to be subject to EIA in different ways, mostly on the basis of the type and scale of activities concerned. However, in a few countries the law imposes a general obligation to carry out an EIA for all pro- jects likely to have significant impacts. Therefore an initial environmental evaluation may be a useful tool to help decide what project should be sub- jected to an EIA. (Box 3) Chapter Three: Analysis of Current SSA Countries' EIA-Related Laws 15 Box 3. Section 15 of the Environmental Impact Assessment Decree of Nigeria Excluded Projects (Decree No. 86,1992) (1) An environmental assessment of project shall not be required where: (a) in the opinion of the Agency the project is in the list of projects which the President, Commander-in-Chief of the Armed Forces or the Council is of the opinion that the environment effects of the project are likely to be minimal; (b) the project is to be carried out during national emergency for which temporary measures have been taken by the Government: (c) the project is to be carried out in response to circumstances, showing that, in the opinion of the Agency, the project is in the interest of public health or safety. (2) For greater certainty, where the Federal, State or Local Government exercises power or performs a duty or function for the purpose of en- abling projects to be carried out an environmental assessment may not be required if- (a) the project has been identified at the time the power is exercised or the duty or function is performed: and (b) the Federal, State, or Local Government has no power to exercise any duty or perform functions in relation to the projects after they have been identified. Prescribed Projects Almost all the existing EIA laws and/or regulations provide a list of project; for which an EIA must be carried out.45 (Box 4) In practice, there are three different approaches to categorize projects like- ly to have harmful impacts. The first refers to "activities which will be listed specifically by implementing regulations,"46 a related subset of legislation 16 The Legal and Regulatory Framework for Environmental Impact Assessments Box 4. Zambia: The Environmental Protection and Pollution Control Act (Environmental Impact Assessment) Regulations, 1997 Second Schedule Regulation 7 (2) Projects Which Require Environmental Impact Assessment Projects: Others: 1. Urban area rehabilitation 1. Resettlement schemes 2. Water transport 2. Storage of hydrocarbons 3. Flood control scheme 3. Hospitals, clinics and health 4. Exploration for and production centers of hydrocarbons including 4. Cemetery designation refining and transport 5. Tourism and recreational 5. Timber harvesting and pro- development in national parks cessing or similar reserves 6. Land consolidation schemes 6. Project located in or near 7. Mining and minerals proces- environmental sensitive areas sing, reduction of ores, min- such as (i) indigenous forests, erals, cements and lime kilns (ii) wetlands, (iii) zones of high 8. Smelting and refining of ore biological diversity, (iv) areas minerals supporting populations of rare 9. Foundries or endangered species, (v) 10. Brick and earthen manufacture zones prone to erosion or 11. Glassworks desertification, (vi) areas of 12. Breweries and malting plants historical and archeological 13. Hydro-power schemes and interest, (vii) areas of cultural electrification or religious significance, (viii) 14. Chemical processing and areas used extensively for manufacturing recreation and aesthetic reasons, (ix) areas prone to flooding and natural hazards, (x) water catchments contain- ing major sources of public, industrial or agricultural uses, and (xi) areas of human settle- ments (particularly those with schools and hospitals) Chapter Three: Analysis of Current SSA Countries' EIA-Related Laws 17 providing the regulatory agency the authority to determine and publish through official notices the "types and sizes of projects, which shall not be implemented unless an environmental impact assessment is carried out."4. The second category adopts a broad definition of the activities, including "physical" development projects, programs, policies, and development plan! as well as other planning documents,48 but no list of such activities is provid- ed; and finally the third category, which combines parts of the first two, es- tablishes lists of activities subject to a full EIA and activities subject to a more simple environmental analysis.49 It is worth noting also that some statutes in- clude a list of geographical areas where any development project, whateve. its size or sector, is to be subjected to a full EIA.50 Such a list generally com- prises all the environmentally sensitive areas of the country concerned, in- cluding forest and marine protected areas, cultural heritage sites and othe: significantly important landscapes. One interesting innovation has been in- troduced in the legislation of the Republic of South Africa, which subjects to an EIA all activities leading to the modification or alteration of the biological diversity resources of South Africa.51 Many believe that in SSA countries many laws, regulations, and statute; that provide lists of activities to be subject to EIAs are too ambitious52 in com- parison with similar lists provided by other countries in other continents o. by development agencies. The schedule related to the mandatory study activ- ities under the Nigerian legislation on EIA is quite symptomatic of the ambi- tion to subject as many activities as possible to a prior environmental impact assessment.53 However, it should be noted that activities may be prescribed in terms of type, not size and that the EIA regulatory agency retains the power to establish thresholds for prescribed activities.54 Finally, although EIA ma-l be required for new development projects and activities only, some statutes extend it to modifications of existing facilities which involve new or in- creased release of pollutants, more consumption of natural resources or mor production of waste as a consequence of increased volume of activity. Initial Environmental Evaluation Many African countries' laws and statutes require the project proponent to provide an initial environmental evaluation (IEE) in order to determine whether a full EIA would be required for the proposed project. This require- ment is not always clearly spelled out in those laws and statutes, except where 18 The Legal and Regulatory Framework for Environmental Impact Assessments they define a prescribed list of projects to be subjected to EIA. A number of African countries require an IEE as part of the mandatory EIA procedure, or sometimes as part of the planning and/or construction law.-55 The question re- mains whether it is appropriate to subject prescribed categories of projects to an IEE or how to determine projects likely to have a "significant harmful impact" which should be subjected to IEE where no list of prescribed projects exists. No answer is provided in the c-urrent laws and regulations examined. EIA Requirements Based on Specific Considerations of Projects Likely to Have Significant Impacts This approach is not favored by Sub-Saharan African countries. Some of them, however, retain it and empower their regulatory agencies to screen all development projects in order to require an adequately defined EIA. It should be mentioned that the use of a system requiring an EIA for projects likely to have significant environmental impacts is interesting and may prevent harm- ful projects from being implemented before a detailed environmental assess- ment is made. Two consequences of this option are to be considered: (1) no matter what the size of a proposed project is, an EIA may be required after the screening of such a project is carried out-the problem is that the screening needs to be sufficiently detailed to ensure that the final decision can be made on sound grounds; and (2) the degree of significance of the potential harmful effect of a proposed project could be assessed in different ways by a government agency in charge of environmental protection and the proponent and may be challenged by either the proponent or the government agency, depend- ing on the assessment carried out by the other. This is why there is a clear need for an indisputable and transparent definition of the size, nature, and scale of projects, and a definition of criteria to assess significant impacts in the legislation in order to avoid conflict and misinterpretation among stake- holders involved in EIA procedures. Mali Decree 99-189 of July 5, 1999 offers a good example. (Box 5) It should be mentioned that, in general, many countries' lists of prescribed projects are very ambitious compared to their actual capacity in pollution control or land use planning and monitoring. One good solution used by many countries is to develop several lists of projects that are submitted to various levels of environmental assessment or analysis. Chapter Three: Analysis of Current SSA Countries' EA-Related Laws 19 Box 5. Mali, Decree 99-189 of July 5, 1999 CHAPITRE I: DU CHAMP D'APPLICATION ARTICLE 4: Sont obligatoirement soumis 3 I'etude d'impact sur 1'environnement les projets ci-apres: 1). Barrages et autres installations destinees 3 retenir les eaux ou les stocker d'une maniere durable; 2). Ouvrages de canalisation et de regularisation de cours d'eau; 3). Centrales thermiques et nucl6aires; 4). Lignes de transport d'electricite 3 haute tension; 5). Construction de route, d'aerogares, de chemin de fer, d'aerodrome; 6). Construction de Ports et ouvrages fluviaux; 7). Construction d'usine de production deciment, demartre et de platre; 8). Construction d'usine de fabrication de pAte a papier, de papier et de carton; 9). Construction d'usine de tanneries; 10). Dfrichement de plus de 10 hectares; 11). Construction d'usine de fabrication de plastiques et de mousse; 12). Construction d'usine d'industrie textile; 13).Construction d'usine d'equarrissage; 14). Construction d'usine de raffinerie; 15). Construction d'usine de fabrication de piles; 16). Construction d'usine de fabrication de produits chimiques, des pesticides, de savons, de produits, pharmaceutiques, de peinture et de vermis; 17). Constuction d'usine de fabrication de sucre; 18).Construction d'usine de brasseries, confiseries; 19). Construction d'usine de conserverie de produits animaux et de veg6taux; 20). Construction d'usine de fabrication de produits laitiers; 21). Construction d'usine de fabrication d'explosifs; 22). Construction et assemblage de vehicules automobiles et con- struction de moteur pour celle-ci; 23). Construction de station d'epuration; 24). Exploitation de mines et de carriere; 25).1nstallation d'elimination de dechets: incineration, d6charge, site d'enfouissement; continued 20 The Legal and Regulatory Framework for Environmental Impact Assessments Box 5. (continued) 26). Installation d'aqueduac; 27). Utilisation de pesticide A grande 6chelle; 28).Travaux de remblayage et de dragage des cours d'eau; 29). Dpot d'hydrocarbure et station d'essence; 30). Ol6oducs et gazoducs; 31). Operations de lotissement et travaux de degagement et d'ouverture de voies; 32).Construction d'h6tel d'une capacite superieure b 30 lits. ARTICLE 5: Sont dispenses de l'etude d'impact sur l'environnement les projects relatifs aux travaux d'entretien et de reparations quelle que soit leur nature ou leur type. Toutefois, le promoteur est tenu de deposer aupres de l'Administration competente une notice d'etude d'impact sur l'environnement. Cette notice comporte une description sommaire du projet, les impacts eventuels sur l'environnement et les mesures envisagees pour reduire ou eliminer les impacts negatifs. What Impacts Are Dealt With in the EIA Process Impacts are not defined in a uniform way in all countries. The usual approach taken by EIA-related laws and regulations is to refer in a generic manner to the term "environmental impacts" followed by a listing of environmental media.56 Generally, most of the statutes focus on the biologi- cal and physical environment while a few of them describe in detail the like- ly environmental impacts of the proposed activity.57 The basic requirements relate to impacts on: water quality and quantity; air quality; noise level; ecosystems and ecological processes; and landscapes and cultural resources, including historical sites and cultural heritage. More specifically, laws and statutes require evaluation of the disposal of wastewater, solid wastes, and emissions into the atmosphere, as well as identification of the positive envi- ronmental impacts of the proposed activity.58 (Box 6) The human environment is also taken into account in various laws and statutes through provisions on social impact, the impact on populations, the impact on health, and the impact on communities. A wider definition Chapter Three: Analysis of Current SSA Countries' EIA-Related Laws 21 Box 6. OECD Development Assistance Committee Guidelines on Environment and Aid Good Practices for Environmental Impact Assessment of Development Projects (1992) Coverage of environmental impacts The term "environmental impacts" is understood to include: 1. effects on human health and well-being, the environmental media, ecosystems, (including fauna and flora) agriculture and buildings (classified as protected) 2. effects on climate and atmosphere 3. use of natural resources (both regenerative resources and mineral resources) 4. utilisation and disposal of residues and wastes 5. related aspects such as resettlement, archeological sites, landscape, monuments and social consequences as well as relevant upstream, downstream and transboundary effects. incorporating social impacts seems to be favored by the most recent legi!;- lation and statutes. However, in the case of Mali, the 1999 decree requires an EIA to identify and evaluate the direct and indirect short- and long- term positive and negative potential impacts on the environment.59 Re- cently prepared draft statutes being discussed among stakeholders in vai- ous Sub-Saharan African countries require that the social and economic impacts of projects be subjected to an EIA.60 In fact, increased concern is expressed in a new legislative trend in which the analysis of socioeconorm- ic implications is an integral part of an EIA study, such as working conc.i- tions and health.61 In SSA countries, the underlying rationale for this may be that the vast majority of the African populations have closer, more corn- plex relationships with their natural environment. In view of future legal and regulatory developments, it seems appropriate to suggest that EIA-ie- lated statutes, regulations, and guidelines deal more closely with the im- portant issues of public health and the possible external implications o. a 22 The Legal and Regulatory Framework for Environmental Impact Assessments deterioration in the physical and mental well-being of workers and resi- dent communities.62 One issue of importance in various Sub-Saharan African countries is the weak, or in some cases nonexistent, definition of the quality standards and norms against which the environmental assessment is gauged. Standards are indispensable for evaluating the environmental significance and impacts of certain actions, but in no case should the decision to carry out a project sole- ly depend on compliance or noncompliance with standards. In most African countries, the impact assessment is carried out by applying international standards, business guidelines or foreign country norms and standards, in- cluding those of international aid agencies.63 One example is Ghana, which has recently enacted environmental assessment regulations64 to strengthen the powers of its environmental protection agency and clarify procedures and other matters pertaining to EIA, including the holding of public hear- ings. However, when it comes to enforcement, there are significant gaps in the Ghanaian environmental system. In fact, there is no legislation on dis- charge of wastes into water, the riverine systems or marine environment.65 There is no legislation governing air quality standards, product quality stan- dards and control of emissions from industrial plants, motor vehicles, and other sources. Throughout the industrial sector, including mining,66 environ- mental protection is provided only within the context of the safety, health, and welfare of employees. However, a new trend is also coming to the fore that incorporates the pre- cautionary principle in environmental impact assessment. It is important to consider developing, in the concerned country, sets of sound environmental quality norms and standards to support EIA implementation where the EIA process reveals a weakness or lack of definition of environmental quality standards. CHAPTER FOUR Public Participation and Consultation During the EIA Process: General Considerations General Public participation in decision-making processes for development helps meet public needs, enhances access to information, leads to better develop- ment decisions, results in fewer court challenges, and ultimately reduces con- flict between developers and the affected public.67 More specifically, public participation strengthens the credibility of the entire EIA process by: (a) im proving the understanding of issues among all parties involved; (b) finding common ground on whether an agreement can be reached on some of the is - sues; (c) highlighting tradeoffs that must be addressed during the decision- making process; (d) generating higher quality information about potential environmental impacts; and (e) holding public hearings that would other- wise be discretionary.68 Recent laws on EIA emphasize the role of public par- ticipation in EIA procedures with a view to ensuring quality results and out- comes. Public participation, as defined in EIA-related laws and statutes, ma,' encompass various aspects and may provide for different ways in which pec- ple contribute to the EIA decision-making process.69 Although country NEAP reports and relevant environmental manage- ment-related documents may recognize the principle that public participz.- tion should be an integral part of the EIA process, the timing, purpose, an i legal effects of such participation vary from one country to another. In large measure, differences in approach between countries and stakeholders reflect a dichotomy between (1) those who favor a traditional regulatory approach which sees public involvement as an external factor in the decision-makirg process related to the EIA and (2) those who prefer to set up a consensus- building model of EIA which views public participation and consultation as the heart of the decision-making process. Regardless of the approach taken, 23 24 The Legal and Regulatory Framework for Environmental Impact Assessments the methods for ensuring meaningful public participation will vary from one country to another .70 Provisions on Public Participation and Consultation in EIA-Related Laws of SSA Countries By analyzing all relevant laws and statutes, one can assess exactly who decides what level of participation is mandated. In general, the complexity of issues at stake determines the type of participation required. However, in order to understand fully how public participation is conducted, it is neces- sary to study all relevant laws and statutes (environmental, administrative, and civil), including the constitution, in all jurisdictions (local, national, and regional).7" Many African constitutions only mention the right of citizens to a clean and healthy environment, and the right to participate in its protection. These rights still require additional legislation before they can be enforced. When this additional legislation exists, it is not always helpful. In fact, public partic- ipation is mentioned in many EIA-related laws, but it is not always appropri- ately defined and the procedure for its implementation is not always ade- quately specified.72 With few exceptions, current statutes in SSA countries are weak in this area, and few provisions deal with how public concerns, opin- ions, and views are taken into account in the final decision on the EIA report. The scope and purpose of the public participation are sometimes broadly de- fined and do not allow for measurement of the real impact of public partici- pation in the EIA decision-making process. Interestingly, no legislation in SSA countries provides for judicial review to enforce the right to participate in EIA as a means of ensuring the constitutional right to a clean and healthy envi- ronment.73 A few African cases do reveal aspects of good practice, which deserve to be further developed and implemented. (Box 7) In Zambia, public participation is provided for in various provisions of the EIA-related legislation, and its process is spelled out in strong language. Pub- lic consultation starts at an early stage and follows through the entire EIA process including the drafting of terms of reference for the EIA, EIA report preparation, and review of the final EIA report. It is the developer's obligation "to organize a public consultation process, involving government agencies, local authorities, non-governmental and community-based organizations Chapter Four: Public Participation and Consultation During the EIA Process 25 Box 7. Definition, Scope, and Purpose of Public Participation "L'etude d'impact sur l'environnement doit etre complitee par une en- quete publique dont le but est de recueillir les avis et contre propositions des parties concernees Article 19 of the 1997 Environmental Code of Burkina Faso An El Statement "shall be a public document which may be freely con- sulted by any person. Section 23 (5) of the Environmental Management Act of Gambia The EIA report shall be open for public inspection provided that no person shall be entitled to use any information contained therein for personal benefit except for 'purposes of civil proceedings brought under this Act or under any written law relating to the protection of the environment or the conservation or sustainable utilization of natural resources." The same act in section 26 (1) a. empowers the relevant authority to "conduct public hearings ... for purposes of assessing public opinion....' Section 25 of the 1996 Environmental Management Act of Namibia and interested and affected parties, to help determine the scope of the work to be done in the conduct of the environmental impact assessment,"74 and "take all measures necessary to seek the views of the people in the communi- ties which will be affected by the project."75 The Environmental Council makes public the final EIA statement and "may organize, or cause to be orga- nized, public meetings in the locality of the proposed project,"76 and under some conditions may "hold a public hearing on the environmental impact statement."77 The Zambia case illustrates a good practice that can be easily followed by other countries when the legal system and the social conditions are similar. Another good example is the legislation of the Republic of South Africa, which imposes on the project proponent the obligation to provide for "a public participation process to ensure that all interested parties are given the 26 The Legal and Regulatory Framework for Environmental Impact Assessments opportunity to participate in all the [EIA] relevant procedures."78 Upon com- pletion, the EIA report becomes a public document.79 Other statutes have sophisticated procedures to ensure that public views are properly weighed and taken into account when based on strong evidence. Other examples include the case of Nigeria, where the applicable statute provides for the environmental agency to ensure that "government agencies, members of the public, experts in relevant disciplines and interested groups [are given the opportunity] to make comment on environmental impact as- sessment of the [proposed] activity."80 Also, in various other countries, the legislation recognizes a right to appeal EIA-related decisions by the public at large, or more specifically by affected people.81 This feature gives more strength to the consultation requirement in the EIA procedure and may make it very effective. (Box 8) These are good practices. However, in the majority of cases, laws and statutes on the public consultation and participation requirement in EIA are vague and weak. For example, this is the case of CMte d'Ivoire where EIA pro- cedure lacks a sound legal basis that provides for effective public participa- tion. Although the Environmental Code of 1996 states in article 35.6 that every person has the right to participate and to be informed on the state of the environment and to participate in environmental decision-making processes,82 the implementing decree on EIA fails to mention public partici- pation as a means to ensure the soundness of the EIA. The implementing de- cree states that the Ministry of Environment may undertake a public inquiry after the EIA is submitted by a proponent without, however, detailing the scope, contents, and modalities of such inquiry. In fact, legislation in many African countries has made a public inquiry part of the review process in certain situations or for selected project cate- gories. But this public inquiry is often limited to the release of the EIA Report in some public place and a public comment period of one to two months. A similar scheme was followed in the 1997 Environmental Code of Burkina Faso which states that the EIA process is to be completed by a public inquiry. In the case of Burkina Faso, an implementing decree for the 1997 Environ- mental Code is being prepared to provide for a detailed EIA procedure that includes public participation.83 Other examples of weak provisions on public consultation and participation include the laws and statutes of Comoros, Namibia, Gabon, and Togo, which do not provide for any kind of public par- ticipation in the EIA process. Chapter Four: Public Participation and Consultation During the EIA Process 27 Box 8. Environmental Legislation from Malawi and Mauritius Malawi Environmental Management Act of 1996 Section 26 (1) Upon receiving the environmental impact assessment report, the Director shall invite written or oral comments from the public there- on, and where necessary may- (a) conduct public hearings... (b) require the developer to redesign the project or to do such other task as the Director considers desirable taking into account all the relevant environmental concerns... (c) require the developer to conduct further EIA of the whole project or such part or parts of the project... (d) recommend to the Minister to approve the project subject to such conditions as the director may recommend to the Minister. Mauritius Environmental Protection Act of 1991 Section 16 "Review of EIA" (1) The Director shall: (a) review the EIA submitted by a proponent... (b) refer the EIA ..with such comments and observations as he thinks appropriate ... to the EIA committee... (2) The Director may for the purpose of the Review under sub-section (1) a:- (a) request any public department, any enforcing agency, any non- governmental organisation or any other person to submit their observations in writing on the EIA, (b) set up a technical advisory committee to advise him on the EIA or on any aspects of the undertaking (c) require the proponent to conduct further study or to submit additional information for the purpose of ensuring that the EIA is as accurate and exhaustive as possible. Good international practice assigns responsibility to the project propo- nent for meeting environmental legal requirements and therefore for organizing public participation. All the laws and statutes that recognize and 28 The Legal and Regulatory Framework for Environmental Impact Assessments organize a public participation scheme designate a responsible agency which is empowered to review, manage, and document the public consultation and participation process. In addition, this agency, which is also responsible for overseeing and monitoring the EIA process, should be legally authorized to undertake additional public consultation when required by the nature of the project, and when it deems it fit or necessary. It is important for African countries to follow this positive trend. Where an EIA reveals that any pro- posed project will affect people, these affected people should be notified by appropriate means to give them an effective opportunity to become involved through formal meetings to document their fully informed inputs, views, concerns, and opinions, and ultimately give them an opportunity to help en- force environmental law and standards. This is not always clearly stipulated in the applicable statutes even though it may have been intended. This is also the process recommended by UNEP: More effective are those legislative provisions which mandate that a public hearing be held. Requiring that prior notice of the hearing be given and that it will be held in the local community likely to be affected helps ensure that in- terested parties effectively contribute to the EIA process. Government sup- port for education, training and research/development related to EIA can as- sist public participation in the process.84 Public Participation, Consultation, and Legal Enforcement Issues in SSA Countries If public participation is to become effective in African countries, it is neces- sary not only to recognize the rights of citizens in an environmental context, but also to ensure that these rights can in some meaningful way be enforced in national courts. In fact, in environmental matters, people may wish to help enforce a rule where they have suffered no legally recognizable damage. Therefore, clear procedures should be defined to allow them to bring admin- istrative or judicial proceedings or to appeal agency determinations. It is a fact that communities and environmental groups, for example, may wish to help advance the environmental protection agenda in their countries whether they suffer damage directly or not. In some SSA countries the law re- lating to associations recognizes a right of standing in favor of environmental NGOs under more or less flexible conditions. However, there should be no Chapter Four: Public Participation and Consultation During the EIA Process 29 doubt that communities ought to have a clearly defined right to seek protec- tion for their community rights. To be effective, this right should help over- come four hurdles in administrative law proceedings often faced by commu- nities (and, where permitted, NGOs): (a) the right to assert a claim (question of standing); (b) the right to adduce evidence to substantiate a claim; (c) the right to an appropriate remedy; and (d) the costs of the proceedings. This fourth condition may constitute a real obstacle to effective enforcement of meaningful community rights of participation in the EIA process in a mean- ingful way.85 CHAPTER FIVE The EIA Report This chapter deals with the EIA Report itself. First, it reviews the format and content of the Report requested from the developer or project proponent. Second, the whole EIA Report review process is surveyed, including issues of implementation monitoring and compliance with EIA recommendations. Format and Content of the EIA Report The EIA procedure provides for the preparation and review of an EIA Report (the Report). The Report is a document designed to guide the eventual deci- sion-making process concerning project feasibility and ease of implementa- tion. It is generally prepared by the project's proponent, or by a competent consultant (preferably independent).86 Many authors recommend that in the final phase of the EIA system, developers should be encouraged to use any ca- pacity at their disposal to prepare EIAs for their projects, without being oblig- ed to hire an outside consultant, with a view of developing some kind of en- vironmental awareness and self-compliance with environmental standards. There is no country in Sub-Saharan Africa where EIA consultants are certified by a regulatory agency, as is the case in other countries.87 The expenses in- curred for EIA preparation are borne by the proponent, including in some cases the costs of reviewing the EIA Report.88 In general, countries' laws and statutes define the content of the Report in different ways. Some of them state that the Report should describe the pro- posed project, its specific purposes, the affected environment and environ- mental and health impacts, including the impacts on the human and cultur- al environment in many cases. The Report is also required to provide an examination and evaluation of alternative solutions that might avoid or at least reduce and mitigate some or all of the adverse environmental impacts identified. 