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C:\Documents and Settings\Maggie\My Documents CLOSING THE GAP: INFORMATION, PARTICIPATION, AND JUSTICE IN DECISION-MAKING FOR THE ENVIRONMENT ELENA PETKOVA CRESCENCIA MAURER NORBERT HENNINGER With: FRANCES IRWIN JOHN COYLE GRETCHEN HOFF WORLD RESOURCES INSTITUTE WASHINGTON,WRI: CLOSING THE GAPDC i BOB LIVERNASH EDITOR HYACINTH BILLINGS PRODUCTION MANAGER MAGGIE POWELL LAYOUT Each World Resources Institute report represents a timely, scholarly treat- inquiry. It also solicits and responds to the guidance of advisory panels and ment of a subject of public concern. WRI takes responsibility for choosing expert reviewers. Unless otherwise stated, however, all the interpretation and the study topics and guaranteeing its authors and researchers freedom of findings set forth in WRI publications are those of the authors. Copyright © 2002 World Resources Institute. All rights reserved. Cover image: Corbis ISBN 1-56973-525-5 Printed in the United States of America on chlorine-free paper Library of Congress Catalog Card No. _________________________ with recycled content of 50%, 20% of which is post-consumer. WRI: CLOSING THE GAP ii CONTENTS National Teams ........................................... v 4. Windows of Opportunity: Access to Participation ........................ 65 Acknowledgments .................................... vii Introduction Foreword .................................................... ix Access to Public Participation: The Law Public Participation in Practice Executive Summary .....................................1 Conclusions 1. Introduction ......................................... 11 5. Reinforcing the Structure: Purpose Access to Justice .................................. 91 “Good Governance” and Introduction Sustainable Development Factors Influencing Access to Justice Global and Regional Norms Conclusions Organization of the Report 6. Building a Future: 2. The Methodological Framework ..........21 Capacity for Public Participation ....... 107 Measuring Governance Introduction Description of the Framework Investment by Government in Capacity Building Application of the Framework A Supportive Environment for Public Participation Strengths and Weaknesses Conclusions Conclusions 7. Conclusions and 3. Opening the Door: Recommendations ............................. 121 Access to Information.......................... 33 Summary of Findings and Conclusions Introduction Recommendations Access to Information: The Law Environmental Emergencies Appendixes .............................................. 135 Air and Water Quality Information 1. Selection of Emergency Cases Information About Environmental 2. Examples of Initiatives to Develop Public Performance by Industrial Facilities Access to Information about Industrial General Information about the Facilities Environment Through State of 3. Laws and Voluntary Approaches to Facility the Environment Reporting Reporting in Place in the Pilot Countries Conclusions Bibliography............................................. 143 WRI: CLOSING THE GAP iii BOXES TABLES 1.1 The Access Initiative 2.1 Methodological Framework 1.2 The Three Access Principles 2.2 Sample Research Question Evaluating Conditions 1.3 Commitments to the Three Principles: for Public Participation Access to Information, Access to Participation 3.1 Indicators of Quality and Accessibility of Access to in Decision-making, Access to Justice Information 1.4 Some Common Elements of National Public 3.2 Presence of Law and Provisions Supporting Participation Systems Public Access to Environmental Information 3.1 Freedom of Information in the United States 3.3 Quality and Accessibility of Access to Information in the Wake of September 11 in Selected Emergency Cases 3.2 New Approaches to Making Facility-Level Data 3.4 Case Selections Evaluating Quality and Accessibility Publicly Available of Air Quality Information 4.1 Women’s Access to Decision-making 3.5 Case Selections Evaluating Quality and Accessibility 4.2 Commitments to Access to Information of Water Quality Information and Participation in Multilateral Agreements 3.6 Facility-level Information Laws and Case Selections and Institutions 3.7 Summary of Recent State of the Environment Reports 4.3 Public Participation Provisions of EIA Laws in 4.1 Indicators of Quality and Accessibility of Latin America and the Caribbean Participation in Decision-making 4.4 The Link Between Access to Information and 4.2 Articulation of Participation Rights in Access to Participation Constitutional and Legal Frameworks 5.1 The Ombudsman of the European Union 4.3 Public Participation Provisions in 6.1 Public Interest Groups in Africa Latin American and Caribbean EIA Laws 7.1 Illustrative Recommendations for Action 4.4 Overview of National Environmental and at the National Level Sectoral