生(sheng)態環境部(bu)近日印發了《》（生(sheng)態環(huan)境(jing)部令第(di)4號(hao)，以下簡(jian)稱(cheng)《公參辦(ban)法》），于2019年1月1日(ri)起實施。為(wei)使社會各(ge)界更加深入了(le)解《公參辦(ban)法》修訂背景、原則和內(nei)容等，生(sheng)態環(huan)境(jing)部環(huan)境(jing)影響評價司有關(guan)負責人回答了(le)記者提問(wen)。

問：2006年《環(huan)境影響評價公眾參與(yu)暫行(xing)辦法》頒布實施，迄今(jin)已施行(xing)12年了，請(qing)問這次修訂(ding)是基(ji)于什么考慮？

答：2006年2月，原國家環(huan)(huan)(huan)境(jing)(jing)保護(hu)總(zong)局印發《環(huan)(huan)(huan)境(jing)(jing)影響評(ping)價(jia)公(gong)(gong)眾(zhong)(zhong)(zhong)參與(yu)暫(zan)行(xing)辦(ban)(ban)法》（環(huan)(huan)(huan)發〔2006〕28號(hao)，以下簡(jian)稱《暫(zan)行(xing)辦(ban)(ban)法》），首次對環(huan)(huan)(huan)境(jing)(jing)影響評(ping)價(jia)公(gong)(gong)眾(zhong)(zhong)(zhong)參與(yu)進行(xing)了(le)全(quan)面(mian)系統規定。辦(ban)(ban)法自施行(xing)以來，環(huan)(huan)(huan)境(jing)(jing)影響評(ping)價(jia)公(gong)(gong)眾(zhong)(zhong)(zhong)參與(yu)全(quan)面(mian)開展，極(ji)大調(diao)動(dong)了(le)公(gong)(gong)眾(zhong)(zhong)(zhong)保護(hu)環(huan)(huan)(huan)境(jing)(jing)的積極(ji)性(xing)和主動(dong)性(xing)，暢(chang)通了(le)公(gong)(gong)眾(zhong)(zhong)(zhong)環(huan)(huan)(huan)境(jing)(jing)保護(hu)訴(su)求表達(da)渠道，維護(hu)了(le)公(gong)(gong)眾(zhong)(zhong)(zhong)環(huan)(huan)(huan)境(jing)(jing)權益，得到(dao)社會廣泛認可。

隨著經濟社會發(fa)展，環(huan)(huan)(huan)境(jing)影響評(ping)(ping)價公(gong)(gong)(gong)眾(zhong)(zhong)參與(yu)面臨新的(de)(de)(de)(de)(de)(de)形(xing)勢和要(yao)求。黨的(de)(de)(de)(de)(de)(de)十(shi)(shi)九大報告提出(chu)(chu)，要(yao)保障廣大人(ren)(ren)民群眾(zhong)(zhong)知情權(quan)(quan)(quan)、參與(yu)權(quan)(quan)(quan)、表達權(quan)(quan)(quan)和監(jian)督權(quan)(quan)(quan)，構建(jian)政府為主導、企業為主體(ti)、社會組織和公(gong)(gong)(gong)眾(zhong)(zhong)共同參與(yu)的(de)(de)(de)(de)(de)(de)環(huan)(huan)(huan)境(jing)治理體(ti)系(xi)。環(huan)(huan)(huan)境(jing)影響評(ping)(ping)價公(gong)(gong)(gong)眾(zhong)(zhong)參與(yu)作(zuo)為保障人(ren)(ren)民群眾(zhong)(zhong)環(huan)(huan)(huan)境(jing)保護權(quan)(quan)(quan)益的(de)(de)(de)(de)(de)(de)有力(li)手段、構建(jian)共同參與(yu)的(de)(de)(de)(de)(de)(de)環(huan)(huan)(huan)境(jing)治理體(ti)系(xi)的(de)(de)(de)(de)(de)(de)有效途(tu)徑，作(zuo)用將愈(yu)發(fa)重要(yao)。同時，也需要(yao)進(jin)一步優化適應。一是環(huan)(huan)(huan)評(ping)(ping)相(xiang)關法(fa)律法(fa)規(gui)進(jin)一步健(jian)全，對(dui)(dui)環(huan)(huan)(huan)評(ping)(ping)公(gong)(gong)(gong)參對(dui)(dui)象范圍、形(xing)式、公(gong)(gong)(gong)開內容、監(jian)管等(deng)(deng)提出(chu)(chu)了更明(ming)(ming)確的(de)(de)(de)(de)(de)(de)要(yao)求；二(er)是公(gong)(gong)(gong)眾(zhong)(zhong)的(de)(de)(de)(de)(de)(de)環(huan)(huan)(huan)境(jing)意識不斷增強(qiang)，通過參與(yu)環(huan)(huan)(huan)評(ping)(ping)維(wei)護自身環(huan)(huan)(huan)境(jing)權(quan)(quan)(quan)益的(de)(de)(de)(de)(de)(de)主動性不斷增加，環(huan)(huan)(huan)評(ping)(ping)公(gong)(gong)(gong)參被泛化的(de)(de)(de)(de)(de)(de)問題亟(ji)待解決(jue)(jue)，如征地(di)拆(chai)遷、就(jiu)業、財(cai)產(chan)等(deng)(deng)非環(huan)(huan)(huan)保利益和訴求通過環(huan)(huan)(huan)評(ping)(ping)集中表達；三是項目環(huan)(huan)(huan)評(ping)(ping)公(gong)(gong)(gong)參實(shi)踐(jian)中存在的(de)(de)(de)(de)(de)(de)責(ze)任主體(ti)不明(ming)(ming)、定位不清、紙質問卷調查(cha)流于形(xing)式、公(gong)(gong)(gong)眾(zhong)(zhong)意見反饋(kui)機制不健(jian)全、公(gong)(gong)(gong)參過程(cheng)弄虛(xu)作(zuo)假、違(wei)法(fa)成本低(di)等(deng)(deng)問題突出(chu)(chu)。因此，生(sheng)態環(huan)(huan)(huan)境(jing)部決(jue)(jue)定對(dui)(dui)《暫行辦法(fa)》進(jin)行修訂(ding)，將其(qi)納入了“十(shi)(shi)三五”環(huan)(huan)(huan)境(jing)影響評(ping)(ping)價制度改革方案，列為部重點工作(zuo)，修訂(ding)出(chu)(chu)臺《公(gong)(gong)(gong)參辦法(fa)》。