31 32 The Legal and Regulatory Framework for Environmental Impact Assessments However, apart from the statutes of the Republic of South Africa, which al- low some flexibility in defining the content and depth of the Report in accor- dance with the scale of the proposed project, very few SSA countries' statutes and laws link the content and depth of the Report to the scale of the pro- posed project. The South African legislation provides for a four-step proce- dure that requests the proponent to prepare: (1) a plan of study for scoping; (2) a scoping report; (3) a plan of study for environmental impact assessment; and finally (4) an environmental impact report. At each stage of the prepara- tion of the Report, a real dialogue is established among the proponent, the potentially affected people, and the regulatory authority on how to conduct and bring about the next phase. The Report is developed by the proponent after the relevant authority agrees successively on the study for scoping, the scoping report, and the plan for the study for EIA.89 This method is quite so- phisticated and gives the proponent a real opportunity to develop a sound and comprehensive EIA. It also allows the relevant authority to follow the process step by step and adapt the EIA procedure to the proposed activity and to the specific situation of the potentially impacted environment. (Box 9) All the statutes reviewed have a provision requiring that the EIA Report must provide a list of items,90 including the following: (a) a description of the project site and the reasons for rejecting other alternative sites, (b) a descrip- tion of the proposed activity, the technology, and raw materials to be used and their likely impacts on the environment, (c) an identification of the like- ly impacts, (d) comments expressed in the public participation process (where the public consultation and participation is mandated in the statutes or laws), (e) suggestions of mitigation measures, including restoration if nec- essary, (f) a plan for monitoring or managing the activity in compliance with the existing environmental laws and regulations, (g) the uncertainties of in- formation, and (h) a non-technical summary to be published. Not all the items listed are required under every law and regulation in the countries con- cerned. In some cases, the laws and statutes do not provide for a detailed de- scription of the EIA Report9' or refer to specific guidelines to be enacted by the relevant regulatory agency.92 Review of the EIA Report, Monitoring, and Auditing The purpose of the review is to obtain an impartial judgment of the particular and often conflicting interests of the various parties involved, and to avoid Chapter Five: The EM Report 33 Box 9. Developing the EIA Report South Africa Regulations 1183 of 5 September 1997 (Schedule) Plan of Study 5. (1) After considering the application made in accordance with regulation 4, the relevant authority may request the applicant: a. to submit a plan of study for scoping for the purpose of a scoping report referred to in regulation 6; or b. in a suitable case, to submit such scoping report without a prior plan of study (2) A plan of study for scoping must include: a. a brief description of the activity to be undertaken b. a description of all tasks to be performed during scoping c. a schedule setting out when the tasks contemplated in para. b will be completed d. an indication of the stages at which the relevant authority will be consulted e. a description of the proposed method of identifying the environ- mental issues and alternatives Scoping Report 6. (1) On being informed by the relevant authority that the plan of study for scoping has been accepted...the applicant must submit a scoping report...,which must include a. a brief project description b. a brief description on how the environment may be affected c. a description of environmental issues identified d. a description of all alternatives identified, and e. an appendix containing a description of the public participation process followed, including a list of interested parties and their comments. (2) The relevant authority may, after receiving the scoping report request the applicant to make the amendments that the relevant authority requires to accept the scoping report (3) After the scoping report has been accepted, the relevant au- thority may decide: continued 34 The Legal and Regulatory Framework for Environmental Impact Assessments Box 9. (continued) a. that the information contained in the scoping report is sufficient for the consideration of the application without further investi- gation b. that the information contained in the scoping report should be supplemented by an EIA which focuses on the identified alterna- tives and environmental issues identified in the scoping report. Plan for the EIA: 7. (1) In the event contemplated in regulation 6(3), the applicant must submit a plan for an EIA which must include: a. a description of the environmental issues identified during scop- ing that may require further investigation b. a description of feasible alternatives identified during scoping that may be further investigated c. an indication of additional information required to determine the potential impacts of the proposed activity d. a description of the proposed method of identifying these impacts e. a description of the proposed method of assessing the signifi- cance of these impacts Submission of the El Report: 8. (1) After the plan of study of EIA has been accepted, the applicant must submit an El report...,which must contain: a. a description of each alternative, including on (i). the extent and significance of each environmental impact (ii). the possibility for mitigation of each identified impact b. a comparative assessment of all of the alternatives, and c. appendices containing descriptions of: (i). the environment concerned (ii). the activity to be undertaken (iii). the public participation process to be followed, including a list of interested parties and their comments (iv). any media coverage given to the proposed activity, and (v). any other information included in the accepted plan of study Chapter Five: The EIA Report 35 unnecessary costs and delays.93 This is a very important issue as there is a need to proceed as quickly as possible with development projects and to re- duce their costs in developing countries. It is therefore good practice that a review be held before starting the EA process and the final EIA Report is sub- mitted for consideration for licensing purposes.94 Provision for the review process of the Report is a critical aspect of the quality control of the whole EIA. A good and sound example is provided in the case of the Republic of South Africa where statutes provide for a dialogue between the proponent and the relevant authority throughout the EIA process until the review of the final EIA Report.95 Other examples include laws and statutes of other African countries, which provide for the review of the Report as a final administrative step of the EIA preparation process. According to these laws and statutes different institutions may be mandated to review the Report: (a) a competent licensing authority; (b) an inter-agency committee or (c) an independent expert panel.96 Environmental laws and statutes establish the timeframe for the review, the sharing of information between the review agency and other agencies that may be involved in the EIA review process and the follow- up on the decision of the review agency whether it be a clearance for the project to proceed or a request for further assessment and data prior to imple- mentation.97 An effective review of the EIA Report faces two major problems. The first deals with the conflicting views that may exist among various government agencies involved in the licensing process for the development project. The laws and statutes do not always adequately address such potential conflicts and the position of the responsible agency within the government may great- ly influence its level of power to effectively review and enforce decisions re- lated to the EIA Report. The second is the weakness of the human and profes- sional capacity of almost all the review agencies in African countries.98 These problems need to be addressed urgently in order to make the mechanisms for implementing and reviewing EIAs more effective. The relevant authority should also have qualified staff at its disposal, in- cluding expert consultants with a wide range of skills to ensure that the re- view of the EIA Report is adequately and professionally done.99 The review is the first stage of a comprehensive monitoring program that can result in real improvement of project management. It is also essential for auditing envi- ronmental impact.100 36 The Legal and Regulatory Framework for Environmental Impact Assessments Finally, the review of the EIA Report should be clearly seen as part of a wider process in scope and timing which includes the EIA implementation monitoring and auditing functions. Currently, even in the average case, the EIA Report review for major projects with significant environmental impacts is done before the project is implemented. However, since the life cycle of these projects may cover a very long period of time, it is necessary to ensure that the EIA Report review extends beyond the decision to implement the project to ensure sound environmental management for the whole life of the project. This is why the EIA Report review should be considered as part of a wider process, incorporating monitoring and auditing functions into the EIA process. Unfortunately, almost all environmental laws and regulations in African countries are missing this element. This clearly points in the direc- tion of encouraging countries in Sub-Saharan Africa to move beyond EIA into the environmental assessment (from cradle to grave) process and from com- pliance with legal requirements into actual enforcement of environmental safeguards. CONCLUSION Two major issues arise when we analyze environmental law in Africa. The first relates to the absence of national capacity at all levels of government and society to bring about comprehensive and sound environmental manage- ment. The second relates to the need to harmonize EIA-related laws and regu- lations with those of neighboring countries and with international technical and financial institutions. National capacity-building and harmonization may be instrumental in facilitating the implementation of EIA requirements especially for those investors and developers which need a standardized framework to help them implement their projects on time and at the best cost possible. EILA and National Capacity-Building Enacting legislation is not enough, but it is an important step to foster envi- ronmental protection and sustainable development. However, where the na- tional capacity to implement the EIA requirement is lacking, legislation is just a useless tool. By national capacity, we mean capacity at all the levels where EIA is to be performed, reviewed, discussed, implemented, and moni- tored. These include central and local governments, decentralized agencies, the private sector, NGOs, and local communities. As of now, laws and regulations in the vast majority of African countries describe EIA mainly as a mandate of the central government (whether it is a ministry of environment, or other sectoral ministries) and of national envi- ronmental agencies. All the statutes in force in African countries recognize that these ministries and agencies are responsible for the regulation and supervision of development activities, as well as for assessing the impact such activities have on the public and the environment. Countries such as Nigeria0l1 and South Africa,'02 the first being a federal state and the second having a decentralized form of government, adopted rules to involve their 37 38 The Legal and Regulatory Framework for Environmental Impact Assessments local administrations in the EIA processes. Other statutes of African countries mention local government involvement in their public participation provi- sions.103 It may be noted that decentralization is being promoted in many African countries as a means to improve governance, stimulate economic growth of rural areas, and promote institutional efficiency. Therefore it seems appropriate to elaborate a regulatory framework to enable local governments to participate fully in the EIA implementation and review processes. The lack of relevant legal provisions in the statutes reviewed in this study may be com- pensated for by the enhancement of both environmental and decentraliza- tion legislation. Outside government, EIA increasingly mobilizes a whole range of social groups, from small national groups of technical and scientific experts to grassroots organizations and their representatives. As the role of local gov- ernments104 and local communities in planning and delivering develop- ment services increases,'05 so does the involvement of the most advanced members of these local groups in the preparation, review, and monitoring of ElAs. Without this continuum, the initial consensus built during the EIA cannot be sustained in the longer term, thus wasting the opportunity to monitor actual impacts on the environment. For the countries themselves, the implication is that: (a) rules, regulations, and capacities should not be limited to capital cities, but should go as close to the field as development activities do; (b) training programs should encompass government staff, grassroots, and EIA specialists including those from the private sector, possi- bly through the training of trainers in a "cascade" arrangement; and (c) technical and financial resources should be put at the disposal of all these groups of EIA specialists to enable them to implement fully their mandates and responsibilities.'06 As mentioned above, review of the EIA Report is part of a comprehensive monitoring and auditing process. In practice, many significant hurdles exist that limit the use of monitoring and auditing in almost all African countries. The need to ensure a credible EIA review is still to be correctly and fully taken into account in EIA-related laws and regulations. Further legal developments would have to define the process and responsibility for monitoring and au- diting in order to enhance the credibility of the regulatory agencies, the pri- vate sector, project proponents, and EIA processes as such. Conclusion 39 Toward Harmonization of EIA Legislation among SSA Countries A 1995 paper stated the importance of EA harmonization for African coun- tries.107 Harmonization of EIA procedures among these countries and with the donor community is crucial and can produce significant cost-savings. In fact, by resolving discrepancies among EIA procedures, African countries can help their own efforts to develop subregional and regional cooperation and facilitate donor funding for development projects. The compatibility of na- tional EIA procedures with those of international donor agencies would sup- port funding of investment initiatives. An EIA of such investments should be carried out at the time when funds are to be approved, in accordance with the agency's own procedures. If the domestic EIA procedures are fully com- patible with those of the funding agency, it may be possible to avoid the ex- tra cost and delay of involving the funding agency in these EIA. Harmoniza- tion helps ensure full compliance of the EIA procedures with those of the funding agencies. Several subregional organizations in Africa, notably SADCC and IGADE, have expressed an interest in taking a subregional perspective on EIA rules and requirements. This makes perfect sense in the context of the removal of any unwanted bias in subregional trade and investment. None of the subre- gional organizations, though, has succeeded in harmonizing such rules and regulations. The World Bank is helping in such a harmonization process through the Bank's Africa Region's strategy to assist with EA capacity-building in SSA.108 It will be interesting to see how proactive the subregional organiza- tions will be in promoting common approaches to EIA and how responsive governments will be. Other multilateral institutions and bilateral donors, such as UNDP, UNEP, FAO, and the Dutch government are playing an impor- tant role in developing and enhancing EIA systems in African countries, while examining ways to help harmonize them. The Africa Environmental Law Partnership Project is currently assisting African countries in a genuine effort of harmonization by providing African lawyers and officials involved in environmental management the opportunity to work together and coop- erate in the development of modern and sound EIA statutes.109 Appendices APPENDIX I. EIA-Related Issues in Sub-Saharan African Countries' Laws and Statutes APPENDIX II. Basic Features of EIA Reports in Sub-Saharan African Countries' Laws and Statutes APPENDIX III. Public Consultation and Participation in Environmental Impact Assessment-Related Legislation of African Countries APPENDIX IV. Ratification of Four Major International Environmental Conventions With Provisions on EIA APPENDIX V. Relevant Articles from Major International Environmental Conventions with Provisions on EIA APPENDIX VI. List of Environmental Impact Assessment- Related Laws, Statutes, and Regulations of Selected Sub-Saharan African Countries APPENDIX VII. Legislation from Selected Sub-Saharan African Countries 41 APPENDIX I EIA-Related Issues in Sub-Saharan African Countries' Laws and Statutes Definition of Format and Conditions EIA Implementation EIA EIA activities content and procedure teview of the EIA Issues and EIA Timing regulatory preparation to which Screening of EIA for public Transboundary and recommendations Countries required of EIA authority agency EIA applies responsibility Report participation issues approval and compliance Burkina Faso Y"° N N N N N N N Y N N Cameroon yll' N Y N112 y N N N N N Y Comoros Y"3 N N Y yl'4 N yl 5 N N N N Congo Rep.of Y N Y N Y N Y N N Y Y C6te d'lvoire Y Y Y y16 y y"17 y N"18 y Yl9 Ethiopia yl20 Gabon yl21 N Y N N Y N N N N Y Gambia y122 y y N N Y Y N N Y Y Ghana y y123 y124 Guinea Y N Y N N N N N N Y N Kenya yl25 y'26 Madagascar y'27 y Y N Y N Y Y N Y Y Malawi y128 N Y N N Y Y N'29 y'30 y y Mali y131 y Y N Y Y Y y132 y y133 Mauritius y'34 Y Y N y135 N Y Y N Y Y Namibia Y136 N Y N Y Y Y N N Y Y Nigeria y137 Y Y Y Y Y Y Y Yl38 y Y Seychelles Y'39 N Y N N N Y Y N N N South Africa Y140 y y y y y y y y y y Swaziland'4' y142 y yl43 Togo y'44 y y N N N N N N Y N Uganda y'45 N Y N N N N N N Y N Zambia Y146 y y N y'47 Y y yl4 y49 y Y Zimbabwe Y'l5 Y Y N Y Y Y Y N Y N APPENDIX II Basic Features of EIA Reports151 in Sub-Saharan African Countries' Laws and Statutes Analysis of Description of Description Description of the the aspects of the environmental of possible legal regulatory the environment management alternatives and framework and Description that have been plan including Measures to the compatibility of of the main Description signiflicantly the monitoring and taken project and the proposed activity Non-technical Content of characteristics of the affected and will control of how to reduce reasons why with environment summary EIA Report of impacting existing likely continue mitigation measures harmful they were regulations and of the and country activity environment to be affected are implemented effects not retained land-use planning EIA Report Burkina Faso N152 N N N N N N N Cameroon"' yl54 y y Y Comoros YlSS Y N Y Y N N N Congo, Rep. of Y Y Y N Y y ylS6 C6te d'lvoire Y y157 y y y y Y N Ethiopia Y Y Y N Y N N N Gabon N N N N N N N N Gambia Y Y Y y y Y158 y y Ghana Y Y N Y Y N N N Guinea Y'59 Y N Y Y N N Kenya Y Y Y N Y N N Y Madagascar Y Y Y y160 y Y N Y Malawi Y Y Y Y y y161 y y Mali Y Y y y`162 y N Y y Mauritius Y Y y y`63 y y N N Namibia Y Y Y Y Y Y Nigeria'64 Y Y Y N165 y N N Y Seychelles Y Y y y1S5 y y y y South Africa167 Y y yV68 y y y y y Swaziland Y Y N N Y N N N Togo Y Y Y Y Y Y N N Uganda"6' N N N N N N N N Zambia170 y Y Y y"71 y y N Y Zimbabwe'72 y y V V V APPENDIX III Public Consultation and Participation in Environmental Impact Assessment-Related Legislation of African Countries Publication Right of of project Right of public to Responsible Public Public documentation Public affected make claims Principle agency for consultation/ consultation/ and EIA Study consultation/ people and before courts of public public participation partcipation in locaV Disclosure partcipation the public (standing) and Issues and consultatior4 consultation/ at screening during EIA Study indigenous of EIA on final EIA to express other claim countries participation participation stage preparation languages Report'73 Report opinions procedures Burkina Faso Y'74 N N N N yl75 y y N Cameroon Y N N N N Y Y Y N Comoros N N N N N N N N N Congo,Rep.of N N N N N N N N N C6te dilvoire yt76 yl77 N N N Y N N N Ethiopia Gabon'78 N N N N N N N N N Gambia y179 y N N N y1so y N N Ghana Y Y N Y N Y Y Y N Guinea Y N N N N Y Y Y Y Kenya yl81 N N N N Y N Y Y Madagascar Y Y N N y182 N yla3 N N Malawi Y y N N yl'84 y Y y185 N Mali Y Y N Y N Y Y Y Y Mauritius Y Y N N Y18V Y V N Namibia N N N N N N N N N Nigeria y187 y N N yl88 Y189 Y Y N Seychelles yV90 y N N Y191 y y y y192 South Africa yl93 ylS4 N Y N Y Y Y Y Swaziland Y Y N N N N N Togo N N N N N N N Uganda'95 Y Y N Y Y Y Y Zambia y y y(196 y197 Y198 y y Zimbabwe Y'199 Y y2X y N y`281 APPENDIX IV Ratification of Four Major International Environmental Conventions With Provisions on EIA United Nations United Nations United Nations Convention Framework Convention Convention on Biological Convention to Combat Conventions on the Law of Diversity on Climate Desertification and countries the Sea (1982) (1992) Change (1992) (1994) Angola Y - - Y Benin Y Y Y Y Botswana y y y y Burkina Faso - Y Y Y Burundi - - - Y Cameroon y y y y Cape Verde Y Y Y Y Cent. Afr. Rep. - Y Y Y Chad - Y Y Y Comoros Y y _ y Congo, Dem. Rep. of - Y Y Y Congo, Rep. of Y Y Y Y CMte d'lvoire Y Y Y Y Djibouti y y y y Equ. Guinea Y Y - Y Eritrea _ y y y Ethiopia _ y y y Gabon Y Y - Y Gambia _ y y y Ghana - Y Y Y Guinea y y y y Guinea-Bissau Y Y Y Y Kenya Y Y Y Y Lesotho - y y y Liberia - Madagascar - Y Y Y Malawi - y y y Mali Y Y Y Y Mauritania Y y y y Mauritius Y Y Y Y Mozambique Y Y Y Y Namibia Y - Y Y Niger - Y Y Nigeria y y y y Rwanda _ y Sao-tome and Principe Y - - y Senegal y y y y Seychelles Y Y Y Y Sierra Leone Y Y Y Y Somalia y South Africa Y Y - Y Sudan Y Y Y Y Swaziland _ y y y Tanzania y y y y Togo Y Y V V Uganda Y Y Y Y Zambia y y y y Zimbabwe Y Y Y Y 49 APPENDIX V Relevant Articles from Major International Environmental Conventions with Provisions on EIA United Nations, 1992. Convention on the Law of the Sea Article 206 Assessments of potential effects of activities When States have reasonable grounds for believing that planned activities under their jurisdiction or control may cause substantial pollution of or sig- nificant and harmful changes to the marine environment, they shall, as far as practicable, assess the potential effects of such activities on the marine envi- ronment and shall communicate reports of the results of such assessments in the manner provided in article 205. United Nations, 1992. Framework Convention on Climate Change Article 4 Commitments 1. All Parties, taking into account their common but differentiated responsi- bilities and their specific national and regional development priorities, objec- tives, and circumstances, shall: (f) Take climate change considerations into account, to the extent feasible, in their relevant social, economic and environmental policies and actions, and employ appropriate methods, for example impact assessments, formu- lated and determined nationally, with a view to minimizing adverse effects on the economy, on public health and on the quality of the environment, of projects or measures undertaken by them to mitigate or adapt to climate change. United Nations, 1994. Convention to Combat Desertification Article 10 National action programmes 4. Taking into account the circumstances and requirements specific to each affected country Party, national action programmes include, as appropriate, inter alia, measures in some or all of the following priority fields as they relate 52 The Legal and Regulatory Framework for Environmental Impact Assessments to combating desertification and mitigating the effects of drought in affected areas and to their populations: promotion of alternative livelihoods and improvement of national economic environments with a view to strengthen- ing programmes aimed at the eradication of poverty and at ensuring food security; demographic dynamics; sustainable management of natural resources; sustainable agricultural practices; development and efficient use of various energy sources; institutional and legal frameworks, strengthening of capabilities for assessment and systematic observation, including hydro- logical and meteorological services, and capacity building, education and public awareness. APPENDIX VI List of Environmental Impact Assessment- Related Laws, Statutes, and Regulations of Selected Sub-Saharan African Countries202 1. Burkina Faso * Loi relative au Code de l'Environnement (no. 005/97/ADP, Jan. 30, 1997). * Loi relative au Code Forestier (no. 006/97/ADP, Jan. 31, 1997). II. Cameroon * Loi-cadre relative A la gestion de l'environnement (no. 96-12, Aug. 5, 1996). III. Comoros * Loi-cadre relative A l'environnement (no. 94-018, June 12, 1994). IV. Congo (Rep. of) * Loi sur la protection de l'environnement (no. 003/91, Apr. 23, 1991). * Decret rendant obligatoires les Etudes d'Impact sur l'Environ- nement (no. 86/775, 1986). V. Cote d'lvoire * Loi portant Code de l'Environnement (no. 96-766, Oct. 3, 1996). * Decret determinant les regles et procedures applicables a l'impact environnemental des projets de developpement (no. 96-894, Nov. 8, 1996). VI. Ethiopia * National Environmental Protection Authority Act (1992) VIZ. Gabon * Loi relative A la protection et a l'amelioration de l'environnement (no. 16/93, Aug. 26, 1993). 53 54 The Legal and Regulatory Framework for Environmental Impact Assessments VIII. Gambia * National Environment Management Act (no. 13, 1994). IX. Ghana * The Environmental Protection Agency Act (no. 490, 1994). * Procedures and Other Matters Pertaining to EIA (LI no. 1652, Feb. 26, 1999). X. Guinea * Ordonnance portant Code de l'Environnement (no. 045/PRG/87). XI. Kenya * Physical Planning Act (1996). XII. Madagascar * Loi relative A la Charte de l'Environnement malgache et annexe (no. 90-033, 1991). * Decret portant refonte du decret 92-926 du 21 octobre 1992 relatif A la mise en compatibilite des investissements avec l'environ- nement. XIII. Malawi * Act No. 23 (Aug. 16, 1996). XIV. Mali * Loi relative A la protection de l'environnement et du cadre de vie (no. 91-47/AN-RM). * Decret portant institution de la procedure d'etude d'impact sur l'environnement (no. 99-189, July 5, 1999). XV. Mauritius * The Environment Protection Act (1991, incorporating 1993 amendments). XVI. Namnibia * Environmental Assessment Policy Cabinet Resolution (no. 002, Aug. 16, 1994). Appendix VI 55 XVII. Nigeria * Federal Environmental Agency Decree (1988). * Decree No. 86 (Dec. 10, 1992, supplement to Official Gazette Extraordinary no. 73 vol. 79, part A A979, Dec. 31, 1992). * Federal Environmental Protection Act (1990, as amended by De- cree No. 52, 1992). XVIII. Seychelles * The Environment Protection Act (1994). XIX. South Africa * Environment Conservation Act (no. 73, 1989). * National Environmental Management Act (no. 107, 1998). * Regulation 1182 (Regulation Gazette, Sept. 5, 1997). * Regulation 1183 (Regulation Gazette, Sept. 5, 1997). XX. Swaziland * Swaziland Environment Authority Act (no. 15, 1992). XXI. Togo * Loi instituant Code de l'Environnement (no. 88-14, Nov. 3, 1988). XXII. Uganda * The National Environmental Statutes (May 1995). * The Environmental Impact Assessment Regulations (1998). XXIH. Zambia * Environmental Protection and Pollution Control Act (no. 12, July 20, 1990). * The Environmental Impact Regulations (statutory instrument no. 28, 1997). XXIV. Zimbabwe * Environmental Impact Assessment Policy (1994). APPENDIX VII Legislation from Selected Sub-Saharan African Countries 57 Appendix VII 59 MADAGASCAR REPOBLIKAN'I MADAGASIKARA Tanindrazana-Fahafahana-Fandrosoana MINISTERE DE L'ENVIRONNEMENT DECRET N° 99-954 relatif a la mise en compatibilite des investissements avec 1'environnement LE PREMIER MINISTRE, CHEF DU GOUVERNEMENT, Vu la Constitution, Vu la Loi no. 90-033 du 21 D&embre 1990 portant Charte de l'Environ- nement et ses modificatifs, Vu le Decret no. 95-607 du 10 Septembre 1995 portant creation et organi- sation de l'Office National pour l'Environnement et ses modificatifs, Vu le D&ret no. 98-522 du 23 Juillet 1998 portant nomination du Premier Ministre, Chef du Gouvernement, Vu le Decret no. 98-530 du 31 Juillet 1998 portant nomination des membres du Gouvernement, Vu le Decret no. 98-962 du 18 Novembre 1998 fixant les attributions du Ministre de l'Environnement ainsi que l'organisation generale de son Ministere, 60 The Legal and Regulatory Framework for Environmental Impact Assessments Sur proposition du Ministre de l'Environnement, En Conseil du Gouvernement, DECRETE: Article premier: Le present Decret a pour objet de fixer les regles et procedures a suivre en vue de la mise en compatibilite des investissements avec 1'environnement et de preciser la nature, les attributions respectives et le degre d'autorite des institutions ou organismes habilites a cet effet. CHAPITRE I DISPOSITIONS GENERALES Article 2: Au sens du present Decret, on entend par: Agrement environnemental ou Certificat de conformite: l'acte administratif delivre selon le cas par le Ministere charge de l'Environnement ou le Ministere de tutelle de l'activite, apres avis technique du CTE, de l'ONE ou de la cellule environnementale concernee, a l'issue d'une evaluation positive de la demande d'agrement environnemental (cf. articles 38 et 40) Cellule Environnementale: la cellule etablie au niveau de chaque Ministere sectoriel, et chargee de l'integration de la dimension environ- nementale dans les politiques sectorielles respectives, dans une optique de developpement durable CTE ou Comite Technique d'Evaluation ad hoc: le Comite Technique d'Evaluation ad hoc charge de l'evaluation du dossier d'EIE prevu par le present Decret CIME ou Comite Interministeriel de l'Environnement: le Comite dont les attributions sont definies par le Decret n° 97-823 du 12 Juin 1997 portant creation, organisation et fonctionnement du CIME. Appendix VII 61 EIE ou Etude d'Impact Environnemental: 1'etude qui consiste en I'analyse scientifique et prealable des impacts potentiels previsibles d'une activite donnee sur l'environnement, et en l'examen de l'acceptabilite de leur niveau et des mesures d'attenuation permettant d'assurer l'integrite de l'environnement dans les limites des meilleures technologies disponibles a un cofit economiquement acceptable MECIE: la mise en compatibilite des investissements avec l'environnement ONE ou Office National pour l'Environnement: l'organe de coordina- tion operationnelle de la mise en ceuvre des programmes environnementaux nationaux, place sous la tutelle du Ministere charge de l'Environnement et dont les attributions sont definies par le Decret n° 95-607 du 10 Septembre 1995 et ses modificatifs Permis environnemental: I'acte administratif delivre par le Ministre charge de l'Environnement a la suite d'une evaluation favorable de l'EIE PGEP: le Plan de Gestion Environnementale du Projet qui constitue le cahier de charges environnemental du dit projet et consiste en un programme de mise en ceuvre et de suivi des mesures envisagees par l'EIE pour supprimer, reduire et eventuellement compenser les consequences dommageables du projet sur l'environnement PREE ou Programme d'Engagement Environnemental: un pro- gramme, gere directement par la cellule environnementale du ministere sec- toriel dont releve la tutelle de l'activite, qui consiste en l'engagement du pro- moteur de prendre certaines mesures d'attenuation des impacts de son activite sur l'environnement, ainsi que des mesures eventuelles de rehabilita- tion du lieu d'implantation Promoteur ou investisseur: le maitre d'ceuvre du projet Quitus environnemental: l'acte administratif d'approbation par lequel l'autorite competente qui avait accorde le permis environnemental reconnait l'achevement, la regularite et l'exactitude des travaux de rehabilitation 62 The Legal and Regulatory Framework for Environmental Impact Assessments entrepris par le promoteur et le degage de sa responsabilite environnementale envers l'Etat TDR: les Termes de Reference par lesquels est fixe le cadre du contenu et de l'etendue d'une EIE (cf. article 12) Article 3: Conformement aux dispositions de I'article 10 de la Loi n° 90-033 du 21 Decembre 1990 portant Charte de l'Environnement, les projets d'investisse- ments publics ou prives, qu'ils soient soumis ou non a autorisation ou A approbation d'une autorite administrative, ou qu'ils soient susceptibles de porter atteinte A l'environnement doivent faire l'objet d'une etude d'impact. Ces etudes d'impact prennent la forme soit d'une etude d'impact environ- nemental (EIE), soit d'un Programme d'Engagement Environnemental (PREE), selon que les projets relevent des dispositions des articles 4 ou 5 suivants. Dans tous les cas, il est tenu compte de la nature technique, de l'ampleur des dits projets ainsi que la sensibilite du milieu d'implantation. Article 4: Les projets suivants, qu'ils soient publics ou prives, ou qu'ils s'agissent d'in- vestissements soumis au Droit Commun ou regis par des regles particulieres d'autorisation, d'approbation ou d'agrement, sont soumis aux prescriptions ci-apres: a) la realisation d'une etude d'impact environnemental (EIE), b) l'obtention d'un permis environnemental delivre a la suite d'une evalu- ation favorable de l'EIE, c) la delivrance d'un Plan de Gestion Environnementale du Projet (PGEP) constituant le cahier des charges environnemental du projet concerne. 