IMPLEMENTATION AND ENFORCEMENT OF PUBLIC PARTICIPATION IN THE © ENVIRONMENTAL IMPACT ASSESSMENT PROCESS IN MALAYSIA Farah Binti Mohd Shahwahid An Academic Project submitted in partial fulfillment for the degree of Masters of Laws 2008 1111lliil1li1ii�11l1iiffli!ll1il�il�111 A513421907 11111 Abstract The Environmental Impact Assessment (EIA) has been established as a mandatory requirement in Malaysia with the introduction of Section 34A to the Environmental Quality Act 1974(EQA) and its subsidiary legislation Environment Quality (Prescribed Activities) (Environmental Impact Assessment) Order 1987. This study critically examines the implementation and enforcement of public participation in the Malaysian EIA process. This is done by reviewing the provisions in the EIA laws and guidelines, court decisions on public participation as well as information gathered from the stakeholders interview. The major finding of this study is that while public participation is implemented in the EIA process, the existing level of implementation and enforcement is inadequate. Amendments to the legal provisions and better enforcement of the procedural requirements should be implemented to remedy this predicament. Steps should be taken to improve access to justice by relaxing the requirement for locus standi. Malaysia should adopt the provisions of the Aarhus Convention on public participation in environmental matters and emulate the measures taken by countries with effective public participation in the EIA process. Enforcement of these measures will ensure that that Malaysians may exercise their right to public participation in the EIA process in a meaningful manner. lV Abstrak Di Malaysia, Penilaian Kesan kepada Alam Sekitar (EIA) merupakan satu syarat wajib apabila Seksyen 34A Akta Kualiti Alam Sekeliling 197 4 dan undang-undang subsidiarinya iaitu Perintah Kualiti Alam Sekeliling (Aktiviti yang Ditetapkan) Penilaian Kesan kepada Alam Sekeliling) 1987 digubal. Kajian ini mengkaji secara mendalam pelaksanaan dan penguatkuasaan terhadap penyertaan awam di dalam proses EIA di Malaysia dengan menyemak peruntukkan-peruntukkan undang­ undang EIA dan garis panduan serta keputusan-keputusan mahkamah berkaitan kes-kes melibatkan isu penyertaan. awam. Maklumat yang diperolehi daripada temeubaul bersama pihak-yang terlibat juga memainkan peranan penting. Penemuan utama kajian ini adalah walaupun· penyertaan awam diamalkan dalam proses EIA, pelaksanaan dan· penguatkuasaannya adalah berkurangan. Bagi menyelesaikan masalah ini, pindaan undang-undang serta pelaksanaan yang lebih berkesan perlu dilakukan. Langkah-langkah- untuk mempermudahkan masyrakat untuk mendapat keadilan di mahkamah perlu diambil. Malaysia perlu mengambil contoh daripada kandungan Konvensyen Aarhus dan negara-negara yang berjaya menjalankan penglibatan awam dengan berkesan dalam proses EIA. Langkah­ langkah ini perlu diambil untuk memastikan rakyat Malaysia dapat menjalankan hak mereka untuk menglibatkan diri dalam proses EIA secara berkesan. Table of Content Dedication ii Acknowledgement iii Abstract iv Abstrak V Table of Statutes vi List of Cases vii List of Appendices viii List of Figures ix List of Tables X List of Abbreviations xi Chapter 1: Introduction 1 1.1 General Background 1 1.2 Objective of the study 3 1.3 Scope of the study 4 1.4 Importance of the study· 4 1.5 Structure of the study 6 1.6 Methodology of study 6 1.6.1 Literature review 6 1.6.2 Library 8 1.6.3 Internet 8 1.6.4 Fieldwork 9 Chapter 2: EIA Laws in Malaysia 11 2.1 Introduction 11 2.2 Federal Laws 11 2.2.1 Environmental Quality Act 197 4 11 2.2.2 Environmental Quality (Prescribed Activities) (EIA) 12 Order 1987 2.3 Position in Sarawak 13 2.3.1 The Environmental Quality (Prescribed Activities) (EIA) Order 1987 13 2.3.2 Sarawak State laws 14 Vl 2.3.2.1 The Natural Resources and Environment Ordinance 1993 14 2.3.2.2 The Natural Resources and Environment (Prescribed Activities) Order 1994 14 2.4 Position in Sabah 15 2.4.1 Sabah State laws 2.4.1.1 Environment Protection Enactment 2002 15 2.4.1.2 Environment Protection (Prescribed Activities) (EIA) Order 2005 16 2.5 Conclusion 17 Chapter 3: EIA Process and Procedure 18 3.1 Introduction 18 3.2 Definition and Objective of EIA Process 18 3.3 The EIA Procedure in Malaysia 19 3.4 Stages of the EIA Process 21 3.4.1 Preliminary Assessment 21 3.4.2 Detailed Assessment 23 3.4.3 Report Review 25 3.5 EIA Procedure in Sarawak and Sabah 28 3.5.1 Evaluation Procedure for Department of Environment, Sarawak 28 3.5.2 Evaluation Procedure for Natural Resources and Environment Board, Sarawak 28 3.5.3 Evaluation Procedure for Environment Protection Department, Sabah 29 3.5.3.1 Proposal for Mitigation Measures (PMM) 29 3.5.6.2 Environmental Impact Assessment (EIA) 30 3.6 Conclusion 