Decision-making Processes 7.2 Recommendations for Specific Institutional Actors 4.5 Overview of National Energy Policy Cases in Central and Eastern Europe 4.6 Overview of Participation in Regional, State, FIGURES or Local Decision-making Cases 2.1 Access Initiative Countries 4.7 Overview of Participation in Project Decision-making Cases 3.1 Public Access to Industrial Pollutant Information 5.1 Indicators for Quality and Accessibility of Access to Justice 3.2 Access to Information Scorecard 5.2 Enabling Conditions for Access to Justice: 4.1 Stages in the Decision-making Cycle Quality of Legal and Regulatory Framework 4.2 Environmental Impact Assessments in Latin America 5.3 Enabling Conditions for Access to Justice: Accessibility of Institutional Infrastructure 4.3 Access to Participation Scorecard 5.4 Enabling Conditions for Access to Justice: 5.1: Access to Justice Scorecard Affordability of Justice 7.1 The Access Scorecard 5.5 Access to Justice Summary Comparisons 6.1 Indicators for Quality and Accessibility for Capacity Building 6.2 Government Efforts to Build its own Capacity 6.3 Government Efforts to Build the Capacity of the Public 6.4 Supportive Environment for NGOs 6.5 The Role of the Media WRI: CLOSING THE GAP iv NATIONAL ASSESSMENT TEAMS The co-authors of this report took the lead in compiling the results and doing the analysis, but all acknowledge the invaluable efforts of the teams that researched and produced the national reports. The co-authors take sole responsibility for the interpretation of the source material in this synthesis. TAI researchers who contributed to the national assessments include: Chile India Lorena Avila, Fundación TERRAM Tapati Dutta, Participatory Research in Asia Daniela Czischke, Centro de Estudios y Planificación del Medio Rajesh Dubey, Participatory Research in Asia Ambiente/Recursos e Investigación para el Desarrollo Sustenable Harsh Jaitli, Participatory Research in Asia Andrea Droppelmann, Centro de Estudios y Planificación del Medio Vijay Kanhere, Participatory Research in Asia Ambiente/Recursos e Investigación para el Desarrollo Sustenable Pawan Kumar Khare, Participatory Research in Asia Miguel Fredes, Centro de Estudios y Planificación del Medio Ambiente/ Recursos e Investigación para el Desarrollo Sustenable, Consultant Randeep Singh Saini, Participatory Research in Asia Lorena Garrido, Fundación TERRAM Indonesia Marcos González, Corporación Participa Andrea Sanhueza, Corporación Participa Lenny M. Apandi, Indonesian Center for Environmental Law Valeria Torres, Centro de Estudios y Planificación del Medio Ambiente/ Wiwiek Awiati, Indonesian Center for Environmental Law Recursos e Investigación para el Desarrollo Sustenable Lilin Budiati, Local Environmental Impact Management Agency (Badan Rosa María Verdejo, Corporación Participa, Consultant Pengendalian Dampak Lingkungan Daerah) Rosario Vial, Fundación TERRAM Indra Darmawan, National Development Planning Agency (Badan Perencanaan Pembangunan Nasional) Hungary Josi Khatarina, Indonesian Center for Environmental Law Gorys Lewaleba, Lemgaba Kajian Pengembangan Pedesaan dan Judy Amorosa, Environmental Management and Law Association Lingkungan Hidup Sandor Fulop, Environmental Management and Law Association Prayekti Murharjanti, Indonesian Center for Environmental Law Csaba Kiss, Environmental Management and Law Association Widhi Nugraha, Indonesian Center for Environmental Law Veronika Móra, Hungarian Environmental Partnership Foundation Prasetyo, National Environmental Impact Management Agency (Badan (Ökotárs Alapítvány) Pengendalian Dampak Lingkungan) Zsuzsa F. Nagy, Miskolc Institute for Sustainable Development Mas Achmad Santosa, Indonesian Center for Environmental Law Indro Sugianto, Indonesian Center for Environmental Law Laksmi Wijayanti, National Environmental Impact Management Agency (Badan Pengendalian Dampak Lingkungan) WRI: CLOSING THE GAP v Mexico Uganda Juan Carlos Carrillo, Centro Mexicano de Derecho Ambiental, A.C. Arthur Bainomugisha, Advocates Coalition for Development and María Elena Mesta, Centro Mexicano de Derecho Ambiental, A.C. Environment Daniela Calvillo, Presencia Ciudadana Mexicana A.C. Irene Makumbi, Uganda Wildlife Society Martha Delgado, Presencia Ciudadana Mexicana A.C. Jacob Manyindo, Uganda Wildlife Society Olimpia Castillo, Comunicación y Educación Ambiental, S.C. Rose Mwebaza, Advocates Coalition for Development and Environment Eduardo Limón, Comunicación y Educación Ambiental, S.C. Andrew Mwenda, The Monitor Tomás Severino, Cultura Ecológica, A.C. Godber Tumushabe, Advocates Coalition for Development and Environment South Africa United States Sue Bellinger, Sue Bellinger and Associates and Environmental Law and Management Clinic, Technikon Pretoria Carl Bruch, Environmental Law Institute Catherine Haffter,
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