1. Toutes implantations ou modifications d'amenagements, ouvrages et travaux situes dans les zones sensibles prevues par l'arrete N° 4355/97 du 13 Mai 1997 portant designation des zones sensibles. Appendix VII 63 La modification de cet arrete peut etre initiee, en tant que de besoin, par le Ministre charge de l'Environnement, en concertation avec les Ministeres sectoriels concernes. 2. Les types d'investissements figurant dans l'Annexe I du present Dcret. 3. Toutes implantations ou modifications des amenagements, ouvrages et travaux susceptibles, de par leur nature technique, leur contiguite, l'importance de leurs dimensions ou de la sensibilite du milieu d'implan- tation, d'avoir des consequences dommageables sur 1'environnement, non visees par l'article 4.1 ou par l'annexe I du present Decret et pour lesquelles, le Ministere charge de l'Environnement ou le Ministere de tutelle de l'activite concernee, dCiment saisi ou non par le promoteur, decide par voie reglementaire, apres consultation de la cellule environ- nementale du secteur concerne, qu'une EIE est necessaire. Article 5: Les projets d'investissements, publics ou prives, figurant dans l'Annexe II du present D6cret sont soumis aux prescriptions suivantes: * la production par l'investisseur d'un Programme d'Engagement Envi- ronnemental (PREE) dont le contenu, les conditions de recevabilite et les modalites d'application sont definis par voie reglementaire et par les dispositions transitoires du present decret. * une evaluation du PREE par la cellule environnementale du Ministere sectoriel directement concerne, qui etablira et enverra les rapports y afferents au Ministere charge de l'Environnement avec copie a l'ONE. Toutefois, en cas de modification d'une activite prevue a l'annexe II ten- dant A accroitre les consequences dommageables sur l'environnement, une EIE peut etre requise, conformement aux dispositions de l'article 4.3, avant l'execution des travaux de modification. Article 6: Pour les investissements, publics ou prives, vises A l'article 4, le permis envi- ronnemental constitue un prealable obligatoire A tout commencement des 64 The Legal and Regulatory Framework for Environmental Impact Assessments travaux. Le permis environnemental est delivr par le Ministre charge de l'En- vironnement sur la base de l'avis technique du CTE faisant suite a l'valua- tion de l'EIE du projet. Pour les investissements, publics ou prives, vises a I'article 5, l'approbation du PREE constitue un prealable obligatoire a tout commencement des travaux. L'approbation du PREE releve du Ministere sectoriel concerne, sur la base de l'avis technique de sa cellule environnementale. Article 7: L'EIE consiste en l'examen prealable des impacts potentiels previsibles d'une activite donnee sur l'environnement; elle devra mettre en ceuvre toutes les connaissances scientifiques pour prevoir ces impacts et les ramener a un niveau acceptable pour assurer l'integrite de l'environnement dans les limites des meilleures technologies disponibles A un couit economiquement viable. Le niveau d'acceptabilite est appr&ie en particulier sur la base des politiques environnementales, des normes legales, des valeurs limites de rejets, des cofuts sociaux, culturels et economiques, et des pertes en patrimoines. Toute absence d'EIE pour les nouveaux investissements vises A l'article 4, entraine la suspension d'activite des lors que l'inexistence du permis environ- nemental y afferent est constatee. La suspension est prononc&e conjointe- ment par le Ministere charge de l'Environnement et le Ministere sectoriel concerne, sur proposition de l'ONE, de l'autorite locale du lieu d'implanta- tion ou sur leur propre initiative. Article 8: L'ONE, en collaboration avec les Ministeres sectoriels concernes, est charge de proposer les valeurs-limites et les normes environnementales de reference et d'elaborer les directives techniques environnementales ou contribuer A leur elaboration, pour chaque type d'activite considere. I1 assure le suivi et l'evalu- ation de l'applicabilite des normes et procedures sectorielles concernees fixees pour la mise en compatibilite des investissements avec l'environnement. Article 9: Les valeurs-limites sont les seuils admissibles d'emissions ou les concentra- tions d'elements qu'un milieu recepteur peut accepter. Ces seuils et concen- trations seront fixes par voie reglementaire. Appendix VII 65 La norme est un referentiel officiel publie par un organisme independant et reconnu. Les normes tant nationales qu'intemationales ainsi que les directives en matiere environnementale seront portees a la connaissance du public par tout moyen conforme a la reglementation en vigueur. Les normes preconisees en la matiere par les organismes internationaux af- filies aux Nations Unies peuvent servir de standard de ref&ence, dans les cas oui les normes nationales sont inexistantes ou font defaut. Article 10: Sous l'impulsion du Ministere charge de l'Environnement et avec I'appui technique de l'ONE, toutes informations et toutes donnees utiles pour g&er 1'environnement en vue d'un developpement humain durable sont diffusees, chacun en ce qui le conceme, par les Ministeres sectoriels directement interesses. Les collectivites territoriales, et notamment les communes, peuvent etre associees a cette diffusion. CHAPITRE 11 DES REGLES ET PROCEDURES APPLICABLES POUR LA MISE EN COMPATIBILITE DES INVESTISSEMENTS AVEC L'ENVIRONNEMENT SECTION I Des modalites de l'etude d'impact Article 11: L'EIE, telle que visee aux articles 3 et 7, est effectuee aux frais et sous la responsabilite du promoteur. Son contenu est en relation avec l'importance des travaux et amenagements projetes et avec leurs incidences possibles sur l'environnement. Une directive, elaboree par l'ONE et dfiment approuvee par le Ministere charge de l'Environnement, precisera le contenu d'une EIE qui doit au moins comprendre: 66 The Legal and Regulatory Framework for Environmental Impact Assessments 1. Un document certifiant la situation juridique du lieu d'implantation du projet; 2. Une description du projet d'investissement; 3. Une analyse du systeme environnemental affecte ou pouvant etre affec- te par le projet; cette analyse doit aboutir A un modele schematique faisant ressortir les principaux aspects (statique ou dynamique, local ou regional) du systeme environnemental, en particulier ceux susceptibles d'etre mis en cause par l'investissement projete; 4. Une analyse prospective des effets possibles sur le systeme precedem- ment decrit, des interventions projet&es; 5. Un Plan de Gestion Environnemental du Projet (PGEP); 6. Un resume non technique redige en malagasy et en francais, afin de fa- ciliter la prise de connaissance par le public des informations contenues dans l'etude; ce resume joint A l'etude et qui en fait partie integrante, indiquera en substance en des termes accessibles au public, 1'etat initial du site et de son environnement, les modifications apportees par le pro- jet et les mesures envisagees pour pallier aux consequences dommage- ables de l'investissement A l'environnement. Les EIE des activites prevues sur un lieu concerne par un schema d'am& nagement ou des outils de planification locale ou regionale, duiment official- ises par des textes en vigueur, devront se conformer A ces schemas ou A ces documents de planification. L'EIE, redigee en malgache ou en francais, doit faire ressortir en conclu- sion les mesures scientifiques, techniques, socio-economiques, materielles envisag&es pour supprimer, reduire et eventuellement, compenser les con- sequences dommageables de l'investissement sur l'environnement. Ces mesures seront integrees dans un Plan de Gestion Environnementale du Projet (PGEP) ci-dessus. Appendix VII 67 Article 12: Sur saisine du Ministere charge de l'Environnement, de l'ONE, du Ministere sectoriel concernm ou du promoteur, toute personne physique ou morale interessee, publique ou priv&e, peut contribuer a fixer le cadre du contenu et de l'etendue d'une EIE pour les activites prevues par I'article 4 du present Decret. L'ONE est charge d'inscrire les recommandations issues des differentes en- tites prevues par F'alinea precedent pour l'e1aboration des Termes de Reference (TDR) de l'EIE A mener. L'elaboration des TDR est faite par l'ONE, conjointement avec les cellules environnementales des Ministeres sectoriels concernes et le promoteur. Une directive fixera les conditions dans lesquelles les TDR d'une EIE sont soumises au Ministere charge de l'Environnement par l'ONE. SECTION II De la procedure d'evaluation A. De la demande d'evaluation Article 13: Les conditions de recevabilite de toute demande d'evaluation de dossier des projets vises a I'article 4 du present Decret sont generalement les suivantes, a l'exception des cas particuliers de certains secteurs pour lesquels elles seront definies par voie reglementaire: Dep6t a l'ONE: * d'une demande &rite du promoteur adressee au Ministre charge de l'Environnement, * du rapport d'EIE dont le nombre d'exemplaires est pr&eis par voie reglementaire, * du recepisse de paiement de la contribution de l'investisseur aux frais d'evaluation environnementale conformement a l'article 14 du present Decret, * de toutes pi&es justificatives du montant de l'investissement projete. 68 The Legal and Regulatory Framework for Environmental Impact Assessments Le dossier est depose, contre accuse de reception, aupres de l'ONE. La transmission du dossier aux entites competentes pour l'evaluation prevues A l'article 23 du present Dcret releve de l'ONE ou du Ministere charge de l'Environnement. Dans tous les cas, le dMlai d'6valuation court A compter de la date d'emis- sion d'un avis de recevabilite du dossier par l'ONE. Article 14: La contribution de l'investisseur aux frais d'evaluation de 1'EIE est fixee selon les modalites prevues A l'Annexe III du present Dcret. Les frais d'evaluation sont verses par l'investisseur A un compte special ouvert A cet effet par l'ONE et acquittes avant toute evaluation environ- nementale de l'investissement. Les modalites d'utilisation de la somme ainsi collectee, compte tenu des attributions prevues aux articles 23 et 24 du present Dcret, seront fixees par voie reglementaire. Cette contribution peut etre comptabilise en tant que frais d'etablisse- ment. Il en est de meme en cas d'extension des investissements existants. En cas d'investissement public ou prive chelonne, le calcul de la contri- bution aux frais d'evaluation par le promoteur de l'EIE peut etre base sur un ou plusieurs lots d'investissement. Toutefois, dans ce cas, l'evaluation ne peut porter que sur les lots concernes. Les autorites competentes ne pourront en aucun cas etre liees par les decisions relatives A ces premieres evaluations pour la suite des evaluations restantes. Les modifications de l'envergure effective du projet par rapport au projet initial peuvent n&essiter des mesures supplementaires. Ces cas seront pre- cises par voie r6glementaire. B. De la participation du public a l'evaluation Article 15: La participation du public A l'evaluation se fait soit par consultation sur place des documents, soit par enquete publique, soit par audience publique. Les resultats de la participation du public A l'valuation constituent une partie integrante de l'evaluation de l'EIE. La decision sur la forme que prendra la participation du public A l'evalua- tion sera definie dans des directives techniques environnementales edictees Appendix VII 69 par le CTE ou l'ONE, et notifiees au promoteur au moins quinze (15) jours avant l'evaluation par le public. L'organisation d'audiences a divers niveaux (local, regional ou national) est laissee A l'appreciation du CTE ou de l'ONE. Dans tous les cas, les proc& dures a suivre sont celles prevues par les articles 16 A 21 du present Decret. 1. De la consultation sur place des documents Article 16: La consultation sur place des documents consiste en un recueil des avis de la population concern&e par l'autorite locale du lieu d'implantation. Article 17: Les modalites pratiques de conduite de la consultation sur place des docu- ments seront definies par voie reglementaire. Toutefois, la duree de l'ensemble des procedures relatives A cette consulta- tion ne devrait pas etre inferieure A dix (10) jours ni superieure a trente (30) jours. 2. De l'enquete publique Article 18: L'enquete publique consiste en un recueil des avis de la population affectee, par des enqueteurs environnementaux. Parallelement aux procedures d'enquete publique, une consultation sur place des documents peut etre menee aupres du public concerne. Article 19: La conduite des operations d'enquete publique est assuree par des enqueteurs, en collaboration avec les autorites locales du lieu d'implantation du projet. Les personnes interessees A l'operation, A titre personnel ou familial, en raison de leur fonction au sein du Ministere, de la collectivite, de l'organisme ou du service qui assure la maitrise d'ouvrage, la maltrise d'oeuvre ou le con- trole de l'operation ne peuvent etre designees comme enqueteurs. Les modalites pratiques de conduite de l'enquete publique seront definies par voie reglementaire. 70 The Legal and Regulatory Framework for Environmental Impact Assessments Toutefois, la duree de l'ensemble des procedures relatives A cette enquete publique ne devrait pas etre inferieure a quinze (15) jours ni sup&ieure A quarante cinq (45) jours. 3. De l'audience publique Article 20: L'audience publique consiste en une consultation simultanee des parties in- teressees. Chaque partie a la faculte de se faire assister par un expert pour chaque domaine. ParalMlerment aux procedures d'audience publique, une consultation sur place des documents ou une enquete publique peut etre menee aupres du public concerne. Article 21: La conduite des operations d'audience publique est assuree par des auditeurs, en collaboration avec les autorites locales du lieu d'implantation du projet. Les personnes int6ress6es A l'operation, A titre personnel ou familial, en raison de leur fonction au sein du Ministere, de la collectivite, de l'organisme ou du service qui assure la maitrise d'ouvrage, la maitrise d'oeuvre ou le con- tr6le de l'operation ne peuvent etre designees comme auditeurs. Les modalites pratiques de conduite de l'audience publique seront definies par voie reglementaire. Toutefois, la duree de l'ensemble des procedures relatives A cette audience publique ne devrait pas etre inferieure A vingt cinq (25) jours ni superieure A soixante dix (70) jours. SECTION III De l'evaluation environnementale Article 22: L'evaluation environnementale consiste A verifier si dans son etude, le pro- moteur a fait une exacte application des dispositions prevues aux articles 7 et 11 du present Decret, et si les mesures proposees pour prevenir et/ou corriger les effets nefastes previsibles de l'investissement sur l'environnement sont suffisantes et appropri&s. Appendix VII 71 L'evaluation environnementale doit egalement prendre en compte toutes les autres dimensions de l'environnement telles qu'elles ressortent de la con- sultation sur place des documents, de lFenquete ou de l'audience publique. L'evaluation environnementale mettra en relief que le projet soumis est celui du moindre impact, les impacts anticipes pourraient etre attenues et les impacts residuels acceptables. A. Des organes d'evaluation environnementale Article 23: Un Comite Technique d'Evaluation ad hoc (CTE) est constitue pour l'evalua- tion de chaque dossier d'EIE. Ce Comite, nomme par decision du Ministre charge de l'Environnement, sur proposition de l'ONE et du Ministere sectoriel concerne, est compose notamment de responsables des cellules environnementales des Ministeres sectoriels concernes, de l'ONE, et du Min- istere charge de l'Environnement. Le Ministere charge de l'Environnement preside le CTE dont le Secretariat est assure par F'ONE. Le CTE procede a l'evaluation administrative et technique d'un dossier d'EIE et delivre un avis technique. Pour F'evaluation du dossier d'EIE, le CTE peut, suivant la sp&ificite du dossier, faire appel a d'autres Ministeres ou or- ganismes environnementaux concernes par le Projet, ou solliciter, en tant que de besoin, le service d'autres experts. Article 24: Toute ou partie des attributions du CTE en matiere d'evaluation peuvent etre, eventuellement, deleguees aux communes ou a des structures decentralisees des lieux d'implantation de l'investissement, suivant un cahier des charges qui specifierait les obligations techniques et administratives de chaque partie. Le choix des communes ou des structures decentralisees se fera notam- ment sur la base de leurs competences propres, de leur structure administra- tive, de l'existence de services competents dans leurs circonscriptions. En ce qui concerne les investissements situes en zones urbaines, les attributions environnementales des Communes definies dans ce Decret peuvent etre transferees aux Fokontany par les autorites competentes et sur 72 The Legal and Regulatory Framework for Environmental Impact Assessments proposition du Ministre charge de l'Environnement qui peut recevoir a cet effet l'avis du CTE ou de l'ONE. B. Du delai d'evaluation Article 25: Le rapport d'evaluation et l'avis correspondant devront parvenir au Ministere charge de l'Environnement au plus tard soixante (60) jours a compter de la reception des dossiers complets emanant du promoteur, dans le cas d'enquete publique ou de consultation sur place des documents. Pour les dossiers a audiences publiques, le delai requis est de cent vingt (120) jours au maximum. Toutefois, aux delais ci-dessus sont rajoutes les temps de reponse des promoteurs si le CTE leur adresse pendant le temps de son evaluation, tel que prevu aux alineas 1 et 2 du present article des questions ou des demandes d'informations supplementaires. Le CTE dispose en outre d'un delai de dix (10) jours a compter de la reception de ces informations supplementaires pour leur analyse. Article 26: Pour les activites visees a l'article 4.2 d'une certaine envergure a definir par voie reglementaire et celles visees A l'article 4.3, il est possible d'etablir, apres avis de l'ONE et du Ministre charge du secteur concerne, une convention spe- cifique entre le Ministre charge de l'Environnement et le promoteur, quant aux delais et aux procedures de l'evaluation. C. De l'octroi du permis environnemental Article 27: Dans les quinze (15) jours ouvrables a compter de la reception du rapport d'EIE, du rapport d'evaluation par le public et de l'avis technique d'evalua- tion du CTE, le Ministre charge de l'Environnement doit se prononcer sur l'octroi ou non du permis environnemental. II peut demander A l'ONE ou au CTE une (ou des) seance(s) d'explication technique du dossier. Appendix VII 73 Le permis environnemental est insere dans toute demande d'autorisation, d'approbation ou d'agrement des travaux, ouvrages et amenagements projetes. D. Des procedures de recours Article 28: Outre les procedures de droit commun, en cas de refus motive et dulment no- tifie de delivrance du permis environnemental par le Ministre charge de l'En- vironnement, le promoteur peut solliciter le CIME pour un deuxieme exam- en de son dossier. Le resultat de cette contre-expertise de l'evaluation servira de nouvelle base au Ministre charge de l'Environnement pour se prononcer sur l'octroi ou non du permis environnemental. Le CIME, assiste d'un groupe d'experts de son choix, disposera d'un delai de trente (30) jours pour le contr6le de l'evaluation effectuee et transmet- tra les resultats de ses travaux au Ministre charge de l'Environnement qui de- vra se prononcer dans un delai de dix (10) jours ouvrables au maximum a compter de la reception du dossier y afferent. En cas de nouveau refus, le recours aux institutions environnementales n'est plus recevable. CHAPITBE III DU SUIVI ET DU CONTROLE Article 29: L'execution du PGEP consiste en l'application par le promoteur, pendant la duree de vie du projet, des mesures prescrites pour supprimer, reduire et eventuellement compenser les consequences dommageables sur l'environ- nement. Le suivi de l'execution du PGEP consiste a verifier l'evolution de l'etat de l'environnement ainsi que lFefficacite des mesures d'attenuation et des autres dispositions preconis&es par ledit PGEP. Le contr6le est une activite qui vise A assurer que le promoteur respecte, tout au long du cycle du projet, ses engagements et ses obligations definis dans le PGEP, et A l'octroi de sanctions en cas d'inapplication de ceux-ci. 74 The Legal and Regulatory Framework for Environmental Impact Assessments Article 30: Si par suite d'un bouleversement de 1'6quilibre environnemental, les mesures initialement prises se revelent inadaptees, l'investisseur est tenu de prendre les mesures d'ajustement n&essaires en vue de la mise en compatibilite permanente de ces investissements avec les nouvelles directives et les normes environnementales applicables en la matiere. La decision sera prise par 1'autorite materiellement ou sectoriellement competente conjointement avec le Ministre charge de l'Environnement, sur proposition du CTE et avec I'appui technique de l'ONE. La decision pr&isera les nouvelles mesures correctrices et/ ou compensatoires retenues ainsi que le delai d'execution qui ne pourra depasser les trois ans. Avant la fermeture du projet, le promoteur doit proceder a un audit envi- ronnemental dont les modalites de mise en ceuvre seront definies par voie reglementaire. Cet audit est soumis A l'ONE pour evaluation, dont le resultat servira de base A la delivrance d'un quitus environnemental par le Ministere charge de l'Environnement. L'obtention du quitus environnemental est necessaire pour degager la responsabilite environnementale du promoteur envers l'Etat. Article 31: En cas de cession, le cessionnaire se trouve subroge dans les droits, avantages et obligations du cedant. Si des modifications sont apport&es par le cessionnaire au projet initial, une nouvelle etude d'impact obeissant aux regles et procedures prevues par le present texte est requise si les modifications, additifs ou rectificatifs impliquent une modification des mesures prises en matiere de protection de l'environnement. Article 32: L'ex&ution du PGEP releve de la responsabilite du promoteur. Le promoteur adresse les rapports periodiques de l'execution du PGEP au Ministere charge de l'Environnement, au Ministere de tutelle de l'activite concernee, A l'ONE avec ampliation au Maire de la Commune d'implantation. Appendix VII 75 Article 33: Pour les projets vises A l'article 4 du present Decret, les travaux de suivi et de contr6le sont assures conjointement par le Ministere charge de l'Environ- nement, le Ministere de tutelle de l'activite concernee, et l'ONE, qui peuvent, en cas de necessite dictee par la sp&ificite et 1'envergure du projet, solliciter le service d'autres entites ou experts. Pour les projets vises A l'article 5 du present Decret, les travaux de suivi et de contr6le relevent des cellules environnementales des Ministeres sectoriels concernes qui enverront les rapports y afferents au Ministere charge de l'Environnement et A l'ONE. Dans tous les cas, les autorites locales des lieux d'implantation de ces pro- jets seront associ&s aux travaux de suivi et de contr6le, et le cas &ehant, les organismes environnementaux concernes par lesdits projets. CHAPITRE IV DES MANQUEMENTS ET SANCTIONS Article 34: Constituent des manquements susceptibles de faire encourir des sanctions A l'auteur: * le non respect du plan de gestion environnementale du projet (PGEP); * le fait pour tout investisseur d'avoir entrepris des travaux, ouvrages et amenagements tels qu'ils sont definis A l'article 4 et A I'Annexe I du present Decret, sans obtention prealable du permis environnemental y afferent; * le fait pour tout investisseur d'avoir entrepris des travaux, ouvrages et amenagements tels qu'ils sont definis A l'article 5 et A l'Annexe II du present Decret, sans approbation prealable du PREE y afferent; * le fait par tout investisseur de s'tkre abstenu de prendre les mesures de correction et/ou de compensation prescrites en cas de manquement dument constate; * l'inex&eution totale ou partielle dans le dMlai prescrit des mesures de mise en conformite de l'investissement avec l'environnement. 76 The Legal and Regulatory Framework for Environmental Impact Assessments Article 35: En cas de non-respect du PGEP, le Ministere charge de l'Environnement ou le Ministere sectoriel competent adresse A l'investisseur fautif un avertissement par lettre recommandee. Si l'investisseur neglige de regulariser la situation ou s'abstient de le faire dans un delai de trente (30) jours apres la notification du premier avertisse- ment, un nouvel avertissement lui est signifie lequel sera accompagne de l'une ou des sanctions prevues a l'article suivant. Article 36: Le Ministre charge de l'Environnement, en concertation avec le Ministere sectoriel competent et la Commune concemee, peut prononcer les sanctions suivantes: * injonction de remise en etat des lieux conformement aux normes envi- ronnementales; * injonction de proceder dans un delai prefixe A la mise en ceuvre de mesures de correction et de compensation sous peine d'astreintes; * suspension ou retrait du permis environnemental; * suspension d'activite, conformement aux dispositions de l'article 7 alinea 2. Independamment de ce retrait du permis environnemental, le Ministere sectoriel responsable peut prononcer: * l'arret des travaux en cours; * la fermeture temporaire ou definitive de l'etablissement. Article 37: Les sanctions administratives prononcees par l'autorite legalement comp& tente et les penalites assortissant la reglementation environnementale en vigueur, ne portent pas prejudice A l'application des sanctions complemen- taires prevues par les dispositions des textes reglementaires en vigueur au niveau des secteurs concernes. Appendix VII 77 CHAPITRE V DISPOSITIONS TRANSITOIRES Article 38: Tout investissement en cours au jour de la publication du present Decret et rentrant dans les categories visees a l'article 4 du present Dcret, doit s'ajuster aux directives et normes de gestion rationnelle de l'environnement mention- nees a I'article 7 du present Dcret. Sont consideres comme investissements en cours, les investissements pour lesquels le dossier complet de demande d'autorisation, d'approbation ou d'agrement est dejA depose selon les prescriptions legales ou reglementaires en vigueur. Dans les neuf (9) mois suivant la sortie du present Decret, les promo- teurs concernes sont tenus d'en faire la declaration au Ministere charge de l'Environnement, avec copie a l'ONE, et de faire connaitre, compte tenu des directives et normes environnementales applicables pour les types d'in- vestissement considere, les mesures deja prises, en cours ou envisag&es pour la protection de l'environnement. La declaration accompagn&e de tout document utile, doit faire ressor- tir les moyens permettant le suivi, l'evaluation et le contr6le de l'investissement. La d&claration qui vaut demande d'evaluation est etablie et depos6e suivant les memes procedures qu'une demande d'evaluation d'une EIE. Article 39: L'evaluation environnementale des dossiers vises a l'article 38 pr&edent est faite par le CTE suivant les memes procedures qu'une evaluation d'une EIE. Le CTE peut demander a l'investisseur tout element d'informations com- plementaires ou meme prescrire une nouvelle etude environnementale. Un certificat de conformite est delivre a l'issue d'une evaluation positive d'une demande d'agrement environnemental. Le PGEP issu de la demande d'agrement environnemental est suivi et con- tr6le suivant les dispositions prevues par les articles 29 a 33. 