33 Chapter 4: Public participation in the Malaysian EIA process 35 4.1 Introduction 35 4.2 Public participation 35 4.3 Public Participation in the EIA Process 36 vu 4.4 Public Participation in the Malaysian EIA Process 42 4.4.1 Public Participation at the Preliminary Assessment Stage 43 4.4.2 Public Participation at the Detailed Assessment Stage 44 4.4.2.1 Public Participation in Sarawak EIA Process 46 4.4.3 Right to appeal under EQA 1974 47 4.5 Access to environmental justice 47 4.6 Public Participation Issues in Malaysia 51 4.6.1 Ambiguous Provisions on Public Participation 52 4.6.2 Quality of EIA Repdrts and EIA Study Conducted 52 4.6.3 Appointment of Consultants 54 4.6.4 Weaknesses in the Procedural Requirements 55 4.6.5 Enforcement 58 4.6.6 Limited Role of the Review Panel 59 4.7 Role played by Stakeholders 60 4.7.1 Project proponent 60 4.7.2 Local community 60 4.7.3 Non-Governmental Organisations 61 4.7.4 EIA Consultant 64 4.7.5 Department of Environment 65 4.8 Case study of Public Participation in EIA - the Malaysian Experience 66 4.8.1 Coastal Protection and Beach Rehabilitation Work in Teluk Tekek Beach, Pulau Tioman 66 4.8.2 Broga 68 4.9 Conclusion 70 Chapter 5: The Aarhus Convention and International Case Studies 72 5.1 Introduction 72 5.2 Aarhus Convention 72 5.2.1 Pillars of the Convention 73 5.2.2 Objectives of the Convention 75 5.2.3 Content of the Convention 76 5.3 Aarhus Convention and EIA 81 5.4 Case Study of Public Participation in EIA Process 82 Vlll 5.4.1 Netherlands 82 5.4.2 Denmark 84 5.5 Conclusion 85 Chapter 6: Conclusion and Recommendations 87 Bibliography 92 Appendices lX Table of Statutes Environmental Protection (Amendment) Enactment 2004 (Enactment No. 14 of 2004) Environmental Protection Enactment 2002 (Enactment No. 12 of 2002) Environmental Quality (Amendment) Act 1986 (Act A636) Environmental Quality (Amendment) Act 1996 (Act A953) Environmental Quality Act 197 4 (Act 127) Federal Constitution Malaysia Natural Resources (Amendment) Bill 1993 (Sarawak Government Gazette dated 28 October 1993 Vol XLVI No. 9) Natural Resources and Environment Ordinance 1958 (Cap 84) Natural Resources and Environment Ordinance 1993 (Cap 84) Subsidiary Legislation Environmental Protection (Prescribed A9tivities) Rules 2005 . Environmental Protection (Registration of Environmental Consultants) Rules 2005 Environmental Quality (Prescribed Activities) O!der 1987 P.U.(A) 362/87 Natural Resources and Environment (Prescribed Activities) (Amendment) Order 1997 (Amendment Swk. L.N. 30/97) Natural Resources and Environment (Prescribed Activities) Order 1994 (Swk. L.N. 45/94) International Treaties Aarhus Convention on Access to Information, Public Participation in Decision-making and Access to Justice in Environmental Matters 1998 Rio Declaration on Environment and Development 1992 X List of Cases Abdul Razak Ahmad v Ketua Pengarah Kementerian Sains, Teknologi dan Alam Sekitar, [1994] 2 CLJ 363 Berkley v Secretary of State for Environment [2000] 3 WLR 420 Kajing Tubek & Ors v Ekran Bhd & Ors [1996] 2 MLJ 388 Ketua Pengarah Jabatan Alam Sekitar & Anor v Kajing Tubek & Ors [1997] 3 MLJ 23 XI List of Appendices Appendix 1 : Section 34A of Environmental Quality Act 1974 Appendix 2 : Environmental Quality (Prescribed Activities) (Environmental Impact Assessment) Order 1987 Appendix 3: First Schedule of Natural Resources and Environment (Prescribed Activities) Order 1994 Appendix 4: First Schedule of Environment Protection (Prescribed Activities) (Environmental Impact Assessment) Order 2005 Appendix 5: Second Schedule of Environment Protection (Prescribed Activities) (Environmental Impact Assessment) Order 2005 Appendix 6: List of Prescribed Activities Which Require Detailed EIA Appendix 7: Sample of Notification of Detailed EIA on DOE Website Appendix 8: Sample of Newspaper Adverti�ement Notifying Detailed EIA Appendix 9 : Sample of Executive Summary on DOE Website Appendix 10: Sample of Survey Questionnaire Distributed to Local Communities During DEIA Xll List of Figures Figure 1 Integrated Project Planning Concept Figure 2: Sequence of Activities Required For Planning Approval and Responsible Parties Figure 3: Flow chart for an EIA Process Figure 4: Flow Chart for Preliminary EIA Figure 5: Flow Chart for Detailed EIA Figure 6: Flow Chart for Procedure for Submission of Terms of Reference Xlll List of Tables Table 1: Summary of Activities Subject to EIA Table 2: Role and Interest of EIA Stakeholders. Table 3: Preliminary Assessment Matrix Table 4: Content of Terms of Reference for DEIA XlV List of Abbreviations DEIA Detailed Environmental Impact Assessment DOE Department of Environment EIA Environmental Impact Assessment EM&A Environmental Monitoring and Auditing EMP Environmental Management Planning EPD Environmen�al