78 The Legal and Regulatory Framework for Environmental Impact Assessments Article 40: Dans les quinze (15) mois suivant la sortie du present Decret, les promo- teurs de toutes les activites en cours vis&es a l'article 5 du present Decret sont tenus de presenter au Ministere sectoriel competent, une demande d'agr& ment environnemental suivant les memes procedures qu'une demande d'evaluation d'un PREE. L'analyse du dossier d'evaluation incombe a la cellule environnementale du Ministere de tutelle de l'activite qui delivre, A l'issue d'une evaluation pos- itive, un agrement environnemental et envoie les rapports y afferents au Min- istere charge de l'Environnement avec copie A l'ONE. Article 41: La mise en conformite de tous les projets d'investissement en cours, selon les d&clarations ou demandes d'agrement environnemental y afferentes, ne peut exceder une periode de trois (3) ans. Toutefois, si les activites en cours en- trainent des prejudices objectifs, des mesures conservatoires seront pronon- cees conjointement par le Ministre charge de l'Environnement et le Ministre sectoriellement competent. Copie de la d&cision est communiquee a l'autorite locale du lieu d'implan- tation pour information. Ces dispositions ne portent pas prejudice A l'application des dispositions des textes reglementaires en vigueur au niveau des secteurs concernes. Article 42: Le promoteur qui, apres avoir fait l'objet d'un rappel par lettre recommand6e des autorites competentes, ne se conforme pas aux presentes dispositions, et ne presente pas la demande d'agrement environnemental exige encourt les sanctions prevues a l'article 36 du present Decret. CHAPITRE VI DISPOSITIONS DIVERSES Article 43: Sont et demeurent abrog&es toutes dispositions reglementaires anterieures contraires au present Decret, notamment celles du Decret n° 95-377 du 23 Mai 1995 relatif A la mise en compatibilite des investissements avec l'environ- nement. Appendix VII 79 Article 44: Des textes reglementaires fixeront, en tant que de besoin, les modalites d'application du present Decret, notamment dans le cas de certains secteurs oui des arretes conjoints des ministres charges respectivement de 1'environ- nement et du secteur concerne devront en preciser les modalites particulieres d'application. Article 45: Le Vice-Premier Ministre charge du Budget et du Developpement des Provinces Autonomes, le Ministre des Finances et de l'Economie, le Ministre de la Justice, Garde des Sceaux, le Ministre de l'Interieur, le Ministre de la Sante, le Ministre des Travaux Publics, le Ministre de l'Amenagement du Territoire et de la Ville, le Ministre de I'Agriculture, le Ministre de la Pche et des Ressources Halieutiques, le Ministre du Tourisme, le Ministre des Eaux et Forets, le Ministre de l'Energie et des Mines, le Ministre de l'Industrie et de I'Artisanat, le Ministre de l'Elevage, le Ministre de la Recherche Scientifique et le Ministre de l'Environnement sont charges, chacun en ce qui le concerne, de 1'execution du present Decret qui sera publie au Journal Officiel de la Republique de Madagascar. Fait A Antananarivo, le 15 Decembre 1999 ANNEXE I Au decret n° 99 954 du 15 D&embre 1999 fixant les nouvelles dispositions relatives ta la mise en compatibilite des investissements avec l'environnement PROJETS OBLIGATOIREMENT SOUMIS A ETUDE D'IMPACT ENVIRONNEMENTAL (EIE) Sont soumises a l'etude d'impact environnemental toutes activites citees ci-dessous ou atteignant l'un des seuils suivants: * Tous amenagements, ouvrages et travaux pouvant affecter les zones sensibles 80 The Legal and Regulatory Framework for Environmental Impact Assessments * Tout plan, programme ou politique pouvant modifier le milieu naturel ou l'utilisation des ressources naturelles, et/ou la qualite de l'environ- nement humain en milieu urbain et/ou rural * Toute utilisation ou tout transfert de technologie susceptible d'avoir des cons6quences dommageables sur l'environnement * Tout entreposage de n'importe quel liquide au-delA de 50 000 m3 * Tout transport commercial regulier et frequent ou ponctuel par voie routiere, ferroviaire ou aerienne de mati&es dangereuses (corrosives, toxiques, contagieuses ou radioactives, etc.) * Tout deplacement de population de plus de 500 personnes * Les amenagements, ouvrages et travaux susceptibles, de par leur nature technique, leur ampleur et la sensibilite du milieu d'implantation d'avoir des consequences dommageables sur l'environnement. Parmi ces activites, on peut citer: INFRASTRUCTURES ET AMENAGEMENTS/ AGRICULTURE/ELEVAGE * Tout projet de construction et d'amenagement de route, revftue ou non * Tout projet de construction et d'amenagement de voie ferr&e * Tout projet de rehabilitation de voie ferree de plus de 20 km de long * Tout projet de construction, d'amenagement et de rehabilitation d'aeroport A vocation internationale et regionale et nationale et/ou de piste de plus de 1.500 m * Tout projet d'amenagement, de rehabilitation et d'entretien (precise- ment dragage) des ports principaux et secondaires * Tout projet d'implantation de port maritime ou fluvial * Tout projet d'excavation et remblayage de plus de 20.000 m3 * Tout projet d'amenagement de zones de developpement * Tout projet d'energie nucleaire * Toute installation hydroelectrique de plus de 150 MW * Tout projet de centrale thermique ayant une capacite de plus de 50 MW * Tout projet d'installation de ligne electrique d'une tension superieure ou egale A 138 KV * Tout projet de barrage hydroelectrique d'une superficie de retention de plus de 500 ha Appendix VII 81 * Tout projet d'amenagement des voies navigables (incluant le dragage) de plus de 5 km * Tout projet d'amenagement ou de rehabilitation hydroagricole ou agri- cole de plus de 1000 ha * Tout projet d'elevage de type industriel ou intensif * Tout prelevement d'eau (eau de surface ou souterraine) de plus de 30 m3/h * Tout projet d'epandage de produits chimiques susceptible, de par son envergure, de porter atteinte a l'environnement et a la sante humaine RESSOURCES NATURELLES RENOUVELABLES * Toute introduction de nouvelles especes, animales ou vegetales, ou d'organismes genetiquement modifies (OGM) sur le territoire national * Toute exploitation forestiere de plus de 500 ha * Toute collecte et/ou chasse et vente d'especes n'ayant jamais fait l'objet de commercialisation par le passe * Tout projet de creation de parcs et reserves, terrestres ou marins, d'en- vergure nationale et regionale * Toute introduction d'espees presentes a Madagascar mais non preal- ablement presentes dans la zone d'introduction * Tout projet de chasse et de pehe sportives TOURISME ET HOTELLERIE * Tout amenagement hotelier d'une capacite d'hebergement superieure a 120 chambres * Tout amenagement recreo-touristique d'une surface combinee de plus de 20 hectares * Tout restaurant d'une capacite de plus de 250 couverts SECTEUR INDUSTRIEL * Toute unite industrielle soumise a autorisation, conformement aux dispositions des textes reglementaires en vigueur de la Loi 99-021 du 82 The Legal and Regulatory Framework for Environmental Impact Assessments 19 Aout 1999 relative a la politique de gestion et de controle des pollu- tions industrielles * Toute unite de transformation de produits d'origine animale (con- serverie, salaison, charcuterie, tannerie, ...) de type industriel * Toute unite de fabrication d'aliments du betail permettant une capacite de production de plus de 150 t/an GESTION DE PRODUITS ET DECHETS DIVERS * Toute unite de stockage de pesticides d'une capacite sup&ieure a 10 tonnes * Toute unite de recuperation, d'e1imination ou de traitement de dechets domestiques, industriels, et autres.dechets a caractere dangereux * Toute unite de traitement ou d'elimination de dechets hospitaliers ex- cedant 50 kg/j * Tout type de stockage de produits et/ou de dechets radioactifs * Tout stockage de produits dangereux * Toute unite de traitement d'eaux usees domestiques. SECTEUR MINIER * Toute exploitation ou extraction miniere de type mecanise * Toute exploitation de substances radioactives * Tout traitement physique ou chimique sur le site d'exploitation de sub- stances minieres * Tout projet de recherche d'une envergure d6finie par arrete conjoint des Ministres charges respectivement de l'Environnement et des Mines a partir de la phase de developpement et/ou de la faisabilite HYDROCARBURES ET ENERGIE FOSSILE * Tout projet d'exploration du petrole ou de gaz naturel utilisant la meth- ode sismique et/ou forage * Tout projet d'extraction et/ou de transport par pipeline de petrole ou de gaz naturel * Tout projet d'extraction et d'exploitation industrielle de charbon de terre ou cokeries Appendix VII 83 * Tout projet d'implantation de raffinerie de petrole brut, de gazeification et de liquefaction de capacite de plus de 20 000 barils equivalent- petrole/jour * Tout projet d'implantation offshore * Tout projet d'extraction de substances minerales bitumineuses de plus de 500 m3/jour * Tout projet de stockage de produits petroliers et derives ou de gaz naturel d'une capacite combinee de plus de 25 000 m3 ou 25 millions de litres ANNEXE II Au decret n°99 954 du 15 decembre 1999 fixant les nouvelles dispositions relatives a la mise en compatibilite des investissements avec l'environnement INVESTISSEMENT OBLIGATOIREMENT soumis A UN PROGRAMME D'ENGAGEMENT ENVIRONNEMENTAL (PREE) Sont soumises a l'approbation d'un programme d'engagement envi- ronnemental (PREE) toutes actlvites citees ci-dessous ou atteignant l'un des seulls suivants: INFRASTRUCTURES ET AMENAGEMENTS/AGRICULTURE/ ELEVAGE * Tout projet d'entretien periodique de route revetue de plus de 20 km * Tout projet d'entretien periodique de route non revetue de plus de 30 km * Toute industrie en phase d'exploitation * Toute installation hydroelectrique d'une puissance comprise entre 50 et 150 MW * Tout projet de centrale thermique d'une puissance comprise entre 25 et 50 MW * Tout amenagement de terrain destine A recevoir des equipements collectifs de plus de 5000 spectateurs ou de plus de 3 ha 84 The Legal and Regulatory Framework for Environmental Impact Assessments * Tout projet de barrage hydroelectrique d'une superficie de retention comprise entre 200 et 500 ha * Tout projet d'amenagement ou de rehabilitation hydroagricole ou agri- cole d'une superficie comprise entre 200 et 1000 ha * Tout projet d'elevage de type semi-industriel et artisanal RESSOURCES NATURELLES RENOUVELABLES * Toute exploitation forestiere de plus de 150 ha * Tout permis de capture et de vente d'especes de faune destinees A l'exportation * Tout projet de creation de parcs et reserves d'envergure communale et priv6e * Toute reintroduction d'esp&ces dans une zone ouj elle etait prealable- ment presente * Toute utilisation ou deviation d'un cours d'eau classe, permanent, de plus de 50% de son debit en p&iode d'etiage * Tout permis de collecte et de vente d'esp&es destinees A l'exportation * Toute augmentation de l'effort de p&he en zone marine par type de ressources (une etude de stock prealable est requise) TOURISME ET HOTELLERIE * Tout amenagement h6telier d'une capacite d'hebergement comprise entre 50 et 120 chambres * Tout amenagement recreo-touristique d'une surface comprise entre 2 et 20 ha * Tout restaurant d'une capacite comprise entre 60 et 250 couverts SECTEUR INDUSTRIEL * Toute unite industrielle soumise a declaration, conformement aux dispositions des textes reglementaires en vigueur de la Loi 99-021 du 19 Aofit 1999 relative A la politique de gestion et de contr6le des pollu- tions industrielles * Toute unite de transformation de produits d'origine animale de type artisanal Appendix VII 85 GESTION DE PRODUITS ET DECHETS DIVERS * Tout stockage de produits pharmaceutiques de plus de 3 tonnes SECTEUR MINIER * Tout projet de recherche miniere (cf. Code Minier, cas PR) * Tout projet d'exploitation de type artisanal (cf. Code Minier, cas PRE) * Toute extraction de substances minieres des gisements classes rares * Toute orpaillage mobilisant plus de 20 personnes sur un rayon de 500 m et moins * Tout projet de stockage de capacite combinee de plus de 4000 m3 * Tout projet de stockage souterrain combine de plus de 100 m3 * Tout projet d'extraction de substance de carriere de type mecanise ANNEXE III Au decret n° 99 954 du 15 Decembre 1999 fixant les nouvelles dispositions relatives a la mise en compatibilite des investissements avec 1'environnement CONTRIBUTION DU PROMOTEUR AUX FRAIS D'EVALUATION DE L'EIE Tout promoteur dont le projet est soumis A une Etude d'Impact Environ- nemental (EIE) est tenu de contribuer aux frais d'evaluation de leur dossier, selon le niveau d'investissement et conformement aux prescriptions ci-apres: 1. Les frais fixes correspondent aux frais d'evaluation de l'etude d'impact (EIE), dont: * les frais des cellules environnementales des ministeres sectoriels * les frais des experts sollicites lors de l1'valuation * les frais occasionnes par le deplacement des membres du CTE, et par l'enquete ou audience publique 86 The Legal and Regulatory Framework for Environmental Impact Assessments Les modalites d'utilisation de ces fonds seront fixees par voie reglemen- taire. 2. Le promoteur doit verser, au compte prevu A cet effet et qui sera audite annuellement, les montants suivants: * 0,5% du montant de l'investissement materiel lorsque celui-ci est in- ferieur A 10 milliards de FMG * 10 millions de FMG majores de 0,4% du montant de l'investisse- ment materiel lorsque celui-ci est compris entre 10 milliards et 25 milliards de FMG * 35 millions de FMG majores de 0,3% du montant de l'investisse- ment materiel lorsque celui-ci est compris entre 25 milliards et 125 milliards de FMG * 160 millions de FMG majores de 0,2% du montant de l'investisse- ment materiel lorsque celui-ci est compris entre 125 milliards et 250 milliards de FMG * 410 millions de FMG majores de 0,1% du montant de l'investisse- ment materiel lorsque celui-ci est superieur a 250 milliards de FMG 3. La provision A verser, le cas &heant, par le promoteur pour les frais engendres par le controle et le suivi du PGEP, sera fixee conjointement par arrete des Ministres charges respectivement de l'Environnement et du secteur concerne. Appendix VII 87 NAMIBIA ENVIRONMENTAL ASSESSMENT POLICY: Cabinet Resolution 16.8.94/002. PREAMBLE THE GOVERNMENT OF THE REPUBLIC OF NAMIBIA RECOGNIZES THAT: 1. "The State shall actively promote and maintain the welfare of the people by adopting policies aimed at: The maintenance of ecosystems, essential ecological processes and b.o- logical diversity of Namibia and utilization of living natural resources on a sustainable basis for the benefit of all Namibians, both present and future . . . " [Constitution of the Republic of Namibia-Art 95 (1)]. 2. There is an urgent and fundamental need for economic development, foreign investment and the alleviation of poverty [Namibia's Gre2n Plan-chapter 11 (j)]. 3. Namibia has inherited a colonial legacy of institutionalized segregation which has led to economic disenfranchisement and contributed to gen- eral environmental degradation and habitat destruction in certain are as [Namibia's Green Plan-chapter 11 (j)] . 4. Namibia is dependent on natural resources and certain biophysical components are vulnerable to environmental degradation. It is 88 The Legal and Regulatory Framework for Environmental Impact Assessments specifically acknowledged that Namibia is an arid country and that the scarcity of water and the country's limited human and animal carrying capacity need to be taken into account prior to policy for- mulation and during all stages of planning. 5. Environmental Assessments are a key tool, amongst others, to further the implementation of a sound environmental policy which strives to achieve Integrated Environmental Management (IEM). THE GOVERNMENT OF THE REPUBLIC OF NAMIBILA further DECLARES the following as relevant to its ENVIRONMENTAL ASSESSMENT POLICY: 1. The principle of achieving and maintaining sustainable development must underpin all policies, programmes and projects undertaken with- in Namibia. In particular, the wise utilization of the country's natural resources, together with the responsible management of the biophysi- cal environment, must be for the benefit of both present and future generations. 2. Namibia shall place a high priority on: (i) maintaining ecosystems and related ecological processes, in partic- ular those important for water supply, food production, health, tourism and sustainable development; (ii) observing the principle of optimum sustainable yield in the ex- ploitation of living natural resources and ecosystems, and the wise utilization of non- renewable resources; (iii) maintaining representative examples of natural habitats; (iv) maintaining maximum biological diversity by ensuring the sur- vival and promoting the conservation in their natural habitat of all species of fauna and flora, in particular those which are endem- ic, threatened, endangered, and of high economic, cultural, educa- tional, scientific and conservation interest. 3. Namibia shall pursue an active administrative and legislative pro- gramme to achieve Integrated Environmental Management through, Appendix VII 89 inter alia, the execution of ENVIRONMENTAL ASSESSMENTS in accordance with the ENVIRONMENTAL ASSESSMENT policy which follows: NAMIBIA'S ENVIRONMENTAL ASSESSMENT POLICY The Government of Namibia: RECOGNIZING that Environmental Assessments (EA's) seek to ensure that the environmental consequences of development projects and policies are considered, understood and incorporated into the planning process, and that the term ENVIRONMENT (in the context of IEM and EA's) is broadly intEr- preted to include biophysical, social, economic, cultural, historical and pol.t- ical components; DECLARES the following ENVIRONMENTAL ASSESSMENT policy for Namibia: 1. All listed policies, programmes and projects, whether initiated by the government or the private sector, should be subjected to the estab- lished EA procedure as set out in Appendix A. A list of policies, pro- grammes and projects requiring an EA is set out in Appendix B. 2. The EA procedure will, as far as is practicable, set out to: (i) better inform decision makers and promote accountability for decisions taken, (ii) consider a broad range of options and alternatives when address- ing specific policies, programmes and projects, (iii) strive for a high degree of public participation and involvement by all sectors of the Namibia community in the EA process, (iv) take into account the environmental costs and benefits of pro. posed policies, programmes and projects, (v) incorporate internationally accepted norms and standards wherE appropriate to Namibia, (vi) take into account the secondary and cumulative environmental impacts of policies, programmes and projects, 90 The Legal and Regulatory Framework for Environmental Impact Assessments (vii) ensure that the EA procedure is paid for by the proponent. In cer- tain cases, such as programmes initiated by the State, it is recog- nized that the Government is the proponent and will meet the costs of an independent EA, (viii) promote sustainable development in Namibia, and especially en- sure that a reasonable attempt is made to minimize anticipated negative impacts and maximize the benefits of all developments, (ix) be flexible and dynamic, thereby adapting as new issues, informa- tion and techniques become available. 3. This policy recognizes the inherent need to incorporate adequate provi- sions to achieve "reduction-at-source" in the areas of pollution control and waste management. 4. The costs of EA shall be borne by the proponent who is also responsible for ensuring that the quality of the EA and the EA Report are of an ac- ceptable standard. 5. The proponent (both Government and Private Enterprise) shall enter into a binding agreement based on the procedures and recommenda- tions contained in the EA Report. This will help ensure that the mitiga- tory and other measures recommended in the EA, and accepted by all parties, are complied with. This agreement should address the construc- tion, operational and decommissioning phases as applicable, as well as monitoring and auditing. 6. In terms of the ENVIRONMENTAL ASSESSMENT ACT, an Environmen- tal Commissioner shall be appointed by the Ministry of Environment and Tourism, and housed in the office of the National Planning Com- mission. 6.1 The Environmental Commissioner shall be responsible for admin- istering the EA process as described in Appendix A. This will in- clude registration, establishing the procedural framework for the process in consultation with the proponent, screening, evaluation and review procedures as appropriate. Appendix VII 91 6.2 The Environmental Commissioner shall report to an Environmen- tal Board which shall be constituted in terms of the Environmen- tal Assessment Act, and shall consist of senior representatives from various Ministries and other organizations as appropriate. Tile Board shall be vested with powers to co-opt individuals and spe- cialists where required. In addition to initial screening, the Boa-d shall be responsible for reviews so as to ensure that EA's are of a consistently high standard. 7. Decisions taken by the Commissioner and/or the Board shall be sub- jected to appeals according to the normal legal principles and appeal procedures in Namibia. 8. A record of all decisions by the Board shall be kept. Such records, zs well as EA reports, shall be registered, accessible and available for public enquiry. The proponent will however, have the right to request conf - dentiality on specific information as appropriate. 9. The EA procedure will, at the cost of the proponent, include the ongo- ing monitoring of policies, programmes and projects after they have been implemented, to ensure that they conform with the recommen- dations in the EA report as well as the agreement between the propo- nent and the Environmental Board. ENVIRONMENTAL ASSESSMENT PROCEDURE 1. SUBMISSION OF POLICY, PROGRAMME OR PROJECT This is the start of the process, when the proponent (be it government or private enterprise), submits a proposal to the Environmental Commissioner, located in the National Planning Commission. 2. REGISTRATION The Environmental Commissioner officially registers the policy, pro- gramme or project proposal, and ensures that the proponent fully under- stands the EA procedure which needs to be followed. The Commissioner supplies the proponent with the necessary documentation, general 92 The Legal and Regulatory Framework for Environmental Impact Assessments guidance, contacts, and any other support which will facilitate a smooth EA process. 3. DEVELOP PROPOSAL Because Environmental Assessments are designed to, inter alia, (a) facilitate integrated and improved planning during all stages and (b) ensure that the decision making process is informed and streamlined, the following steps are required at the earliest stage: * notify neighbours and other interested and affected parties, * establish policy, legal and administrative requirements and procedural framework, * establish the need for the development, and evaluate this against local, national and international needs on various time scales, * notify and consult with interested and affected ministries, * identify and consider alternatives, * identify and consider issues, opportunities and constraints of altematives, * consider mitigatory options, * consider management plan options, * consider fatal flaw & risk analyses, and worst case scenarios, * consider secondary and cumulative effects within the region. The above activities are the responsibility of the proponent, but are planned jointly by the proponent, the Commissioner and the Board, who en- gage in a consultative process at this early stage. Through these initial discus- sions, alternatives, affected parties, potential impacts and benefits, issues, mitigatory and optimization possibilities, etc., can be identified. Further- more, a specific framework which clearly spells out roles, responsibilities and procedures should be established. 4. CLASSIFICATION OF PROPOSAL In consultation with the proponent and his/her consultants, the Board decides on whether this policy, programme or project requires an EA or not. The list of Activities in APPENDIX B should be used to guide this deci- sion. If it is felt that the policy, programme or project is not likely to result in Appendix VII 93 significant impacts and/or that sufficient plans to maximize benefits have already been included, there will be no need for a formal assessment. Alter- natively, the Commissioner and/or Board may decide that an EA is required, and they will then discuss the Terms of Reference for the study with the pro- ponent. During this stage, provision is made for individuals and organiza- tions to voice their objections or reservations to the proposal. For large projects, a pre-feasibility study is usually undertaken. Based on the findings of this, a more detailed feasibility study may be conducted. The Terms of Reference for the detailed feasibility study should be established during the pre-feasibility study. 5. ENVIRONMENTAL ASSESSMENT It should become clear during the registration or classification of pro- posal stages whether there will be significant impacts and if an EA is neces- sary or not. There are three main components to an EA. (i) Scoping This determines the extent of and approach to the investigation, arid should endorse the Terms of Reference established earlier. The propo- nent (and his/her consultant), in consultation with the Environmental Commissioner, relevant authorities, interested and affected parties, de- termine which alternatives and issues should be investigated, the pro- cedural framework that should be followed, and report requirements. It is the responsibility of the proponent to ensure that all the above are given adequate opportunity to participate in this process. The Scoping process should indicate the following: * the authorities and public that are likely to be concerned and affected, * methods to be used in informing and involving concerned and affected parties, * opportunities for public input, * specific reference to disadvantaged communities regarding :he above, 94 The Legal and Regulatory Framework for Environmental Impact Assessments * the use of advisory groups and specialists, * the composition of the EA team and their Terms of Reference, * the degree of confidentiality required. If the proposal is likely to affect people, the proponent should consider the following guidelines in Scoping: * the location of the development in relation to interested and affect- ed parties, communities or individuals, * the number of people likely to be involved, * the reliance of such people on the resources likely to be affected, * the resources, time and expertise available for scoping, * the level of education and literacy of parties to be consulted, * the socio-economic status of affected communities, * the level of organization of affected communities, * the degree of homogeneity of the public involved, * history of any previous conflict or lack of consultation, * social, cultural or traditional norms within the community, * the preferred language used within the community. (ii) Investigation The Investigation includes literature research and field work, and is guided by the scoping decisions. It is intended to provide the Board with enough information on the positive and negative aspects of the proposal, and feasible alternatives, with which to make a decision. (iii) Report The Report should consist of the following: * Executive summary * Contents page * Introduction * Terms of Reference * Approach to study * Assumptions and limitations Appendix VII 95 * Administrative, legal and policy requirements * Project proposal * The affected environment * Assessment * Evaluation * Incomplete or unavailable information * Conclusions and recommendations * Definitions of technical terms * List of compilers * Acknowledgements * References * Personal Communications * Appendices It should also include: * Management plan * Monitoring programme * Environmental Agreement * Audit proposal 6. NO FORMAL ASSESSMENT If a policy, programme or project is unlikely to result in significant impacts, and plans for maximizing benefits are adequate, then the proposal can pro- ceed without an EA. In the unlikely event of strong opposition to the devel- opment at this late stage, the Commissioner could solicit further opinions from specific ministries, specialists, interested and affected parties and the general public. Based on the response, the proposal is either sent back for more information. (especially if there is serious uncertainty or significan: in- formation gaps), or approval to proceed is confirmed. 7. REVIEW Once completed, an Environmental Assessment report is submitted to the En- vironmental Commissioner for review. The Commissioner will review the Joc- ument with the assistance of local and/or outside experts, sector Ministries, and any other organizations/individuals as considered necessary. The cost of external review shall be borne by the proponent. The recommendations of the 96 The Legal and Regulatory Framework for Environmental Impact Assessments Commissioners shall be presented to the Environmental Board which will make a decision or recommendation as appropriate. Such decision shall be recorded and made known to the proponent. 8. CONDITIONS OF APPROVAL Once a policy, programme or project has been approved, the Board, in consultation with the proponent, may set a number of conditions. Such con- ditions may provide for the establishment of a management plan, which specifies tasks to be undertaken in the construction, operational and decom- missioning phases of the development. By mutual agreement, a monitoring strategy and audit procedure will be determined at this early stage so that the proponent can make the necessary budgetary provisions well in advance. Provision is also made for an Environmental Agreement, whereby penalties for not adhering to the Conditions of Approval are agreed upon. 9. RECORD OF DECISION Whether or not a proposal is approved, there should be a record of decision, which should include reasons for the decision. This Record of Decision should be made available by the Commissioner to any interested party, in- cluding the public. Any Conditions of Approval must be reflected in the Record of Decision. 10. APPEAL The decision-making process provides an opportunity for appeal through the Commissioner and/or the Board. Besides appealing to the decision-making authority, appellants should be allowed access to a court of law if malpractice is suspected. 11. IMPLEMENTATION OF PROPOSAL Once approved, the policy, programme or project may be implemented in ac- cordance with the Environmental Agreement. 12. MONITORING An appropriate monitoring programme should be required for all approved proposals. Aspects to be covered in Monitoring include verification of impact predications, evaluation of mitigatory measures, adherence to Appendix VII 97 approved plans, and general compliance with the Environmental Agree- ment. The responsibility for ensuring that appropriate monitoring takes place lies with the Commissioner, while the proponent shall be responsible for meeting the costs. 13. AUDITS Periodic assessments of the positive and negative impacts of proposals shot.id be undertaken. These will serve to provide instructive feedback on the ade- quacy of planning during the Develop Proposal stage, the accuracy of :.n- vestigations in the Environmental Assessment stage, the wisdom of the decisions taken during the Review stage, and the effectiveness of the Condi- tions of Approval and Monitoring Programme during the Imple- mentation stage. An audit is thus an independent reassessment of the poli- cy, programme or project after a given period of time. APPENDIX B LIST OF ACTIVITIES NB: The following list shall act as a guide for the Environmental Comniis- sioner and Board. Where the scale of activities indicate their relative importance and corise- quent inclusion in this list, but where specific quantification is not provid- ed, it is up to the Commissioner and/or the Board to use their discretion. POLICIES, PROGRAMMES and PROJECTS requiring an ENVIRONMENTAL ASSESSMENT 1. Structure plans (e.g. Land-use plans and policies). 2. Rezoning applications. 3. Land acquisition, for national parks, nature reserves, marine reserves, protected natural environments or wilderness areas. 4. Establishment of settlements. 5. Declaration of limited development areas. 6. Any government policy, programme or project on the use of natural resources. 7. Pest control programmes. 8. Human population growth/management programmes. 98 The Legal and Regulatory Framework for Environmental Impact Assessments 9. Nuclear installations. 10. Transportation of hazardous substances & radioactive waste. 11. Mining, mineral extraction & mineral beneficiation. 12. Power generation facilities with an output of 1 megawatt or more. 13. Electrical substations and transmission lines having equipment with an operating voltage in excess of 30,000 volts rms phase-to-phase. 14. Storage facilities for chemical products. 15. Industrial installation for bulk storage of fuels. 16. Bulk distribution facilities. 17. Manufacture of explosives. 18. Introduction and/or propagation of invasive alien plant and animal species. 19. Afforestation projects. 20. Genetic modification of organisms & releases of such organisms. 21. Major roads. 22. Railways. 23. Commercial aerodromes. 24. Ports and harbours. 25. Major pipelines. 26. Cableways and cableway stations. 27. Television and radio transmission masts. 28. Major canals, aqueducts, river diversions and water transfers. 29. Permanent flood control schemes. 30. Major dams, reservoirs, levees and weirs. 31. Establishment of armaments testing areas. 32. Reclamation of land from sea. 33. Major agricultural activities (e.g. livestock and cultivation projects in previously undeveloped/unused areas). 34. Small scale (formal) water supply schemes. 35. Human resettlement. 36. Water intensive industries. 37. Deforestation projects. 38. Desalination plants. 39. Effluent plants. 40. Salt works. 41. Marine petroleum exploration. Appendix VII 99 42. Major groundwater abstraction schemes. 43. Aquaculture and mariculture. 44. Oil exploration. 4S. Multinational projects. 46. Chemical production industries. 47. Veterinary fencing. 48. Tanneries. 49. Military exercises in sensitive areas. 50. Waste disposal sites. 51. Alternate energy programmes. 52. Commercial tourism and recreation facilities (e.g. rest camps). 53. Significant use of pesticides, herbicides & defoliants. 54. Drought relief schemes. 100 The Legal and Regulatory Framework for Environmental Impact Assessments NIGERIA Decree No. 86 of 10 December 1992 (Supplement to Official Gazette Extraordinary No. 73 Vol 79, 31st December, 1992 - Part A A979) ENVIRONMENTAL IMPACT ASSESSMENT DECREE 1992 Decree No. 86 Commencement [10th December 1992] THE FEDERAL MILITARY GOVERNMENT hereby decrees as follows: PART I GENERAL PRINCIPLES OF ENVIRONMENTAL IMPACT ASSESSMENT Goals and objectives of the environmental impact assessment 1. The objectives of any environmental impact assessment (hereafter in this Decree referred to as "the Assessment") shall be- (a) to establish before a decision taken by any person, authority, corpo- rate body or unincorporated body including the Government of the Federation, State or Local Government intending to undertake or authorize the undertaking of any activity that may likely or to a significant extent affect the environment or have environmental effects on those activities shall first be taken into account. Appendix III 101 (b) to promote the implementation of appropriate policy in all Federal Lands (however acquired) States and Local Government Areas, co n- sistent with all laws and decision making processes through which the goal and objective in paragraph (a) of this section may be real- ized; (c) to encourage the development of procedures for information ex- change, notification and consultations between organs and persons when proposed activities are likely to have significant environmen- tal effects on boundary or trans-state or on the environment of bor- dering towns and villages. Restriction on public project without prior consideration of the environmental impact 2-(1) The public or private sector of the economy shall not undertake or embark on or authorize projects or activities without prior considera- tion, at an early stage of their environmental effects. (2) Where the extent, nature or location of a proposed project or activity is such that is likely to significantly affect the environment, its environ- mental impact assessment shall be undertaken in accordance with the provisions of this Decree. (3)The criterion and procedure under this Decree shall be used to deter- mine whether an activity is likely to significantly affect the environ- ment and is therefore subject to an environmental impact assessmer t. (4) All agencies, institutions (whether public or private) except exemp:ed pursuant to this Decree, shall before embarking on the proposed pro- ject apply in writing to the Agency, so that subject activities can be quickly and surely identified and environmental assessment applied as the activities are being planned. Identification, etc of significant environmental assessment 3-(1) In identifying the environmental impact assessment process unier this Decree, the relevant significant environmental issues shall be id n- tified and studied before commencing or embarking on any project or activity covered by the provisions of this Decree or covered by :he Agency or likely to have serious environmental impact on the Nigerian environment. 102 The Legal and Regulatory Framework for Environmental Impact Assessments (2) Where appropriate, all efforts shall be made to identify all environmen- tal issues at an early stage in the process. Minimum content 4. An environmental impact assessment shall include at least the follow- ing minimum matters, that is- (a) a description of the proposed activities; (b) a description of the potential affected environment including specific information necessary to identify and assess the environ- mental effect of the proposed activities; (c) a description of the practical activities, as appropriate; (d) an assessment of the likely or potential environmental impacts of the proposed activity and the alternatives, including the direct or indirect, cumulative, short-term and long-term effects; (e) an identification and description of measures available to mitigate adverse environmental impacts of proposed activity and assess- ment of those measures; (f) an indication of gaps in knowledge and uncertainty which may be encountered in computing the required information; (g) an indication of whether the environment of any other State or Local Government Area or areas outside Nigeria is likely to be affected by the proposed activity or its alternatives; (h) a brief and nontechnical summary of the information provided under paragraphs (9a) to (g) of this section. Detail degree of environmental significance 5. The environmental effects in an environmental assessment shall be as- sessed with a degree of detail commensurate with their likely environ- mental significance. Examination of environmental impact assessment by the Agency 6. The information provided as of environmental impact assessment shall be examined impartially by the Agency prior to any decision to be made thereto (whether in favour or adverse thereto). Appendix VII 103 Opportunity for comments by certain groups 7. Before the Agency gives a decision on an activity to which an environ- mental assessment has been provided, the Agency shall give oppor.U- nity to government agencies, members of the public, experts in any relevant discipline and interested groups to make comment on envi- ronmental impact assessment of the activity. Decision not to be given until the appropriate period has elapsed 8. The Agency shall not give a decision as to whether a proposed activity should be authorized or undertaken until appropriate period has elapq ed to consider comments pursuant to sections 7 and 12 of this Decree. Decisions on the effect of an environmental impact assessment to be in writing 9-(1) The Agency's decisions on any proposed activity subject to environ- mental impact assessment shall- (a) be in writing; (b) state the reason therefore; (c) include the provisions, if any, to prevent, reduce or instigate dam- age to the environment. (2)The report of the Agency shall be made available to interested persons or groups. (3) If no interested person or group requested for the report, it shall be :he duty of the Agency to publish its decision in a manner by which mem- bers of the public or persons interested in the activity shall be notified. (4)The Council may determine an appropriate method in which the deci- sion of the Agency shall be published so as to reach interested persons or groups, in particular the originators or persons interested in the ac- tivity subject of the decisions. Supervision of the activity 10. When the Council deems fit and appropriate, a decision on an activity which has been subject of environmental impact assessment, the ac:iv- ity and its effects on the environment or the provisions of section C of this Decree, shall be subject to appropriate supervision. 104 The Legal and Regulatory Framework for Environmental ImpactAssessments Notification to potentially affected States or Local Government Areas, etc. 1 1.-(1) When information provided as part of environmental impact as- sessment indicated that the environment within another State in the Federation or a Local Government Area is likely to be significantly af- fected by a proposed activity, the State, the Local Government Area in which the activity is being planned shall, to the extent possible- (a) notify the potentially affected State or Local Government of the proposed activity; (b) transmit to the affected State or Local Government Area any rele- vant information of the environmental impact assessment; (c) enter into timely consultations with the affected State or Local Government. (2)It shall be the duty of the Agency to see that the provisions of subsec- tion (1) of this section are complied with and the Agency may cause the consultations provided pursuant to subsection (1) of this section to take place in order to investigate any environmental derogation or haz- ard that may occur during the construction or process of the activity concerned. Mandatory Study List not to be carried out without the Report of the Agency 13-(1) When a project is described on the Mandatory Study List specified in the Schedule to this Decree or is referred to mediation or a review panel, no Federal, State or Local Government or any of their authority or agency shall exercise any power or perform any duty or functions that would permit the project to be carried out in whole or in part until the Agency has taken a cause of action conducive to its power under the Act establishing it or has taken a decision or issued an order that the project could be carried out with or without conditions. (2) Where the Agency has given certain conditions before the carrying out of the project, the conditions shall be fulfilled before any person or au- thority shall embark on the project. Appendix WII 105 Part II ENVIRONMENTAL ASSESSMENT OF PROJECTS Cases where environmental assessment is required 14.-(1) Notwithstanding the provisions of Part 1 of this Decree, an envi- ronmental impact assessment shall be required where a Federal, State or Local Government Agency Authority established by the Federal, State or Local Government Council- (a) is the proponent of the project and does any act or thing which commits the Federal, State or Local Government authority to car-y- ing out the project in whole or in part. (b) makes or authorizes payment or provides a guarantee for a loan or any other form of financial assistance to the proponent for the p ir- pose of enabling the project to be carried out in whole or in part, except when the financial assistance is in the form of any reduc- tion, avoidance, deferral, removal, refund, remission or other fo:-m of relief from the payment of any tax, duty or excise under Customs Tariff (Consolidated) Act or any Order made there under, unless that financial assistance is provided for the purpose of enabling an individual project specifically named in the enact- ment, regulation or order that provides the relief to be carried out; (c) has the administration of Federal, State or Local Government and leases or otherwise disposes of those lands on or any tests in those lands or transfers the administration and control of those lands or invests therein in favour of the Federal Government or its agencies for the purpose of enabling the project to be carried out in whole or in part; or (d) under the provisions of any law or enactment, issues a permit or licence, grants an approval or takes any other action for the par- pose of enabling the project to be carried out in whole or in part Excluded projects 15.-(1) An environment assessment of projects shall not be requi:ed where- (a) in the opinion of the Agency the project is in the list of projects which the President, Commander-in-Chief of the Armed Forces of 106 The Legal and Regulatory Framework for Environmental Impact Assessments the Council is of the opinion that the environmental effects of the project are likely to be minimal; (b) the project is to be carried out during national emergency for which temporary measures have been taken by the Government; (c) the project is to be carried out in response to circumstances that, in the opinion of the Agency, the project is in the interest of public health or safety. (2) For greater certainty, where the Federal, State or Local Government ex- ercises power or performs a duty or function for the purpose of en- abling projects to be carried out an environmental assessment may not be required if- (a) the project has been identified at the time the power is exercised or the duty or function is performed; and (b) the Federal, State, or Local Government has no power to exercise any duty or perform functions in relation to the projects after they have been identified. Environmental assessment process 16. Whenever the Agency decides, that there is the need for an environ- mental assessment on a project before the commencement of the project, the environmental assessment process may include- (a) a screening or mandatory study and the preparation of a screening report; (b) a mandatory study or assessment by a review panel as provided in section 25 of this Decree and the preparation of a report; (c) the design and implementation of a follow-up program. Factors for consideration of a review panel 17.-(1) Every screening of mandatory study of a project and every media- tion or assessment by a review panel shall include a consideration of the following factors, that is- (a) the environmental effects of the project, including the environ- mental effects of malfunctions or accidents that may occur in con- nection with the project and any cumulative environmental effects that are likely to result from the project in taking into considera- tion with other projects that have been or will be carried out; Appendix VII 107 (b) the significance or, in the case of projects referred to in sections 43, 44 or 45, the seriousness of those effects; (c) comments concerning those effects received from the public in EIc- cordance with provisions of this Decree; (d) measures that are technically and economically feasible and tl at would mitigate any significant or, in the case of projects referred to in sections 43, 44, or 45 any serious adverse environmental effects of the project. (2) In addition to the factors set out in subsection (1) of this Decree every mandatory study of a project and every mediation or assessment Dy review panel shall include a consideration of the following factors, that is- (a) the purpose of the project; (b) alternative means of carrying out the project that are technica.ly and economically feasible and the environmental effects of a:ny such alternative means; (c) the need for and the requirements of any follow-up program in respect of the project; (d) the short term or long term capacity for regeneration or renewal resources that are likely to be significantly or, in the case of the pio- jects referred to in sections 43, 44 or 45, seriously affected by thle project; and (e) any other matter that the Agency or the Council at the request of the Agency, may require. (3) For greater certainty, the scope of the factors to be taken into consid !r- ation pursuant to subsection (1) (a), (b) and (d) and subsection (2)(:)), (c) and (d) of this decree shall be determined- (a) by the Agency; or (b) Where a project is referred to mediation or a review panel, by the Council, after consulting the Agency, when fixing the terms of rzf- erence of the mediation of review panel. (4)An environmental assessment of a project shall not be required to in- clude a consideration of the environmental effects that could result from carrying out the project during the declaration of a national emergency. 108 The Legal and Regulatory Framework for Environmental ImpactAssessments Factors not included 18.-(1) The Agency may delegate any part of the screening or mandatory study of a project, including the preparation of the screening report or mandatory study report, but shall not delegate the duty to take a course of action pursuant to section 16(1) or 34(1) of this Decree. (2) For greater certainty, the Agency shall not take a course of action pur- suant to section 16(1) or 34(1) unless it is satisfied that any duty or function delegated pursuant to subsection (1) thereof has been carried out in accordance with the provisions of this Decree or any relevant en- actment. Screening 19.-(1) Where the Agency is of the opinion that a project is not described in the mandatory study list or any exclusion list, the Agency shall en- sure that- (a) a screening of the project is conducted; and (b) a screening report is prepared. Source of information (2) Any available information may be used in conducting the screening of a project, but where the Agency is of the opinion that the information available is not adequate to enable it to take a course of action pursuant to section 16(1) of this Decree it shall ensure that any study and infor- mation that it considers necessary for that purpose are undertaken or collected. Declaration of class screening report 20.-(1) Where the Agency receives a screening report and the Agency is of the opinion that the report could be used as a method in conducting screening of other projects within the same class, the Agency may de- clare the report to be a class screening report. Publication (2)Any declaration made pursuant to subsection (1) if this Decree, shall be published in the Gazette and the screening report to which it relates Appendix VII 109 shall be made available to the public at the registry maintained by the Agency. Use of class screening report (3) Where in the opinion of the Agency a project or part of a project with- in a class screening report has been declared, the Agency may use or permit the use of that report and the screening on which it is based to whatever extent the Agency considers appropriate for the purpose of complying with section 13 of this Decree. (4) Where the Agency uses or permits the use of a class screening report it shall ensure that any adjustments are made that in the opinion of the Agency are necessary to take into account local circumstances and any cumulative environmental effects that in the opinion of the Agency are likely to result from the project in combination with other projects that have been or will be carried out. Use of previously conducted screening 21.-(1) Where a proponent proposes to carry out, in whole or in part, a project for which a screening report has been prepared but the project did not proceed or the manner in which it is to be carried out has sub- sequently changed or where a proponent seeks the renewal of a licen -e, permit or approval referred to in section S(d) of this Decree in respect of a project for which a screening report has been prepared, the Ager cy may use or permit the use of that report and the screening on which it is based to whatever extent the Agency considers appropriate for the purpose of complying with section 13 of this Decree. (2)Where the Agency uses or permits the use of a screening or screening report pursuant to subsection(1) of this section, the Agency shall en- sure that any adjustments are made that in its opinion are necessary to take into account any significant changes in the circumstances of the project. Decision of the Agency 22.-(1) After completion of a screening report in respect of a project, the Agency shall take one of the following courses of action, that is- 110 TheLegal and Regulatory,Framework forEnvironmental ImpactAssessments (a) where, in the opinion of the Agency; (i) the project is not likely to cause significant adverse environ- mental effects, or (ii) any such effect can be mitigated, the Agency may exercise any power or perform any duty or function that would permit the project to be carried out and shall ensure that any mitigation measures that the Agency considers appropriate are im- plemented; (b) where, in the opinion of the Agency; (i) the project is likely to cause significant adverse environmental effects that may not be mitigable; or (ii) public concerns respecting the environmental effects of the project warrant it, the Agency shall refer the project to the Council for a referral to media- tion or a review panel in accordance with section 25 of this Decree; or (c) where, in the opinion of the Agency, the project is likely to cause significant adverse environmental effects that cannot be mitigated, the Agency shall not exercise any power or perform any duty or function conferred on it under any enactment that would permit the project to be carried out in whole or in part. (2) For greater certainty, where the Agency takes a course of action referred to in subsection (1) (a) of this section, the Agency shall exercise any power and perform any duty or function conferred on it by or under any enactment in a manner that ensures that any mitigation measures that the Agency considers appropriate in respect of the project are im- plemented. (3) Before taking a course of action in relation to a project pursuant to sub- section (1) of this section, the Agency shall give the public an opportu- nity to examine and comment on the screening report and any record that has been filed in the public registry established in respect of the project pursuant to section 51 of this Decree and shall take into ac- count or consideration any comments that are filed. Appendix VII 111 Mandatory Study Mandatory Study 23. Where the Agency is of the opinion that a project is described in the mandatory study list, the Agency shall- (a) ensure that a mandatory study is conducted, and a mandatory study report is prepared and submitted to the Agency, in acca)r- dance with the provisions of this Decree; or (b) refer the project to the Council for a referral to mediation o: a review panel in accordance with section 25 of this Decree. Use of previously conducted mandatory study 24.-(1) When a proponent proposes to carry out, in whole or in part, a project for which a mandatory study report has been prepared but Ihe project did not proceed or the manner in which it is to be carried out has subsequently changed, or where a proponent seeks the renewal of a licence, permit or approval referred to in section 5(d) of this Decree in respect of a project for which a mandatory study report has been fre- pared, the Agency may use or permit the use of that report and :he mandatory study on which it is based to whatever extent the Agency considers appropriate for the purpose of complying with section 17 of this Decree. (2)Where the Agency uses or permits the uses of a mandatory study or a mandatory study report pursuant to subsection (1) of this section, it shall ensure that any adjustments are made that in its opinion are r ec- essary to take into account any significant changes in the circt.m- stances of the project. Public notice 25.-(a) After receiving a mandatory study report in respect of a project, the Agency shall, in any manner it considers appropriate, publish i: a notice setting out the following information- (a) the date on which the mandatory study report shall be available to the public; (b) the place at which copies of the report may be obtained; and 112 The Legal and Regulatory Framework for Environmental Impact Assessments (c) the deadline and address for filing comments on the conclusions and recommendations of the report. Public concerns (2) Prior to the deadline set out in the notice published by the Agency, any person may file comments with the Agency relating to the conclusions and recommendations of the mandatory study report. Decision of Council 26. After taking into consideration the mandatory study report and any comments filed pursuant to section 19(2), the Council shall- (a) refer the project to mediation or a review panel in accordance with section 25 of this Decree where, in the opinion of the Council- (i) the project is likely to cause significant adverse environmental effects that may not be mitigable; or (ii) public concern respecting the environmental effects of the pro- ject warrant it; or (b) refer the project back to the Agency for action to be taken under sec- tion 34(1)(a) of this Decree where, in the opinion of the Council- (i) the project is not likely to cause significant adverse environ- mental effects; or (ii) any such effects can be mitigated. Discretionary Powers Referral to Council 27. Where at any time the Agency is of the opinion that- (a) a project is likely to cause significant adverse environmental effects that may not be mitigable; or (b) public concerns respecting the environmental effects of the project warrant it, the Agency may refer the project to the Council for a referral to media- tion or review panel in accordance with section 25 of this Decree: Termination by responsible authority 28. Where at any time the Agency decides not to exercise any power or perform any duty or function referred to in section 19 of this Decree in Appendix VII 113 relation to a project that has not been referred to mediation or a review panel, it may terminate the environmental assessment of the project. Termination by Council 29. Where at any time the Agency decides not to exercise any power or per- form any duty or function referred to in section 25 of this Decree in rela- tion to a project that has been referred to mediation or a review par el, the Council may terminate the environmental assessment of the project. Referral by Council 30. Where at any time the Council is of the opinion that- (a) a project is likely to cause significant adverse environmental effects that may not be mitigable, or (b) public concerns respecting the environmental effects of the project warrant it, the Council may, after consultations with the Agency, refer the project to mediation or a review panel in accordance with section 25 of this Decree. Decision of the Council 31. Where a project is to be referred to mediation or a review panel uncer this Decree, the Council shall, within a prescribed period, refer tile Council project- (a) to mediation, if the Council is satisfied that- (i) the parties who are directly affected by or have a direct interest in the project have been identified and are willing to participate in the mediation through representatives, and (ii) the mediation is likely to produce a result that is satisfactory to all of the parties: or (b) to a review panel, in any other case. Appointment of mediator 32. Where a project is referred to mediation, the Council shall, in consulta- tion with the Agency- (a) appoint as mediator any person who, in the opinion of he Counc.1, possesses the required knowledge or experience; and (b)fix the terms of reference of the mediation. 114 The Legal and Regulatory Framework for Environmental Impact Assessments Determination of parties 33.-(1) In the case of a dispute respecting the participation of parties in a mediation, the Council may, on the requests of the mediation, deter- mine those parties who are directly affected by or have a direct interest in the project. (2)Any determination by the Council pursuant to subsection (1) of this section shall be binding. Mediation 34.-(1) A mediator shall not proceed with a mediation unless the mediator is satisfied that all of the information required for a mediation is avail- able to all of the participants. (2) A mediation shall, in accordance with the provisions of this Decree and the terms of reference of the mediation- (a) help the participants to reach a consensus on- (i) the environmental effects that are likely to result from the project, (ii) any measures that would mitigate any significant adverse envi- ronmental effects, and (iii)an appropriate follow-up program; (b) prepare a report setting out the conclusions and recommendations of the participants; and (c) submit the report to the Council and the Agency. Subsequent reference to review panel 35. Where at any time after a project has been referred to mediation, the Council is of the opinion that the mediation is not likely to produce a result that is satisfactory to all of the parties, the Council may termi- nate the mediation and refer the project to a review panel. Appointment of review panel 36. Where a project is referred to a review panel, the Council shall, in consultation with the Agency- (a) appoint as members of the panel including the Chairman thereof, persons who, in the opinion of the Council, possess the required knowledge or experience; and (b) fix the terms of reference of the panel. Appendix VII 115 Assessment by review panel 37. A review panel shall, in accordance with the provisions of this Decree and its terms of reference- (a) ensure that the information required for an assessment by a rev: ew panel is obtained and made available to the public; (b) hold hearings in a manner that offers the public an opportunity to participate in the assessment; (c) prepare a report setting out- (i) the conclusions and recommendations of the panel relating to the environmental effects of the projects and any mitigat:on measures on follow-up programs, and (ii) a summary of any comments received from the public; and (d) submit the report to the Council and the Agency. Hearing of witnesses 38.-(1) A review panel shall be the power of summoning any person to ap- pear as witness before the panel and or ordering the witness to- (a) give evidence, orally or in writing; and (b) produce such documents and things as the panel considers neces- sary for conducting its assessment of the project. (2)A review panel shall have the same power to enforce the attendance of witnesses and to compel them to give evidence and produce docu- ments and other things as is vested in the Federal High Court or a High Court of a State. (3) A hearing by a review panel shall be in public unless the panel is sal is- fied after representation made by a witness that specific, direct and sub- stantial harm would be caused to the witness by the disclosure of the evidence, documents or other things that the witness is ordered to give or produce pursuant to subsection (1) of this section. (4)Where a review panel is satisfied that the disclosure of evidence, docu- ments or other things would cause specific, direct and substantial harm to a witness, the evidence, documents or things shall be privileged awid shall not, without the authorization of the witness, knowingly be or be permitted to be communicated, disclosed or made available by any per- son who has obtained the evidence, documents or other things pur- suant to this Decree. 116 The Legal and Regulatory Framework for Environmental Impact Assessments Enforcement of summons and orders (5) Any summons issued or order made by a review panel pursuant to sub- section (1) of this section may, for the purpose of enforcement, be made a summons or ordered by the Federal High Court by following the usual practice and procedure. Public notice 39. On receiving a report submitted by a mediator or a review panel, the Agency shall make the report available to the public in any manner the Council considers appropriate and shall advise the public that the report is available. Decision of the Agency Decision of the Agency 40.-(1) Following the submission of a report by a mediator or a review panel or the referral of a project back to the Agency pursuant to section 30(b) of this Decree, the Agency shall take one of the following courses of action in relation to the project, that is- (a) where in the opinion of the Agency- (i) the project is not likely to cause significant adverse environ- mental effect, or Implementation of mitigation measures (ii) any such effect can be mitigated or justified in the circum- stances, the Agency may exercise any power or perform any duty of function that would permit the project to be carried out in whole or in part and shall ensure that any mitigation measures that the Agency considers appropriate are implemented; or (b) where, in the opinion of the Agency, the project is likely to cause significant adverse environmental effects that cannot be mitigated and cannot be justified in the circumstances, the Agency shall not exercise any power or perform any duty or function conferred on it by or under any enactment that would permit the project to be car- ried out in whole or in part. Appendix VII 117 (2) For greater certainty, where the Agency takes a course of action referred to in subsection (1)(a) of this section, it shall exercise any power and perform any duty or function conferred on it by or under any enact- ment in a manner that ensures that any mitigation measure that :he Agency considers appropriate in respect of the project is implemented. Follow-up program Design and implementation 41.-(1) Where the Agency takes a course of action pursuant to section 40(1)(a) of this Decree it shall, in accordance with this Decree, des:gn any follow-up programme that it considers appropriate for the project and arrange for the implementation of that program. (2) The Agency shall advise the public of- (a) its course of action in relation to the project; (b) any mitigation measure to be implemented with respect to the ad- verse environmental effects of the project; (c) the extent to which the recommendation set out in any report sub- mitted by a mediator or a review panel have been adopted; and (d) any follow-up program one designed for or pursuant to subsection (1) of this section. Certificate Certificate 42. A certificate stating that an environmental assessment of a project has been completed, and signed by the Agency that exercises a power or performs a duty or function referred to in section 35(c) of this Decree in relation to the project, is in the absence to the contrary, proof of the matter stated in the certificate. Joint Review Panels Definition of Jurisdiction 43.-(1) For the purpose of this Decree, "jurisdiction" includes- (a) a federal authority; 118 The Legal and Regulatory Framework for Environmental Impact Assessments (b) the government of a State; (c) any other agency or body established pursuant to a Decree, Act, Law, Edict or By-law or the legislature of a State and having powers, duties or functions in relation to an assessment of the environmen- tal effects of a project; (d) any body established pursuant to a comprehensive land claims agreement and having powers, duties or functions in relation to an assessment of the environmental effects of a project; (e) a government of a foreign State or of a subdivison of a foreign State, or any institution of a such a government; and (f) an international organization of States or any institution of such an organization. Conditions (2)Subject to section 38 of this Decree, where the referral of a project to a review panel is required or permitted by this Decree and a jurisdiction referred to in subsection (1)(e) of (f) of this section, has a responsibili- ty or an authority to conduct an assessment of the environmental effects of the projects or any part of it, the Council and the Council of External Affairs may establish a review panel jointly with that jurisdiction. 44. The Council shall not establish a view panel jointly with a jurisdiction referred to in subsection 37(1) of this decree unless the Council is sati- sfied that- (a) the Council may appoint or approve the appointment of the Chairman or a co-Chairman and one or more other members of the panel; (b) the Council may fix or approve the terms of reference for the panel; (c) the public shall be given an opportunity to participate in the assess- ment conducted by the panel; (d) on completion of the assessment, the report of the panel shall be submitted to the Council; and (e) the panel's report shall be published. 45. Where the Council establishes a review panel jointly with a jurisdiction referred to in subsection 37(1) of this Decree, the assessment conducted Appendix VII 119 by the panel shall be deemed to satisfy any requirement of this Decree, respecting assessment by a review panel. Public Hearing by a Federal Authority Substitute for review panel 46.-(1) Where the referral of a project to a review panel is required or per- mitted by this Decree and the Council is of the opinion that a process for assessing the environmental effects of projects followed by a Federal authority under a Decree or an act of Parliament other than this Decree or by a body referred to in section 37(1)(d) of this Decree would be appropriate substitute, the Council may approve the substitution of that process for an environmental assessment by a review panel undler this Decree. Conditions (2)An approval of the Council pursuant to subsection (1) of this section shall be in writing and may be given in respect of a project or a class of projects. 47. The Council shall not approve a substitution pursuant to subsection 46(1) of this Decree unless the Council is satisfied that- (a) the process to be substituted includes a consideration of the factcrs referred to in section 11 of this Decree; (b) the public has been given an opportunity to participate in the as- sessment; (c) at the end of the assessment, a report has been submitted to tIe Council; and (d) the report has been published. Substitution 48. Where the Council approves a substitution of a process pursuant tO section 46(1) of this Decree, an assessment that is conducted in accor- dance with that process shall be deemed to satisfy any requirements cf this Decree, in respect of assessment by a panel. 120 The Legal and Regulatory Framework for Environmental Impact Assessments TRANS-BORDER AND RELATED ENVIRONMENTAL EFFECTS Inter States environmental effects 49.-(1) Where a project for which an environmental assessment is not re- quired under section 5 of this Decree, is to carried out in a State and the President, Commander-in-Chief of the Armed Forces is of the opinion that the project is likely to have serious environmental effects in anoth- er State, the Council may establish a review panel, to conduct an assess- ment of the inter-State environmental effects of the project. Absence of government (2)The Council shall not establish a review panel pursuant to sub-section (1) of this section where the President, Commander-in Chief of the Armed Forces and the governments of all interested States have agreed on another panel of conducting an assessment of the inner State envi- ronmental effects of the project. Initiative for establishing review panel (3)A review panel may be established pursuant to subsection (1) of this section on the President, Commander-in-Chief of the Armed Forces ini- tiative of the President, Commander-in-Chief of the Armed Forces or at the request of the government of any interested State. Notice (4)At least ten days before establishing a review panel pursuant to subsec- tion (1) of this section, the President, Commander-in-Chief of the Armed Forces shall give notice of the intention to establish a panel to the proponent of the project and to the State or all interested States. Meaning of Interested state (5) For the purpose of this section 45(3) of this Decree, "interested State" means- (a) a State in which the project is to be carried out; or (b) a State that claims that serious adverse environmental effects are likely to occur in that State as a result of the project. Appendix VII 121 International environmental effects 50.-(1) Where a project for which an environmental assessment is no: re- quired under section 5 of this Decree is to be carried out in Nigerii or on Federal lands and the President, Commander-in-Chief of the Armed Forces is of the opinion that the project is likely to cause serious adv rse environmental effects outside Nigeria and those Federal lands, the Agency and the Minister of Foreign Affairs may establish a review panel to conduct an assessment of the international environmental effecti of the project. Notice (2) At least ten days before establishing a review panel pursuant to subs ec- tion (1) of this section, the Agency with the approval of the President shall give notice of the intention to establish a panel to- (a) the proponent of the project; (b) the government of any State in which the project is to be carr. ed out or that is adjacent to Federal lands on which the project is to be carried out; and (c) the government of any foreign State in which, in the opinion of the Minister of Foreign Affairs, serious adverse environmental ef- fects are likely to occur as a result of the project. Environmental effects on federal and other lands 51.-(1) Where a project for which an environmental assessment is not ie- quired under section 15 of this Decree is to be carried out in Nigeiia and the Agency or the President, Commander-in-Chief of Armed Forces is of the opinion that the project is likely to cause serious adverse envi- ronmental effect on Federal lands or on lands in respect of which a State or Local Government has interests, the Agency or the President may establish a review panel to conduct an assessment of the environ- mental effects of the project on those lands. (2) Where a project for which an environmental assessment is not requirEd under section 5 of this Decree, is to be carried out on lands in a Local Government land or on lands that have been set aside for the use and benefit of certain class of persons pursuant to legislation and the 122 The Legal and Regulatory Framework for Environmental Impact Assessments Agency is of the opinion that the project is likely to cause serious adverse environmental effects outside those lands, the Agency may establish a review panel to conduct an environmental assessment of the environmental effects of the project outside those lands. (3)At least ten days before a review panel is established pursuant to sub- section (1) or (2) of this section, the Agency shall give notice of the intention to establish a panel to the proponent of the project and to the government of all interested States and if, in the case of a project that is to be carried out the Agency is of the opinion that- (a) is likely to cause or have serious adverse environmental effects on lands in a reserve that is set apart for the use and benefit of a certain class of persons, to that class of persons; (b) on, settlement lands described in a comprehensive land claims agreement referred to in subsection (2) of this section to the party to the agreement; and (c) on lands that have been set aside for the use and benefit of a certain class of persons to that class of persons. (4) For the purposes of this Decree, a reference to any land areas or reserves includes a reference to all waters on and air above those lands, areas or reserves. Application of certain provisions 52. Sections 30 to 33 and 37 to 39 of this Decree, shall apply, with such modifications as the circumstances require, to review panel established pursuant to sections 43(1), 44(1) or 45(1) or (2) of this Decree. Power to prohibit a proponent 53.-(1) Where the Agency after the appraisal of the President, Comman- der-in-Chief of he Armed Forces' assessment of the environmental ef- fects of a project referred to in sections 43(1), 44(1) or 45(1) or (2) of this Decree the President, Commander-in-Chief of the Armed Forces may, by order published in the Gazette, prohibit the proponent of the project from doing any act or thing that would commit the pro- ponent to ensuring the project is carried out in whole or in part until the assessment is completed and the Agency is satisfied that the Appendix VII 123 project is not likely to cause any serious adverse environmental effects or that any such effects shall be mitigated or are justifiec. in the circumstances. (2)Where a review panel established to assess the environmental effect; of a project referred to in subsection 43(1), 44(1) or 45(1) or (2) of this De- cree submits a report to the Agency indicating that the project is likely to cause any serious adverse environmental effects, the Agency may prohibit the proponent of the project from doing any act or thing tiiat would commit the proponent to ensuring that the project is carried out in whole or in part until the Agency is satisfied that such effects have been mitigated. Injunction 54.-(1) Where, on the application of the Agency, it appears to a court of competent jurisdiction that a prohibition made under section 47 of this Decree in respect of a project has been, is about to be or is likely to be contravened, the court may issue an injunction ordering any person named in the application to refrain from doing any act or thing t]7at would commit the proponent to ensuring that the project or any part thereof is carried out until. (a) with respect to a prohibition made pursuant to section 47(1), cf this Decree the assessment of the environmental effects of the project referred to in section 43(1), 44(1), 45(1) or (2) of this De- cree, is completed and the Agency is satisfied that the project is not likely to cause any serious adverse environmental effects or any such effects shall be mitigated or are justified in the circum- stances; and (b) with respect to a prohibition made pursuant to section 47(2), of this Decree the Agency is satisfied that the serious adverse environ- mental effects referred to in that subsection have been mitigated. (2)At least forty-eight hours before an injunction is issued under subsec- tion (1) of this section, notice of the application shall be given to the persons named in the application unless the urgency of the situation is such that the delay involved in giving such notice would not be in th2 public interest. 124 The Legal and Regulatory Framework for Environmental ImpactAssessments Commencement of prohibition S5.-(1) Any prohibition under section 47 of this Decree shall come into force on the day it is made. (2) The prohibition shall cease to have effect fourteen days after it is made unless within that period, it is approved by the President, Commander-in- Chief of the Armed Forces. AGREEMENTS AND ARRANGEMENTS International Agreement 56.-(1) Where a Federal authority or the Government of Nigeria on behalf of a Federal authority enters into agreement or arrangement with the gov- ernment of a State or any institution of such a government under which a Federal authority exercises a power or performs a duty or function re- ferred to in section 15(b) or (c) of this Decree in relation to projects- (a) that have not been identified at the time power is exercised or the duty or function is performed; and (b) in respect of which the Government of Nigeria or the federal au- thority as the case may be, shall have no power to exercise or duty or function to perform when the projects are identified, the Government of Nigeria or the Federal authority concerned shall en- sure that the agreement or arrangement provides for the assessment of the environmental effects of those projects and that the assessment shall be carried out as early as practicable in the planning stages of those projects. (2) Where a Federal authority or the Government of Nigeria on behalf of a Federal authority enters into an agreement with the government of a foreign State or of a subdivision of a foreign State, an international organization of a foreign State, any institution of such a government or organization, under which a Federal authority exercises a power or per- forms a duty or function referred to in section 5(b) or (c) of this Decree in relation to the projects- (a) that have not been identified at the time the power is exercised or the duty or function is performed; and (b) in respect of which the Government of Nigeria or the federal au- thority as the case may be, shall have no power to exercise or duty or function to perform when the projects are identified, Appendix VII 125 the Government of Nigeria or the Federal authority concerned shall en- sure that the agreement or arrangement provides for the assessment of the environmental effects of those projects and that the assessment shall be carried out as early as practicable in the planning stages of those projects. ACCESS TO INFORMATION Public registry 57.-(1) For the purpose of facilitating public access to records relating to environmental assessments, a public registry shall be established and operated in accordance with the provisions of this Decree in respect of every project for which an environmental assessment is conducted. (2)The public registry in respect of a project shall be maintained- (a) by the Agency from the commencement of the environmental as- sessment until any follow-up program in respect of the project is completed; and (b) where the project is referred to mediation or review panel, by the Agency from the appointment of the mediator or the members of the review panel until the report of the mediator or review panel is submitted to the Agency or the Secretary to the Government of t ae Federation as the case may be. (3)Subject to subsection(4) of this section, a public registry shall contain all records and information produced, collected or submitted with ire- spect to the environmental assessment of the project, including- (a) any report relating to the assessment; (b) any comments filed by the public in relation to the assessment; and (c) any record prepared by the Agency for the purposes of section 35 af this Decree. (4)A public registry shall contain a record referred to in subsection (3) Mf this section if the record falls within one of the following categories-- (a) records that have otherwise been made available to the public car- rying out the assessment pursuant to this Decree and any addition- al records, that have otherwise been made publicly available. (b) a record or part of a record that the Agency, in the case of a recold in its possession, or any other Ministry or governmental agency, de- termines would have been disclosed to the public if a request had 126 The Legal and Regulatory Framework for Environmental Impact Assessments been made in respect of that record at the time the record was filed with the registry, including any record that would be disclosed in the public interest; (c) any record or part of a record or part containing third party infor- mation, if the President in the case of a record in the Agency's pro- cession, or the President believes on reasonable grounds that its dis- closure would be in the public interest because it is required in order for the public to participate effectively in the assessment. (5)Notwithstanding any other enactment, no civil or criminal proceed- ings shall lie against the Agency, or against any person acting on behalf of or under the direction of, and no proceedings shall lie against the State or any of its agencies for the disclosure in good faith of any record or any part of a record pursuant to this Decree, for any consequences that flow from that disclosure, for the failure to give any notice if rea- sonable care is taken to give the required notice. (6) For the purpose of this section, "third party information" means- (a) trade secrets of a third party; (b) financial, commercial, scientific or technical information that is confidential information supplied to a government institution by a third party and is treated consistently in a confidential manner by the third party; (c) information the disclosure of which could reasonably be expected to result in material financial loss or gain to, or could reasonably be expected to prejudice the competitive position of a third party; and (d) information the disclosure of which could reasonably be expected to interfere with contractual or other negotiations of a third party. Preparation of statistical summlary 58.-(1) During each year, the Agency shall maintain a statistical summary of all the environmental assessments undertaken or directed by it and all courses of action taken, and all decisions made, in relation to the en- vironmental assessment effects of the projects after the assessments were completed. (2)The Agency shall ensure that the summary for each year is compiled and completed within one month after the end of that year. Appendix VII 127 Defect in form or technical irregularity 59. An application for judicial review in connection with any matter under this Decree shall be refused where the sole grounds for relief established on the application is a defect in form or a technical irregularity. PART III MISCELLANEOUS Agency's Power Power to facilitate environmental assessment 60.-(1) For the purposes of this Decree, the Agency may- (a) issue guidelines and codes of practice to assist in conducting assess- ment of the environmental effects of projects; (b) establish research and advisory bodies; (c) enter into agreements or arrangements with any jurisdiction within the meaning of sections 37(1)(a), (b), (c) or (d) respecting assess- ments of environmental effects; (d) enter into agreements or arrangements with States for the purposes of coordination, consultation, and exchange of information in relation to the assessment of the environmental effects or proje:ts of common interest; (e) recommend the appointment of members to bodies established by federal authorities or to bodies referred to in section 37(1)(d) of this Decree on a temporary basis, for the purpose of facilitating a substi- tution pursuant to section 40 of this Decree; (f) establish criteria for the appointment of mediators and members of review panels; and (g) establish criteria for the approval of a substitution pursuant to se c- tion 40 of this Decree. Power to make regulations 61. The Agency, with the approval of the President, Commander-in-Chief of the Armed Forces may make regulations, published in the Gazette- (a) respecting the procedures and requirements of, and the time or period relating to the environmental assessment process set out .n 128 The Legal and Regulatory Framework for Environmental Impact Assessments or including the conduct of assessment by review panels estab- lished pursuant to section 37 of this Decree; (b) prescribing a list of projects or classes of projects for which an envi- ronmental assessment is not required, where the Council with the approval of the President, Commander-in-Chief of the Armed Forces is of the opinion that the environmental effects of the pro- ject are likely to be negligible; (c) prescribing a list of projects or classes of projects not covered by the mandatory study list in the Schedule to this Decree for which a mandatory study is required where the Council is of the opinion that the projects are likely to have significant adverse environ- mental effects; (d) prescribing a list of projects or classes of projects for which an envi- ronmental assessment is not required, where the Council is of opin- ion that the contribution of the Agency to powers or the perfor- mance of its duties or functions is minimal; (e) prescribing a list for which an environmental assessment is re- quired where the Council is of the opinion that an environmental assessment of the projects would be inappropriate for reasons of na- tional security. Offence and penalty 62. Any person who fails to comply with the provisions of this Decree shall be guilty of an offence under this Decree and on conviction in the case of an individual to N 100,000 fine or to five years imprisonment and in the case of a firm or corporation to a fine of not less than N 50,000 and not more than N 1,000,0000. Interpretation 63.-(1) In this Decree, unless the context otherwise provides- "Agency" means the Nigerian Environmental Protection Agency estab- lished by the Federal Environmental Protection Act; "assessment by a review panel" means an environmental assessment that is conducted by a review panel appointed pursuant to section 30 Appendix VII 129 and that includes a consideration of the factors set out in subsecllon 11(1) and (20) of this Decree; "Council" means the Federal Environmental Protection Council estab- lished by the Federal Environmental Protection Agency Act; "environment" means the components of the Earth, and includes- (a) land, water and air, including all layers of the atmosphere, (b) all organic and inorganic matter and living organisms, and (c) the interacting natural systems that include components referred to in paragraphs (a) and (b); "environmental assessment" means, in respect of a project, an as ess- ment of the environmental effects of the project that is conducted in accordance with this Decree and any regulations made thereunder; .environmental effect" means, in respect of a project, (a) any change that the project may cause to the environment, (b) any change the project may cause to the environment, whether any such change occurs within or outside Nigeria, and includes am' ef- fect of any such change on health and socio-economic conditions; "exclusion list" means any list prescribed pursuant to paragraph 55(1) (b), (d) or (e) or section 55(2) of this Decree; "Federal authority" means- (a) a Minister of the Government of the Federation of Nigeria; (b) an agency of the Government of Nigeria or other body established by or pursuant to an Act, Decree, Law or Edict that is ultimately ac- countable through a Governor of the State of Nigeria in the con- duct of its affairs; (c) any other prescribed body, but does not include the Commissioner in a Local Government; "Federal lands" means- (a) lands that belong to the Federal Government of Nigeria in which Nigeria has a right thereon or has the power to dispose of and all waters and the air space above those lands, 130 The Legal and Regulatory Framework for Environmental ImpactAssessments (i) the internal waters of Nigeria within the meaning of the sea Fisheries Decree 1992, including the sealed and subsoil below and the airspace above those waters, (ii) the territorial sea of Nigeria as determined in accordance with the Nigerian Territorial Waters Act, including the seabed and subsoil below and the airspace above that sea, (iii)any fishing zone of Nigeria prescribed under the Sea Fisheries Decree 1992; (iv)any exclusive economic zone that may be created by the Gov- ernment of Nigeria; and (v) the continental shelf, consisting of the seabed and subsoil of the submarine areas that extend beyond the territorial sea throughout the natural prolongation of the land territory of Nigeria to the outer edge of the continental margin or to a distance of two hundred nautical miles from the inner limits as may be prescribed pursuant to a Decree or an Act, and (b) reserves, surrendered lands and any other lands that are set apart for the use and benefit of a class of Nigerians by the Federal Gov- ernment of Nigeria and all waters and the airspace above those reserves or surrendered lands; "follow-up program" means a program for:- (a) verifying the accuracy of the environmental assessment of a pro- ject, and (b) determining the effectiveness of any measures taken to mitigate the adverse environmental effects of the projects; "mandatory study" means an environmental assessment that is con- ducted pursuant to section 17 and that includes a consideration of the factors set in subsection 11(1) and (2) of this Decree; "mandatory study list" means the list in the Schedule to this Decree and those that may be prescribed pursuant to section 55(1)(c) of this Decree; "mandatory study report" means a report of a mandatory study that is prepared in accordance with the provisions of this Decree or any regu- lation made thereunder; Appendix VII 131 "mediation" means an environmental assessment that is conducted with the assistance of a mediator appointed pursuant to section 26 of this Decree and that includes a consideration of the factors set ot t in section 11(1) and (2) of this Decree; "mitigation" means, in respect of a project, the elimination, reductio l or control of the adverse environmental effects of the project, and includes restitution for any damage to the environment caused by such effects through replacement, restoration, compensation or any other means; "prescribed" means prescribed by regulations; "project" means a physical work that a proponent proposes to con- struct, operate, modify, decommission, abandon or otherwise carry out or a physical activity that a proponent proposes to undertake or other- wise carry out; "proponent", in respect of a project, means the person, body or federal authority that proposes the project; "record" includes any correspondence, memorandum, book, plan, mrap drawing, diagram, pictorial or graphic work, photograph, film, micro- form, sound recording, videotape, machine readable record, and any other documentary material, regardless of physical form or characte:Ais- tics, and any copy thereof; "responsible authority", in relation to a project, means a Federal authority that is required pursuant to subsection 7(1)of this Decree to ensure that an environmental assessment of the project is conducted; "responsible minister" means, in respect of a responsible authority; (a) in the case of a department or ministry of State, the Minister or Commissioner presiding over that department or ministry, and (b) in any other case, such member of the National Executive Council or State Executive Council as is designated as the responsible Min s- ter or Commissioner for that responsible authority; .screening" means an environmental assessment that is conducted pursuant to section 13 of this Decree and that includes a consideration of the factors set out in section 11(1) of this Decree; 132 The Legal and Regulatory Framework for Environmental Impact Assessments "screening report" means a report that summarizes the results of a screening. (2)For the purposes of this Decree, a company is controlled by another company if:- (a) securities of the corporation to which are attached more that fifty per cent of votes that may be cast to elect directors of the corpora- tion are held, other than by way of security only, by or for the ben- efit of that corporation; and (b) the votes attached to those securities are sufficient, if exercised, to elect a majority of the directors of the corporation. Citation 64. This Decree may be cited as the Environmental Impact Assessment Decree 1992. SCHEDULE Section 13 MANDATORY STUDY ACTIVITIES 1. AGRICULTURE (a) Land development schemes covering an area of 500 hectares or more to bring forest land into agricultural production. (b) Agricultural programmes necessitating the resettlement of 100 families or more. (c) Development of agricultural estates covering an area of 500 hectares or more involving changes in type of agricultural use. 2. AIRPORT (a) Construction of airports (having an airstrip of 2,500 metres or longer) (b)Airstrip development in State and national parks. 3. DRAINAGE AND IRRIGATION (a) Construction of dams and man-made lakes and artificial enlargement of lakes with surface areas of 200 hectares or more. (b) Drainage of wetlands wild-life habitat or of virgin forest covering an area of 100 metres or more. Appendix VII 133 (c) Irrigation schemes covering an area of 5,000 hectares or more. 4. LAND RECLAMATION (a) Coastal reclamation involving an area of 50 hectares or more. 5. FISHERIES (a) Construction of fishing harbours. (b)Harbour expansion involving an increase of 50 per cent or more in fish landing capacity per annum. (c) Land based aquaculture projects accompanied by clearing of mang:ove swamp forest covering an area of 50 hectares or more. 6. FORESTRY (a) Conversion of hill forest land to other land use covering an area o- 50 hectares or more. (b) Logging or conversion of forest land to other land use within the cavch- ment area of reservoirs used for municipal water supply, irrigation or hydro power generation or in areas adjacent to state and national parks and national marine parks. (c) Logging covering an area of 500 hectares or more. (d)Conversion of mangrove swamps for industry, housing or agricultural use covering an area of more than 10 hectares. (e) Clearing of mangrove swamps on islands adjacent to national marine parks. 7. HOUSING Housing development covering an area of 50 hectares or more. 8. INDUSTRY (a)Chemical - Where production capacity of each product or of com- bined products is greater than 100 tonnes/day. (b) Petrochemicals - All sizes. (c) Non-ferrous - Primary smelting. Aluminum - all sizes Copper - all sizes Others - producing 50 tonnes/day and above of product. 134 The Legal and Regulatory Framework for Environmental Impact Assessments (d)Non-metallic - Cement - for clinker throughout of 30 tonnes/hour and above - Lime - 100 tonnes/day and above burnt lime rotary kiln or 50 tonnes/day and above vertical kiln. (e) Iron and steel - Require iron ore as raw materials for production greater than 100 tonnes/day; or - Using scrap iron as raw materials for production greater than 200 tonnes a day: (f) Shipyards - Dead Weight Tonnage greater than 5000 tonnes. (g) Pulp and paper industry - Production capacity greater than 50 tonnes/day. 9. INFRASTRUCTURE (a) Construction of hospitals with outfall into beachfronts used for recre- ational purposes. (b)Industrial estate development for medium and heavy industries cover- ing an area of 50 hectares or more. (c) Construction of Expressways. (d) Construction of national highways. (e) Construction of new townships. 10. PORTS (a) Construction of ports. (b) Port expansion involving an increase of 50 percent or more in handling capacity per annum. 11. MINING (a) Mining of materials in new areas where the mining lease covers a total area in excess of 250 hectares. (b) Ore processing, including concentrating for aluminum, copper, gold or tantalum. (c) Sand dredging involving an are of 50 hectares or more. 12. PETROLEUM (a) Oil and gas fields development. (b) Construction of off-shore pipeline in excess of 50 kilometres in length. Appendix VII 135 (c) Construction of oil and gas separation, processing handling, and stor- age facilities. (d)Construction of oil refineries. (e) Construction of product depots for the storage of petrol, gas or diesel (excluding service stations) which are located within 3 kilometre; of any commercial, industrial or residential areas and which have a com- bined storage capacity of 60,000 barrels or more. 13. POWER GENERATION AND TRANSMISSION (a) Construction of steam generated power stations burning fossil fuels and having a capacity of more than 10 megawatts. (b)Dams and hydroelectric power schemes with either or both of the fol- lowing. (i) dams over 15 metres high and ancillary structures covering a total area in excess of 40 hectares; (ii) reservoirs with a surface area in excess of 400 hectares. (c) Construction of combined cycle power stations. (d) Construction of nuclear-fueled power stations. 14. QUARRIES Proposed quarrying of aggregate, limestone, silica, quartzite, sandstone, marble and decorative building stone within 3 kilometers of any exist:ng residential, commercial or industrial area, or any area for which a licence, permit or approval has been granted for residential, commercial or industial development. 15. RAILWAYS (a) Construction of new routes. (b) Construction of branch lines. 16. TRANSPORTATION Construction of Mass Rapid Transport projects. 17. RESORT AND RECREATIONAL DEVELOPMENT (a) Construction of coastal resort facilities or hotels with more than 30 rooms. 136 The Legal and Regulatory Framework for Environmental Impact Assessments (b) Hill station resort or hotel development covering an area of 50 hectares or more. (c) Development of tourist or recreational facilities on national parks. (d) Development of tourist or recreational facilities on islands in surround- ing waters which may be declared as national marine parks. 18. WASTE TREATMENT AND DISPOSAL (a) Toxic and Hazardous Waste (i) Construction of incineration plant. (ii) Construction of recovery plant (off-site). (iii) Construction of waste water treatment plant (off-site). (iv) Construction of secure landfill facility. (v) Construction of storage facility (off-site). (b)Municipal Solid Waste (i) Construction of incineration plant. (ii) Construction of composing plant. (iii) Construction of recovery/recycling plant. (iv) Construction of municipal solid waste landfill facility. (c) Municipal Sewage (i) Construction of waster water treatment plant. (ii) Construction of marine outfall. 19. WATER SUPPLY (a) Construction of dams, impounding reservoirs with a surface area of 200 hectares or more. (b) Groundwater development for industrial, agricultural or urban water supply of greater than 4,500 cubic meters per day. Appendix VII 137 MADE at Abjua this 10th day of December 1992. GENERAL L.B. BABANGIDA President, Commander-in-Chief of the Armed Forces, Federal Republic of Nigeria EXPLANATORY NOTE (This note does not form part of the above Decree but is intended to explaiI its purport.) The Decree among other things sets out the procedures and methods to en- able the prior consideration of environmental impact assessment on cer :ain public or private projects. The Decree also gives specific powers to the Federal Environmental Protection Agency to facilitate environmental assessment on the projects. PUBLISHED BY AUTHORITY OF THE FEDERAL GOVERNMENT OF NIGERIA AND PRINTED BY THE MINISTRY OF INFORMATION AND CULTt RE, PRINTING DIVISION, LAGOS NOTES Introduction 1. Agenda 21 ch. 8 (adopted at the United Nations Conference on Environment and De- velopment held on Jun. 3-14, 1992 ), . 2. Convention on Environmental Impact Assessment in a Transboundary Context ait. 1 (Sept. 2, 1991), 30 I.L.M. 802 [hereinafter the Espoo Convention]. 3. Id. 4. World Bank, Operational Policies: Environmental Assessment (OP 4.01, Jan. 1999) E ara. 2, in The World Bank Operational Manual . See generally William Sheate, From Environmental Impact As;ess- ment to Strategic Environmental Assessment: Sustainability and Decision-Making in Jane Ho:der, Impact of EC Environmental Law in the UK 268-289 (Wiley Pub. 1996). 5. United Nations Environmental Programme, The Goals and Principles of Environme ntal Impact Assessment UNEP/GC.14/L.37-B (UNEP 1987). 6. Supra n.4 at annex B, n.l. A Category A project is one likely to have significant ad- verse environmental impacts that are sensitive, diverse, or unprecedented. 7. See e.g. World Bank, Environmental Assessment in Africa: A World Bank Commib lent Proceedings of the Durban Workshop (World Bank 1996). Chapter One: EIA and Legal Development and Reform: General Considerations 8. See Faith Halter, Towards More Effective Environmental Regulation in Developing Coun- tries (paper presented at OECD Development Center Seminar, August 27, 1990). 9. World Commission on Environment and Development, Our Common Future (Ox:ord U. Press 1987). 10. Since then, international financial institutions, including the World Bank, t ave tied the provision of development funding to the assessment of the environmental im- pacts of proposed projects. 11. In fact, in French-speaking Africa, old legislation known as "reglementation des etablissements classes" whose introduction by the then French colonial administralion goes as far back as 1926 empowers the government at the local and central levels to cl )se- ly monitor pollution emanating from polluting plants and/or harmful activities. In some cases, this pollution control monitoring involves a public consultation process called "enquete commodo-incommodo." However, this legislation is far less sophisticated than the EIA mechanism and does not cover a wide range of projects and programs. 12. A list of these countries and of their relevant laws and statutes is includec. in Appendix VI. 13. A good attempt to present such legal development on EIA has been made by the Commission for Environmental Impact Assessment of the Netherlands in a docurr ent called EIA Profiles of Developing Countries (Leiden 1998). Nineteen summaries for African countries are reported. 139 140 The Legal and Regulatory Framework for Environmental Impact Assessments 14. In the decision of the International Court of Justice on the Nagymoros Dam Case, Judge Weeramantry, in a separate opinion, considered that the principle of prior envi- ronmental assessment is part of customary law. For further discussion of customary environmental law, see D. Bodanski, Customary (and not so Customary) International Environmental Law in 3 Indiana J. of Global Legal Studies 105 (1995). 15. Among these economic instruments, incentives and quality standards are of the greatest importance to complement environmental regulations. Chapter Two: EIA and International Law 16. The Espoo Convention is the most comprehensive international instrument on EIA; supra n.2. In addition, other instruments make reference to EIA. See e.g. United Nations Convention on Biological Diversity art. 14(1)(a) (une 5, 1992), 31 I.L.M. 818; United Nations Framework Convention on Climate Change art. 4(1)(f) (entered into force Mar. 21, 1992) 31 I.L.M. 849; United Nations Convention on the Law of the Sea art. 206 (Dec. 10, 1982); 1295 U.N.T.S. 211; and West and Central African Marine Environment Convention art. 13 (1981). 17. The Espoo Convention explicitly states in its preamble that the parties are "mind- ful of the need and importance to develop anticipatory policies and of preventing, miti- gating and monitoring significant adverse environmental impact in general and more specifically in a transboundary context...". Espoo Convention, supra n. 2, at preamble. This Convention does not apply to African countries but is an indication of the state of in- ternational law. 18. United Nations Convention on Biological Diversity, supra n.16. 19. United Nations Convention on the Law of the Sea, supra n.16. 20. United Nations Framework Convention on Climate Change, supra n.16. 21. United Nations Convention to Combat Desertification in Those Countries Experi- encing Serious Drought and/or Desertification, Particularly in Africa (Sept. 21, 1994), [hereinafter the United Nations Convention to Combat Desertification]. 22. See Appendix IV. 23. It is clear that the private sector, especially in relation to large development pro- jects, is willing to undertake ElAs to respond to the growing demand for better environ- mental management and sustainable development of natural resources. The business community is often sympathetic to governments which develop regulatory frameworks that include sound EIA procedures and review processes, as well as pollution control guidelines, in order to avoid environmental risks and high-cost insurance for their projects. For the private sector, EIA procedures may also be seen as an instrument to (1) prevent delays in obtaining authorizations, (2) identify mitigation measures involving recycling and recovery of components of waste streams, (3) create a cleaner working envi- ronment, and (4) identify lower cost alternatives. 24. See Ibrahim El. Shihata, Implementation, Enforcement and Compliance with Interna- tional Environmental Agreements-Practical Suggestions in Light of the World Bank's Experience, 9 Georgetown Intl. Environmental L. Rev. 37 (1996). 25. But see Nigeria, Environmental Impact Assessment Decree sec. 56 (no. 86, Dec. 10, 1992). 26. See e.g. Burkina Faso, Loi relative au Code Forestier (no. 006/97/ADP) at art. 77.2, which states that "en application des conventions internationales dument ratifi6es par le Burkina Faso et selon les besoins, il peut attirer d'autres types d'aires de protection faunique." 27. Shihata supra n.24, at 46. 28. Rio Declaration on Environment and Development Principle 17 (Aug. 12, 1992), . Notes 141 29. N. Robinson, IUCN's Proposed Covenant on Environment and Development, 13 Pace Environmental L. Rev. 133 (1995). 30. World Bank, supra n.4 31. United Nations Environmental Program, supra n.5. 32. See e.g. Nigeria, Environmental Impact Assessment Decree supra n.25, at sec. 3t. 33. See e.g. the Convention on Wetlands of International Importance Especially as Wateifowl Habitat (Feb. 2, 1971), [hereinafter the Rainsar Convention]. 34. World Bank, supra n.7. Chapter Three: Analysis of Current SSA Countries' ETA-Related Laws, Regulations, and Statutes 35. All sub-Saharan countries are included. Information about current environmental impact assessment legislation was gathered from governmental agencies, academia, and local NGOs. Also, the authors have gathered information from the UNEP/UNDP Joint Pro- ject on Environmental Law and Institutions in Africa, which published the six-volime Compendium of Environmental Law of African Countries (including North Africa). It :nay happen that new laws, regulations and/or guidelines have been enacted after this piper was reviewed and printed. These new texts may be analyzed in an updated version of the paper. 36. This is the case of Burkina Faso, Benin, Gabon, Kenya, Lesotho, Senegal, Uganda, Cameroon, and Niger where draft legislation on EIA were circulated for comment and discussion among stakeholders including ministries, NGOs, development agencies, academia, etc. Many of these are being prepared with the assistance of bilateral donor;, or within the framework of Bank-financed projects. 37. This is the case for Burkina Faso, Loi relative au Code de l'Environnen.ent (no.005/97/ADP, Jan. 30 1997); Comoros, Loi-cadre relative a l'environnement no. 94-018, June 22, 1994); Gabon, Loi relative a la protection et a l'amelioration de lYeavi- ronnement (no. 16/93, Aug. 26, 1993); Gambia, Environmental Management Act (no. 13, 1994); Ghana, Environmental Protection Agency Act (no. 490, 1994); Malawi, Envilon- mental Management Act (1996); Mauritius, Environmental Protection Act (no. 34, as amended in 1993); Seychelles, Environmental Protection Act (1994); Swaziland, Enviion- ment Authority Act (no. 15, 1992); Togo, Loi relative au Code de l'Environnement no. 88-14, Nov. 3, 1988); and Uganda, The National Environmental Statutes (May 17, 1995). 38. This is the case for the Republic of Congo, Decret rendant obligatoires les bttdes d'impact sur l'environnement (no. 86-775, June 7, 1986); Cote d'Ivoire, Decret deter- minant les regles et procedures applicables aux etudes relatives a l'impact environ- nemental des projets de developpement (no. 96-894, Nov. 8, 1996); Madagascar, De -ret relatif a la mise en compatibilite des investissements avec l'environnement no. 92-926, Oct. 21, 1992); Nigeria, Environmental Impact Assessment Decree, supra n 25; Zambia, Environmental Impact Regulations (statutory instrument no. 28, 1997); and South Africa, Environmental Conservation Act (no. 73, 1989), as well as Regulation 1182 (Regulation Gazette, Sept. 5, 1997) and Regulation 1183 (Regulation Gazette, Sept. 5, 1997). These regulations pertain to the activities described in section 21 of the Envi- ronmental Conservation Act. See generally for South Africa the Explanatory Memosan- dum regarding Government Notices 1750, 1752, and 1751 of November 1, 1996, on proposed actions in terms of sections 21, 22 and 26 of the Environmental Conservation Act, 1989. 39. Namibia, Environmental Assessment Policy Cabinet Resolution (no. 002, Aug. 16, 1994); and Zimbabwe, Environmental Impact Assessment Policy July 1994). 142 The Legal and Regulatory Framework for Environmental Impact Assessments 40. South Africa, Environmental Conservation Act (no. 73, 1989); Zambia, Environ- mental Protection and Pollution Control Act (no. 12, 1990); and C6te d'lvoire, Loi portant Code de l'Environnement (no. 96-766, Oct. 3, 1996). 41. In Kenya, at the cross-sectoral level, the EIA process is administered by an inter- ministerial committee, which develops administrative guidelines and questionnaires. The guidelines' coverage is adequate to facilitate informed decision-making by relevant au- thorities on the environmental impact of the proposed projects. However, this procedure is purely administrative with no legal basis, and it is implemented in the context of wide discretionary powers. It is clear that the desire to attract investments may override ecolog- ical considerations. See Bondi D. Ogolla, Kenya. Environmental Management Policy and Law 3 Environmental Policy and Law 164 (1992). 42. In October 1999, a bill was drafted on environmental impact studies in buffer zones. 43. UNEP, supra n.5. 44. World Bank, supra n.4, at para. 8(a-d) defines different categories of projects: (1) Category A for projects "likely to have significant adverse environmental impacts that are sensitive, diverse or unprecedented'; (2) Category B, for projects that are likely to have "potential adverse environmental impacts on human populations or environmentally important areas ... are less than those of category A projects"; (3) Category C for projects that are "likely to have minimal or no adverse environmental impacts", and finally (4) Category Fl for projects that involve "investment of Bank funds through a financial intermediary, in subprojects that may result in environmental impacts." 45. The most recently enacted, a decree on EIA in Mali, provides in its core text, under article 4 a list of 32 activities, projects and programs which are subject to EIA. Article 5 of this decree states that non prescribed projects are subject to "une notice d'etude d'impact sur l'environnement" (i.e., environmental impact study note) which summarizes the like- ly impacts of the project on the environment and the mitigatory measures to be undertak- en and implemented to reduce or eliminate them; Mali, Decret portant institution de la procedure d'etude d'impact sur l'environnement art. 4-5 (no. 99-189, July 5, 1999). 46. Comoros, Loi-cadre relative a l'environnement, supra n.37, at art. 14.1 which stipu- lates "un decret du conseil des ministres : ... arrete la liste des travaux et projets soumis a l'etude d'impact prealable, en raison de la nature des activites projetees." 47. Malawi, Environmental Management Act, supra n.37, at sec. 24. As of January 1998, no notice had been issued. It is interesting to note that in the Namibia EIA Policy, a list is provided in an appendix, but the policy states that this list "should be used to guide" the Board when it decides on whether a "policy, program or project requires an EA or not." See Namibia, Environmental Assessment Policy Cabinet Resolution, supra n. 39 at sec. 4. To be effective, this approach requires that the specifications should be broad enough and designed to cover all projects likely to have significant harmful impacts on the environment. 48. Burkina Faso, Loi relative au Code de l'Environnement, supra n.37, at art. 20 states that: "un decret pris en conseil des ministres ... etablit la liste des travaux, ouvrages, am& nagements et activites, ainsi que les documents de planification assujettis A l'etude ou a la notice d'impact sur 1'environnement." However, the decret is not yet enacted. Article 67 of the Environmental Code of Gabon states that "les travaux, ouvrages ou amenagements industriels, agricoles, urbains, ruraux, miniers ou autre entrepris par les collectivites publiques, les entreprises publiques ou privees qui risquent, en raison de l'importance de leur dimension ou de leurs incidences &ologiques, de porter atteinte A l'environnement, doivent donner lieu A une etude d'impact prealable.... The same provision is found in Togo, Loi relative au Code de l'Environnement, supra n.37, at art. 22. 49. In C6te d'lvoire, the decree on EIA is followed by two annexes. Annex I includes "projets soumis A etude d'impact environnemental" which is comprised of a wide range of activities including projects in the sectors of (a) agriculture, (b) forest management plans, Notes 143 (c) extractive industries, (d) energy and industry, (e) waste management, (f) food-prccess- ing industry, (g) chemical industry, (h) manufacture, and (i) infrastructure, including ce- ment plants, tourist resorts, and the arms industry. Annex 11 includes "projets soumis au constat d'impact environnemental" comprising a list of activities in the same sectors as in annex 1, but of smaller size and with less harmful effect on the environment. Annex II in- cludes also urban planning and land use planning documents, as well as projects mcdify- ing previous projects that were subjected to a full EIA; C6te d'lvoire, Decret determinant les regles et procedures applicables aux etudes relatives a l'impact environnemental des projets de developpement, supra n.38, at annexes I-1I. The Republic of Congo has a s ngle annex on "liste des travaux, ouvrages et amenagements soumis a l'etude d'impact" focus- ing on infrastructure activities; Republic of Congo, Decret rendant obligatoires les eludes d'impact sur l'environnement, supra n.38. The Gambia, Environmental Management Act, supra n.37 includes a schedule in part A, dealing with "projects to be considered for ;nvi- ronmental impact assessment" and comprising a wide range of activities classified into fourteen categories of sectors. Madagascar, Decret relatif a la mise en compatibilite de s in- vestissements avec l'environnement, supra n.38 includes an annex listing 22 categories of activities to be subject to ElAs, one of which is resettlement of population. See Nigeria, En- vironmental Impact Assessment, supra n.25, at sec. 13; Uganda, The National Env ron- mental Statutes, supra n. 37 at third sched.; South Africa, Environmental Conserv;.tion Act, supra n.38. The case of South Africa is interesting because it differentiates activities subject to EIA depending on whether they will impact one province or more than one province, or affect an international treaty or agreement with a neighboring country. 50. C6te d'lvoire, Decret determinant les regles et procedures applicables aux etudes relatives A l'impact environnemental des projets de developpement, supra n.38, at a:nex III lists six categories of areas, including (a) protected areas; (b) wetlands and mangroves; (c) areas of scientific, cultural and/or tourist interest; (d) ecologically sensitive area;; (e) watershed buffer zones; and (f) marine areas whether domestic or international. 51. South Africa, Regulation 1182, supra n.38, at sec. 4: "the intensive husbandry of, or importation of, any plant or animal that has been declared a weed or an invasive ilien species", sec. 5: "the release of any organism outside its natural area of distribution that is to be used for biological pest control", and sec. 6: "the genetic modification of any organism with the purpose of fundamentally changing the inherent characteristics of that organism." 52. See e.g. Zambia, Environmental Impact Regulations, supra n.38 at second sched. (reg. 7.2). 53. Nigeria, Environmental Impact Assessment Decree, supra n.25, at sec. 13 lists detailed activities under headings such as agriculture, airport, drainage and irrigation, land reclamation, fisheries, forestry, housing, industry, infrastructure, ports, minling, petroleum, power generation and transmission, quarries, railways, transportation, resort and recreational development, waste treatment and disposal and water supply. 54. Zimbabwe, Environmental Impact Assessment, supra n.39, at sec. 6.2 (table 3). 55. See e.g. the requirement for a building permit, which necessitates an evaluation of the land use change and impact on the neighborhood of all construction projects. 56. EIA would analyze and identify the likely harmful impacts "directs et indirectc, des projets ... sur la sant6, la qualit6 de l'environnement, les ressources naturelles et les equili- bres ecologiques" (Gabon, loi relative a la protection et a l'amelioration de l'env ron- nement, supra n.37, at art. 68); "environmental impacts of the proposed activity including the direct, indirect, short-term and long-term effects..." (Gambia, Environmental Manage- ment Act, supra n.37, at sec. 23(3)(e)); and "the direct and indirect effects that the under- taking is likely to have on the environment" (Mauritius, Environmental Protection Act, supra n.37, at sec. (14)(c)). C6te d'lvoire, Decret determinant les regles et procedure; ap- plicables aux etudes relatives a l'impact environnemental des projets de developpernent, supra n.38, at art. 12.2 is as complete a checklist of EIA-related issues as the one enacted in 144 The Legal and Regulatory Framework for Environmental Impact Assessments Zambia (see Zambia, Environmental Impact Regulations, supra n.38) and may be consid- ered to be good practice. 57. Zambia, Environmental Impact Regulations, supra n.38, at sec. 4. See Box 4 in the main text. 58. It is always advisable to evaluate the magnitude of these impacts not only in bio- physical terms but also in monetary terms. 59. Mali, Decret portant institution de la procedure d'etude d'impact sur l'environ- nement, supra n.45, at art. 9.5 states that EIA should have the following elements: "une identification et une evaluation des impacts positifs et negatifs potentiels, directs et indi- rects, immediats et A long terme, importants et secondaires, locaux et r6gionaux du projet propose sur l'environnement." Only an estimation of the amount of wastes and emissions is required under article 9.7. There is no explicit reference to social and/or human impacts of the proposed project. 60. See the legislation of Burkina Faso, Uganda, and Kenya. 61. In general, all EIA-related legislation focuses on the external environment, that is the environment outside project site limits. This is due in part to the fact that African countries often copied EIA legislation from industrialized countries that have an enabling legal framework for occupational health protection and working conditions. In African countries, where the legal framework dealing with the working conditions and health is generally weak, it is important to refocus EIA-related legislation on a comprehensive defi- nition of the environment, which includes the intemal and extemal environment. It is important to consider, for example, the change of air quality or noise level on the health of workers and their families. 62. Note should be taken of the AIDS crisis, which should not be ignored during the EIA process. 63. The World Health Organization (WHO), the Food and Agriculture Organization (FAO) and other intemational institutions and business organizations have developed spe- cific standards for water, waste, noise, etc. 64. Ghana, Procedures and Other Matters Pertaining to EIA (LI 1652, Feb. 26, 1999). 65. There are a number of laws governing water resources, i.e., Rivers Ordinance (1903), Volta River Development Act (1961), Ghana Water and Sewage Act (1965), and Oil in Navigable Waters Act (1964), but they are all too outdated to be of any useful and prac- tical application. 66. A marginal improvement was provided under the 1986 Mineral and Mining Law which requires the licensee to protect the environment from adverse mining effects (sec- tion 72 of the law). But the Small-scale Gold Mining Law of 1989 allows people to under- take what is usually defined as surface operations that are a real threat to the environment through chemical pollution, stream siltation, soil erosion, and open ditches in mining ar- eas. See G.A Sarpong, Presentation Paper, The Ghanaian Environmental Law Regime, (launch- ing of the Network of African Environmental Lawyers, Nairobi, Kenya, Sept. 12, 1999). Chapter Four: Public Participation and Consultation During the EIA Process: General Considerations 67. Authors mentioned that EIA is a process that relies on the expression of public communication. The main benefit of EIA may be to advance mutual communication and understanding. See W.A. Tilleman, Public Participation in the ELA Process: A Comparative Study of Impact Assessment in Canada, the United States and the European Community, 33 Columbia J. of Transnational Law 337 (1995). 68. The legislation of some African countries states that the relevant authority may re- quest a public inquiry the conclusions and recommendations of the EIA Report. Examples include Burkina Faso, Cote d'Ivoire, and Zambia. Notes 145 69. Do citizens of African countries enjoy a right to a clean and healthy environrent under the public law of their respective countries? It is very difficult to answer su:h a question especially in terms of differentiating between an enjoyable and enforceable ilight under the public law of a given African country and commonly shared legal rhe:oric which does not confer any enforceable right to citizens. The right to participate in envi- ronmental decision-making processes appears to be one of the most difficult to evaluate, because it is very narrowly drawn in the various legislations examined here. However, it is the practice that will help determine the real extent of such a right. 70. S.H. Davis & N. Rukuba-Ngaiza, Meaningful Consultation in Environmental Assess- ment (World Bank Social Development Notes No. 39, 1998). 71. In countries where no such legislation exists, it may be difficult to assess how governments define public participation. However, ElAs and public consultation! are often carried out to satisfy the requirements of donor agencies. These consultations can prove to be very important for both the project proponent and the affected public. The Chad-Cameroon Petroleum Development and Pipeline Project is an excellent exarnple of this concept. Neither Cameroon nor Chad has any national legislation mandating public participation in the EIA process. However, as per World Bank policy, a full public consultation was conducted, and the project's final environmental management Mlan requires ongoing consultation to protect the affected public from any possible negaLtive effects of project implementation and to ensure that any mitigation measures are d, vel- oped in conjunction with the affected population. The Chad-Cameroon Petroleum Devel- opment Project: Environmental Assessment (accessed Oct. 26, 2001). 72. One interesting example is Uganda where the Local Government Act requires that dissemination of information follow the traditions of the locality where the by-laws or local laws are made. This is also likely to apply to the EIA process. 73. It should be noted that not all OECD countries have this provision in their legisla- tion either. 74. Zambia, Environmental Impact Regulations, supra n.38, at sec. 2. 75. Id. at sec. 10(1). 76. Id. at sec. 16(2). 77. Id. at sec. 17(2)(a)-(b). 78. South Africa, Regulation 1182, supra n.38, at sec. 3(l)(f). 79. Id. at sec. 11. 80. However, the federal agency has the discretionary power to call for public cons ilta- tion and this procedure is used mainly for big projects funded by foreign agencies cr in- vestors. The legislation needs to be reviewed and updated to encompass public partic.ipa- tion and consultation at the state and local levels and to empower governmcntal environmental agencies to review and monitor EIA. 81. Cases indude Seychelles and South Africa legislation. See Appendix 111. 82. C6te d'lvoire, Loi portant Code de l'Environnement, supra n.40, at art. 35.6 reads "toute personne a le droit d'etre informee sur l'Ftat de l'environnement et de participer aux procedures prealables a la prise de decisions susceptibles d'avoir des effets prejucicia- bles a l'environnement." 83. See Appendix III. 84. UNEP, UNEP's New Way Forward: Environmental Law and Sustainable Develop nent 265 (United Nations Publications, 1995). 85. In industrialized countries, EIA-related laws deal with the issue of people's righ ts to participate in the EIA process and to appear before a court to protect their rights to a clean and healthy environment; see Ward, The Right to an Effective Remedy in European Communi- ty Law and Environmental Protection: A Case Study of United Kingdom Decisions Concerning the Environmental Assessment Directive, 4 J. of Envtl. Law 221 (issue 2, 1993). 146 The Legal and Regulatory Framework for Environmental Impact Assessments Chapter Five: The EIA Report 86. Togo, Loi relative au Code de l'Environnement, supra n.37, at art. 30 states that: "Le promoteur indiquera au bureau [des etudes d'impact] les noms du ou des consultants qu'il aura choisi pour effectuer l'etude.... [Le ministre] pourra recuser par une decision motivee les consultants qui auraient montre une incompetence prejudiciable a la bonne execution des etudes d'impact"; South Africa, Regulation 1183, supra n.38, at sec. 3 states that "(1) an applicant (a) must appoint an independent consultant who must on behalf of the applicant comply with these regulations." C6te d'lvoire stresses the need to use national capacity for EIA, see Cote d'lvoire, Loi portant Code de l'Environement, supra n.40, at art. 9, which states that the proponent "peut recourir a un organisme ou consul- tant independant de son choix.... Mais l'utilisation partielle ou entiere des capacites nationales est obligatoire. Elle devra, dans la mesure des competences disponibles, etre conforme a la repartition 2/3 experts et/ou consultants nationaux, 1/3 experts et/ou consultants non nationaux." 87. For example, this is the case in Tunisia, the Czech Republic, Mexico, and Thailand. 88. Zambia, Environmental Impact Regulations, supra n.38, at sched. 5. See C6te d'lvoire, D&ret determinant les regles et procedures applicables aux etudes relatives a l'impact supra n.38, at art. 17, which states that "I'examen des etudes d'impact par le Bureau d'etude d'impact donnera lieu au versement d'une taxe, au fonds de l'environ- nement" and Madagascar, supra n.38, at art. 12, which provides that the proponent will be charged 0.5% of the amount of the investment, but that the fees are tax deductible. 89. South Africa, Regulation 1183, supra n.38. 90. A description of the required contents of the EIA Report can be found in supra n.84, at p.264. 91. E.g. Gabon, Loi relative a la protection et a l'amelioration de l'environnement, supra n.37, at art. 68(ff). 92. E.g. Uganda, The National Environmental Statutes, supra n.37, at sec. 21(2) reads: "An environmental impact statement shall be made according to guidelines established by the Authority." 93. Some legislation lack provisions on EIA review. See e.g. Seychelles, Environmental Protection Act, supra n.37 at sec. 15(6), which states that the "Authority shall be responsi- ble for the monitoring of the conclusions of the EIA Study and to ensure that the neces- sary conditions are complied with." No mention of any review is made in the act. 94. E.g. Togo, Loi relative au Code de l'Environnement, supra n.37, at art. 26.2. 95. South Africa, Environmental Conservation Act, supra n.38. 96. E.g. Nigeria, Environmental Impact Assessment Decree, supra n.25 provides for the option to call for mediation between the authority and the proponent, or to establish a re- view panel, or to hear experts to make sure that the EIA documents reflect the reality by providing the needed information and drawing sound conclusions. 97. The Togolese law, for example, provides a one-month period: Le bureau [des etudes d'impact] pourra, au vu du premier etat de l'etude, tenir celle-ci pour suffisante, ou poser de nouvelles questions au promoteur, ou lui demander une recti- fication de l1'tude dans un delai d'un mois.... Togo, Loi relative au Code de l'Environnement, supra n.37, at art.26.2. 98. EA review is not just a desk task, but involves monitoring the physical, social, and economic variables associated with project impacts. To help weak or newly-established government environmental agencies, an outside and independent review process of the EIA report might always contribute to the successful completion of the review procedure, in particular in the case of large infrastructure and other development projects. But even where such a solution is adopted, capacity-building at the central and local government and private sector levels is a critical exercise, without which an effective EIA Report review and monitoring cannot be appropriately carried out. Notes 147 99. It is not required that such experts be permanent staff of the relevant authority. Rather it is a good option to have a list of national experts (in universities, consulting firms, industry, other government agencies) and of international experts (with prover ex- pertise in the country) that the relevant authority may use on a contractual basis to re-iew EIA Reports and/or to provide any necessary input during the EIA process. 100. Environmental impact auditing involves comparing the impacts predicted in the EIA Report with those which actually occur after implementation, in order to assess the validity of those predictions. Environmental auditing also focuses on institutions and Dro- grams for environmental management and associated risks and liabilities. Conclusion 101. Nigeria, Environmental Impact Assessment Decree, supra n.25, at secs. 11, 49. 102. South Africa, Environmental Conservation Act supra n.38. The regulation. re- garding activities identified under section 21(1) of the Environmental Conservation Act clearly state that the "relevant authority" in charge of implementing, reviewing and rnon- itoring the environmental impact assessment may be the minister of environmental af- fairs, or a provincial or local authority. 103. E.g. Zambia, Environmental Impact Regulations, supra n.38, at sec. 7(2): "To en- sure that public views are taken ... the developer shall organize a public consulta:ion process involving ... local authorities...." 104. See Managing the Environment Locally in Sub-Saharan Africa, The Poverty,, Envi- ronment, Governance Trilogy: Proceedings of the Knowledge and Expertise Resource Net vork (1998), . 105. The trend to finance projects through social development funds is now estab- lished, and community action programs represent the next logical step. 106. In January 2000, a small group of mostly African EA professionals met at CSIR, Stellenbosch in South Africa to discuss a long-standing idea in the SADC region to bu: Id a regional resource center for capacity-building in environmental assessments (SAIEA). The idea was bom during the African EA Stakeholder Meeting in Nairobi in July 1998 and brought to the forefront during the IAIA (Intemational Association for Impact As:;ess- ment) meeting in Glasgow last June. The idea was then endorsed by IAIA during a meeting in Montreal toward the end of 2000, and then proceeded to Stellenbosch f or a practical analysis and more detailed planning. 107. World Bank, supra n.7. 108. GEOPLAN International, Environmental Assessment Capacity Development in AFrica (final draft report, December 1999). 109. The project is funded by the Dutch Government and located within UNEP. The project has a steering committee which includes UNDP, UNEP, FAO, and the World B ink. It is headed by an eminent Kenyan lawyer, Prof. Charles Okidi. Appendix I: ElA-Related Issues in Sub-Saharan African Countries Laws and Statutes 110. Burkina Faso, Loi relative au Code de l'Environnement, supra n.37, at sec. 5 (arts. 17-24) states that environmental notices will be required for activities to be def ned by specific regulations. A draft EA decree is being prepared under a UNDP/UNEP/Duitch project. 111. Cameroon, D6cret 84-797 July 17, 1984) empowered the "Direction des etablissements humains et de l'environnement" of the Ministry of Planning to condJuct "les 6tudes d'impact relatives [aux] operations de d6veloppement sur l'environnemEnt." But no indications were provided on the implementation of this mandate, nor on the 18 The Legal and Regulatory Framework for Environmental Impact Assessments procedure to be followed for EIA. Cameroon, Loi portant regime des forets, de la faune et de la p&he (no. 94-01, 1994) has introduced EIA as a requirement for all development projects which may impact forests or the aquatic environment. Cameroon, Loi-cadre rela- tive a la gestion de l'environnement (no. 96-12, Aug. 5, 1996) has finally introduced EIA requirements as a general obligation, but without providing all the needed details on its implementing procedures. 112. Cameroon, Decret 95-PM-531 (Aug. 23, 1995) compels the government to pre- pare an EIA before changing forest status. 113. Comoros, Loi-cadre relative a l'environnement, supra n.37, at sec. 3. 114. Id. at art. 11 mentions that all development projects ("projets d'amenagement et de developpement, y compris les plans d'urbanisme") are to be subjected to an EIA. 115. A very rough definition of EIA content is provided in id. at art. 12. 116. Three lists are annexed to Comoros, Decret 96-894 (Nov. 8, 1996). The first lists all projects subjected to EIA. The second deals with projects subjected to an environmen- tal analysis (called "constat d'environnement'), and the third describes areas where all development projects, regardless of whether they appear in the two lists, are subjected to a full EIA. These areas include: protected areas, wildlands, areas of scientific or touristic interest, and marine areas. 117. A model EIA report is annexed to Decret 96-894; C6te d'lvoire, Decret determi- nant les regles et procedures applicables aux etudes relatives a l'impact environnemental des projets de developpement, supra n.38. 118. However, Annex III to Decree 96-894 specifies that all projects located in marine areas whether under national jurisdiction or in international waters or any other interna- tional waterway are subject to EIA; see id. 119. However, there is no clear designation of the institution in charge of the monitor- ing. The sectoral ministry, the EIA directorate, the Classified Plants Office (service des etablissements classes) and the Centre for Pollution Control (CIAPOL) all have part of the monitoring mandate. There is a clear case of conflicting and overlapping mandates which may hinder the enforceability of the EIA recommendations implementation. 120. It is interesting to note that Ethiopia has established an Environmental Protection Authority with two main departments (the EA Review and Control Department and the Policy and Legislation Department), but is lacking a regulatory framework for EIA. 121. See Gabon, Loi relative a la protection et a l'amelioration de l'environnement, supra n.37, at arts. 67-71, which very broadly define EIA requirements and procedures. 122. Gambia, Environmental Management Act, supra n.37 at pt. V covers "EIA, audits and monitoring." 123. Ghana, Environmental Protection Agency Act, supra n.37 at sec. 12 covers the "Power of Agency to Request Environmental Impact Assessment." Guidelines for EIA have been issued for the mining sector. 124. Id. at secs. 12, 28(b). 125. It was the 1977-1983 Development Plan which mentioned the need for an EIA as a prerequisite for development projects. Also a policy paper circulated by the Minister of Environment and Natural Resources mentions EIA as a top priority, but no regulation has been yet enacted. Drafts have been circulated, but not yet adopted. 126. Ministry of Environment and Natural Resources. 127. Madagascar, Decret relatif a la mise en compatabilite des investissements avec l'environnement, supra n.38. 128. Malawi, Environmental Management Act, supra n.37 at pt. V covers "EIA, Audit and Monitoring." 129. Id. at sec. 25(3) relates to the EIA Report and states that the "EIA Report shall be open for public inspection." Also subsection 1(a) of section 26 states that "upon receiving the EIA report, the director,... where necessary may conduct public hearings at such places as the Director deems necessary for the purpose of assessing public opinion thereon." 130. Id. at sec. 25(2)(g) states that "an indication of whether the environment of any other country or of areas beyond the limits of national jurisdiction is or are likely to be Notes 149 affected by the proposed project and the measures to be taken to minimize any damage to the environment." 131. Mali, Decret portant institution de la procedure d'etude d'impact sur l'environ- nement, supra n.45. 132. Id. at arts. 12-13 mentions that the minister shall make public the EIA Report as the process unfolds and that the proponent shall consult the concerned local communi- ties, persons and organizations during a period not exceeding thirty days. 133. The proponent shall report to the Ministry of Environment every year on EIA im- plementation; see id. at art. 17. 134. Mauritius, Environmental Protection Act, supra n.37, at secs. 13-23 deals specifi- cally with EIA. 135. Id. at sec. 2, covers undertakings that require an environmental impact assessment. 136. Namibia, Environmental Assessment Policy Cabinet Resolution, supra n.39. The legal force and mandatory aspect of this policy remains to be seen. In general, the policy as such is an administrative decision that does not affect the rights and obligations of legal persons. 137. Nigeria, Environmental Impact Assessment Decree, supra n.25. 138. Id. at sec. 50(1) states that when a project "is likely to cause serious adverse envi- ronmental effect outside Nigeria.... The Agency and the Minister of Foreign Affairs :nay establish a review panel to conduct an assessment of the international environmental ef- fects of the project." 139. Seychelles, Environmental Protection Act, supra n.37 at pt. IV(sec. 15) ceals with EIA. 140. EIA is required under various laws in South Africa; see South Africa, Conserva:ion Act (no. 73, 1989); South Africa, Minerals Act (1991); and South Africa, Development Facilitation Act (1995). 141. Swaziland, Environmental Authority Act, supra n.37, at sec. 5(1-m) states that the Authority "shall establish guidelines for preparing environmental impact assessmen on all development projects." 142. Id. at sec. 18(1)(b) stipulates that the minister of environment sets regulatiom for "the procedures for the introduction of EIAs on development projects" after consulta:ion with the authority. 143. It is worth noting that id. refers to "all development projects." 144. Togo, Loi relative au Code de l'Environnement, supra n.37. 145. Uganda, The National Environmental Statutes, supra n.37, at pt. V (secs. 20--23) addresses EIA and environmental audit. 146. The case of Zambia is interesting because of the existence of two EIA regulat:ons that deal with EIA: (i) the Environmental Impact Regulations, supra n.38; and (ii) the Mines and Minerals (Environmental) Regulations (1997). The second is more specifically oriented towards mining operations. It is worth noting that a wildlife bill currently being discussed states that a wildlife impact assessment would be conducted under some circim- stances spelled out in the bill. Such a wildlife impact assessment will be conducted accord- ing to the EPPC-EIA. 147. Zambia, Environmental Impact Regulations, supra n.38, at second sched. 7(2) includes a list of projects which require EIA and encompasses mining and mineral :*ro- cessing, reduction of ores, etc. as part of these activities. They are therefore subject to the requirements of the Environmental Impact Regulations. 148. Zambia, The Mines and Minerals (Environmental) Regulations, supra n.146, do not make reference to public participation nor to EIA Report disclosure. Rather, the E. vi- ronmental Impact Regulations, supra n.38, at regs. 8(2-3), 10(1-2), clearly oblige the de- veloper to seek public views and organize public consultation. 149. Zambia, Environmental Impact Regulations, supra n.38 at reg. 13(1). 150. Zimbabwe, Environmental Impact Assessment Policy, supra n.39. Prior to 1994, the Government of Zimbabwe conducted various EIAs as a requirement of international donor agencies. The legal force and the mandatory aspect of the 1994 policy remains to be 150 The Legal and Regulatory Framework for Environmental Impact Assessments questioned. Some sectoral legislation (the 1981 Natural Resources, Act, the Mines and Minerals Act, and the Forestry Act) require EIA, but none of them explicitly describes the EIA process to be undertaken. Appendix II: Basic Features of the EIA Report in Sub-Saharan African Countries' Laws and Statutes 151. Some legislation uses the term "Environmental Impact Assessment Statement" or "Environmental Impact Statement" or "Environmental Impact Report." 152. It is interesting to note that Burkina Faso's 1994 Environmental Code did stipu- late the content of an EIA (Burkina Faso, Loi relative au Code de l'Environnement (no. 002/94/ADP, Jan. 19, 1994) at art. 7 (paras. 1-9). However, this article was not included in 1997 legislation, which only refers to an implementing decree to be enacted to define EIA content (supra n.37 at art. 23). This decree is in a draft form and is being discussed among govemment officials and stakeholders. 153. No specific format or formal requirement for the EIA report is yet defined by the law. The implementing decree for Cameroon's Environmental Management Framework Law has yet to be drafted to define such elements; see Cameroon, Loi-cadre relative a la gestion de l'environnement (no. 96-12, Aug. 5, 1996). 154. Id. at art. 19(2). 155. Comoros, Loi-cadre relative a l'environnement, supra n.37. 156. Republic of Congo, Decret rendant obligatoires les etudes d'impact sur l'environ- nement, supra n.38 at art.3 states that the EIA shall be conducted according to existing legislation, but does not require the proponent to state explicitly which legislation in the EIA Report. 157. This requirement is very broad and includes not only the physical environment, but also all land-use planning acts of concern for the existing environment. C6te d'Ivoire, Decret determinant les regles et procedures applicables aux etudes relatives a l'impact en- vironnemental des projects de developpement, supra n.38, at art. 12(2) describes this re- quirement: "statut juridique du site et de son environnement definis par des plans d'ame- nagement du territoire et par des arretes de protection des milieux determines." 158. Gambia, Environmental Management Act, supra n.37, at sec. 23(d) requires an ex- planation of the "reasons for selecting the proposed site and rejecting alternative sites." 159. Guinea, Ordonnance portant Code de l'Environnement de la Republique de Guinee (no. 045/PRG/87, 1987), at art. 83(2)(1). 160. Madagascar, Decret relatif a la mise en compatabilite des investissements avec l'environnement, supra n.38, at art. 5(3) compels the author of the impact assessment to propose "quelques indicateurs d'impact pertinents et facilement mesurables qui serviront a evaluer periodiquement l'incidence de l'investissement sur l'environnement physique ou humain." 161. Malawi, Environmental Management Act, supra n.37, at sec. 25(1)(c) requires "the description of the technology, method or process to be used in the implementation of the project and of any available alternative technology, method or process, and the reason for not employing the alternative technology, method or process," and sec. 25(1)(d) requires an explanation of "the reasons for selecting the proposed site of the project as opposed to any other available altemative site." 162. Mali, Decret portant institution de la procedure d'etude d'impact sur l'environ- nement, supra n.45, at art. 9 mentions that the EIA report shall include, inter alia a plan for following up on and monitoring impacts. 163. Mauritius, Environmental Protection Act, supra n.37, at sec. 14(g) states that EIA shall contain: "the irreversible and irretrievable commitments of resources which will be involved by the undertaking, if implemented in the matter proposed by the proponent." 164. Nigeria, Environmental Impact Assessment Decree, supra n.25 requires a "mini- mum content" for all EIA Reports, but also requires that "the environmental effects in an Notes 151 environmental assessment shall be assessed with a degree of detail commensurate with their likely environmental significance." 165. Id. at sec. 10 states that "when the Council deems fit and appropriate, a deci,ion on an activity which has been the subject of environmental impact assessment, the activ- ity and its effects on the environment or the provisions of section 9 of this decree, sha. I be subject to appropriate supervision." 166. Seychelles, Environmental Protection Act, supra n.37, at sec. 15(3)(g) states :hat the EIA Report shall comprise a "true statement and description of... the irreversible and irretrievable impact on the commitments of resources which will be involved by the :ro- ject or the activity." 167. South African legislation has the most comprehensive definition of EIA Re'ort content. See the Environmental Impact Report Regulations (Nov. 1996) and Regula ion 1183, supra n.38. 168. For activities identified under section 21(1) of the Environmental Conserva:ion Act, the EIA Report must provide a description of the extent and significance of each iden- tified environmental impact; South Africa, Environmental Conservation Act, supra n.38, at sec. 21(1). 169. Uganda, The National Environmental Statutes, supra n.37 requires an envi:on- mental impact statement, but its content is not specified by law. 170. Zambia has two separate regulations for EIA: the Mines and Minerals (Envi:on- mental) Regulations, supra n.146 and the Environmental Impact Regulations, supra n.38. 171. The Environmental Impact Regulations (Zambia, supra n.38) refer explicitl'i to "an impact management plan containing a description of measures proposed for prev nt- ing, minimizing or compensating for any adverse impact, and enhancing benefcial effects, and measures to monitor effluents, streams or important environmental featires that may be affected by the project..." The 1997 Mines and Minerals (Environmental) lleg- ulations refer to an "environmental management plan" (supra n.146, at sec. 5(1)(b)). rhe Mines and Minerals (Environmental) Regulations also require the developer to malke a written commitment to implement the environmental management plan and to allo -ate appropriate resources to cover the operational cost of protecting the environment cover- ing the full life of the mine (supra n.146, at sec. 5(2)(a)). This requirement is not madt for other proponents in non-mining activities. 172. Zimbabwe, Environmental Impact Assessment Policy, supra n.39 at sec. 4(3, re- quires a "detailed EIA Report." However, it states that "guidance on preparing the EIA Re- ports is provided by the Ministry," which explains why EIA Reports may differ from mne project to another. Appendix III: Public Consultation and Participation in Environmental Impact Assessment-Related Legislation of African Countries 173. The term "Report" is used as a synonym for "Statement" or "Study" appearin; in some legislation. 174. Burkina Faso, supra n.37, at art. 19 states that the EIA will be "compl6t6e par mne enquete publique dont le but est de recueillir les avis et les contres propositions des parties concernees par l'tude d'impact..." However, the procedure and content of this publi( in- quiry are not yet set up by decree as required under this same legislation in article 19.2. A decree is being prepared as part of a UNDPIUNEP/Dutch project on EIA procedure and -eg- ulations and includes public involvement in the EIA process. 175. Since a public inquiry has to take place, such a disclosure seems inevitable. 176. C6te d'lvoire, supra n.38, at art. 16 mentions that the EIA will be subjected eo a "public inquiry" and will be disclosed to the public. 177. The EIA Office within the Ministry of Environment is in charge of the public in- quiry and responsible for disclosing the EIA Report; id. at art. 11. 152 The Legal and Regulatory Framework for Environmental Impact Assessments 178. Gabon, Loi relative a la protection et A l'amelioration de l'environnement, supra n.37 does not mention the principle of public participation at all, not even as a general principle of environmental law. 179. Although the Environmental Management Act of 1994 organizes the participa- tion of people in environmental management through environmental committees at the national and local levels, it does not describe how this participation is carried out during the actual EIA process; Gambia, Environmental Management Act, supra n.37. 180. Id. at sec. 23(5) states that once the EIA is done, the El Statement "shall be a pub- lic document which may be freely consulted by any person provided that the Agency shall protect any information which it considers to be proprietary." 181. Yes, as a general policy statement. Also, in practice where an environmental impact assessment is prepared, public participation is required including EIA Report disclosure. 182. Madagascar, Decret relatif a la mise en compatabilite des investissements avec l'environnement, supra n.38, at art. 5(3) mentions that "I'etude d'impact redigee en malgache ou en francais [ndlr] doit faire ressortir..."and "afin de faciliter la prise de connaissance par le public des informations contenues dans l'tude, celle-ci fera l'objet d'un resume non technique redige en malgache ou en francais..." 183. This is an interesting feature of the Madagascar legislation. Id. at art. 10 empowers the environmental agency to decide whether the document should be made public for information purposes or for public consultation through the old fashioned procedure of "enquete publique de commodo et incommodo." If the agency decides to undertake a public inquiry, the public at large will be invited to give oral and/or written comments on the EIA during a two-month period. After this period an expert panel from the Agency reports on the EIA, including public comments. 184. Malawi, Environmental Management Act, supra n.37, at sec. 25(3) states that "the EIA report shall be open for public inspection...." 185. Id. at sec. 26(1)(a) states that the director shall "conduct public hearings at such place or places as the director deems necessary for purposes of assessing public opinion..." 186. Mauritius, Environmental Protection Act, supra n.37, at sec. 15(2) states that "the Director shall give notice [to review the EIA report, ndlr] to that effect in two issues of the Gazette and in two issues of two daily newspapers, there being in each case an interval of at least seven (7) days between the first and the second publications." 187. Nigeria, Environmental Impact Assessment Decree, supra n.25 has a chapter on "Opportunity for comments by certain groups" which are described as "government agen- cies, members of the public, experts in any relevant discipline and interested groups to make comments on EIA of the activity." 188. It is interesting to note that it is the decision of the agency on the EIA Report which will be made public and available to an "interested group or person." See id. at sec. 9(1)-(3). 189. Id. at sec. 2S(a) states that after receiving a mandatory study report on a project, the Agency shall, in any manner it considers appropriate, publish a notice containing the following information: (i) the date on which the mandatory study report shall be available to the public, (ii) the place at which copies of the report may be obtained; and (iii) the deadline and address for filing comments on the conclusions and recommendations of the report." 190. Seychelles, Environmental Protection Act, supra n.37, at sec. 15(5)(a) states that "An environmental impact assessment study shall be open for public inspection at all rea- sonable times." 191. Id. at sec. 15(5)(b) states that the EIA study shall be published in "two issues of a local newspaper with an interval of at least seven days between the first and the second publication." Notes 153 192. A limited right of administrative appeal is given to the public at large, including affected peoples. The question remains whether the decisions may be challenged before the courts. Id. at sec. 15(13) states that "any person aggrieved by the decision or order of the Authority under this section may appeal." 193. South Africa, Regulation 1183, supra n.38, at sec. 3(1)(f) states that an applicant is "responsible for the public participation process to ensure that all interested parties, in- cluding government departments that may have jurisdiction over any aspect of the ac :ivi- ty, are given the opportunity to participate in all the relevant procedures contemplate i in these regulations." 194. Id. at sec. 3(3)(d) states that the relevant authority must "try to keep the inputs required from the applicant to the minimum that are necessary to make an informed deci- sion on the application, without putting any limitation on the rights that interested var- ties may have in terms of these regulations" and section 3(5) states that "any interested parties who wish to participate in the public participation process.. .must respond within the time agreed to between the relevant authority and the applicant." 195. This information is drawn from Uganda, The National Environmental Statutes, supra n.37. These statutes are being complemented by regulations. Draft environme:ntal impact assessment regulations have been under preparation in Uganda since 1997. 7his draft provides for "public comments" (section 19) and for "comments of persons spe-ifi- cally affected by the project" (section 20). EIA-related documentation is made public and the right of appeal is recognized. 196. Zambia, Environmental Impact Regulations, supra n.38, at sec. 7(2) states that "to ensure that public views are taken into account during the preparation of the TORs, the developer shall organize a public consultation process,...., to help determine the scope of the work to be done in the conduct of the EIA and in the preparation of the EIA stite- ment." 197. Id. at sec. 10(1). 198. Id. at secs. 16, 17, 18, and 19 describes the various means used to publicize and uis- close the EIA Statement and to foster public participation and consultation including notifi- cation in newspapers, broadcasting on national radio, and public meetings and hearingn. 199. Zimbabwe, Environmental Impact Assessment Policy, supra n.39, at sec. .;(7) states that "Public consultation is an essential part of the EIA policy" which provides "gen- uine opportunities for individuals, communities, private organizations and public inte -est groups to provide input to the process of specifying, reviewing, and accepting EIA re- ports." To facilitate effective public consultation in Zimbabwe, individuals and grolps with a legitimate interest in projects have unrestricted access to all formal EIA documents. 200. Id. at sec.4(2) states that: "a Preliminary EIA (PEIA) report is required" and that "public consultation is mandatory when undertaking a PEIA." At minimum, the propo- nent must meet with the principal stakeholders to inform them about the proposed acdiv- ity and to solicit their views about it..." 201. Id. at sec.5(4) states that for "all prescribed activities, formal EIA documents are made available for public review and comment on demand." Appendix VI: List of Environmental Impact Assessment- Related Laws, Statutes, and Regulations of Selected Sub-Saharan African Countries 202. Other laws, statutes, and regulations may contain specific provisions on EIA. This might be the case of construction laws, planning laws, forestry and water-related laws E nd statutes. In modern Africa, Environmental Impact Assessments (ElAs) are a growing reality and a matter of law in some 22 Sub-Saharan African countries. This volume of the World Bank's Law, Justice, and Development series examines various aspects of EIA legislation in these countries, providing insights into environmental achievements and challenges in Sub-Saharan Africa and offering suggestions on harmonizing normative measures across countries. The Legal and Regulatory Framework for Environmental Impact Assessments is an excellent reference source that includes full-length reproductions of selected laws and a compilation of EIA legislation in the region. Everyone interested in the environmental concerns that Africa is now addressing will find this book a useful addition to their library. The authors are outstanding experts in the field. Mohammed Bekhechi is senior counsel in the Environmentally and Socially Sustainable Development and International Law Group at the World Bank. Jean-Roger Mercier is the lead environmental assessment specialist at the Quality Assurance and Compliance Unit at the World Bank. Both authors have worked in Africa to help develop EIA legislation. kFdward~ A tuwik 00803 SrJwc MC C3-301 1SN WVASHINGTON Dc THE WORLD BANK 1818 H Street, NW Washington, DC 20433 USA Telephone: 202-477-1234 Facsimile: 202-477-6391 Internet: www.worldbank.org E-mail: feedback@worldbank.org 0-8213-5115-X