問：社會上十(shi)分關(guan)心辦(ban)法的修(xiu)訂，能否簡(jian)單介紹下(xia)修(xiu)訂過程？

答：生態環(huan)境部高度重視辦法(fa)的(de)修訂，自(zi)2015年就啟動(dong)了(le)相(xiang)關的(de)前(qian)期調(diao)研、座談、收集國內外環(huan)評(ping)公參資料等工作，多次組織地方生態環(huan)境主管部門(men)、建(jian)設單位、環(huan)評(ping)機構、環(huan)保NGO、環(huan)評(ping)及法(fa)律專家等進行專題討論(lun)，堅持(chi)“依(yi)法(fa)依(yi)規(gui)、問題導(dao)向、突出重點(dian)、保障充(chong)分”的(de)原則，于2016年3月，形成(cheng)了(le)征求意見稿。

2016年4月，生(sheng)(sheng)態環境部(bu)就(jiu)征(zheng)求(qiu)意(yi)(yi)見稿書面征(zheng)求(qiu)了(le)(le)包括省級及(ji)(ji)地市級生(sheng)(sheng)態環境主管部(bu)門、部(bu)內相關司局及(ji)(ji)部(bu)直屬單(dan)(dan)位(wei)、建設單(dan)(dan)位(wei)、環評機構、行業(ye)技術支持部(bu)門等共118家單(dan)(dan)位(wei)意(yi)(yi)見，并同(tong)步在(zai)中國環境影響評價網(wang)開展了(le)(le)為期30日的社會公開征(zheng)求(qiu)意(yi)(yi)見活動。公眾廣泛關注，反饋(kui)了(le)(le)數(shu)百(bai)條很好的意(yi)(yi)見。我們對意(yi)(yi)見進行了(le)(le)認真研(yan)究和統籌考慮，并對《公參辦法(fa)》做(zuo)了(le)(le)進一步的修改完善。

2017年(nian)以來，我(wo)們再次組(zu)織(zhi)對立法中的(de)關(guan)鍵問(wen)題進(jin)行了(le)(le)專(zhuan)家論證，對部分重點地(di)區進(jin)行了(le)(le)實地(di)調研，進(jin)一步完善了(le)(le)相關(guan)內容，聽取了(le)(le)相關(guan)方面的(de)意見。2018年(nian)4月，送(song)審(shen)稿通過生態(tai)環(huan)境部部務(wu)會審(shen)議，并印發施行。

問(wen)：能(neng)介紹下修訂的主要內容嗎？

答：2006年的(de)《暫(zan)行(xing)辦(ban)法》內(nei)(nei)容(rong)包括5章40條(tiao)，新的(de)《公(gong)(gong)(gong)參(can)(can)辦(ban)法》共34條(tiao)，不再(zai)分章節(jie)。《公(gong)(gong)(gong)參(can)(can)辦(ban)法》主(zhu)要(yao)(yao)針(zhen)對建(jian)(jian)設項目環(huan)(huan)評(ping)公(gong)(gong)(gong)參(can)(can)相(xiang)關規定進(jin)行(xing)了全面修訂：更(geng)加(jia)明(ming)(ming)確(que)的(de)規定了建(jian)(jian)設單位(wei)主(zhu)體責任，由其對公(gong)(gong)(gong)參(can)(can)組織實(shi)施的(de)真實(shi)性和結果負責；依照《環(huan)(huan)境保護法》的(de)規定，將(jiang)聽取(qu)意(yi)見(jian)(jian)的(de)公(gong)(gong)(gong)眾(zhong)(zhong)范圍(wei)明(ming)(ming)確(que)為環(huan)(huan)境影(ying)響(xiang)(xiang)評(ping)價(jia)范圍(wei)內(nei)(nei)公(gong)(gong)(gong)民、法人(ren)和其他組織，優(you)(you)先保障(zhang)(zhang)受(shou)(shou)影(ying)響(xiang)(xiang)公(gong)(gong)(gong)眾(zhong)(zhong)參(can)(can)與的(de)權力，并(bing)鼓勵(li)建(jian)(jian)設單位(wei)聽取(qu)范圍(wei)外(wai)公(gong)(gong)(gong)眾(zhong)(zhong)的(de)意(yi)見(jian)(jian)，保障(zhang)(zhang)更(geng)廣(guang)泛公(gong)(gong)(gong)眾(zhong)(zhong)的(de)參(can)(can)與權力；進(jin)一(yi)步將(jiang)信息(xi)公(gong)(gong)(gong)開的(de)方式(shi)細(xi)化(hua)為網(wang)絡、報紙、張貼公(gong)(gong)(gong)告等三種方式(shi)；明(ming)(ming)確(que)了公(gong)(gong)(gong)眾(zhong)(zhong)意(yi)見(jian)(jian)的(de)作(zuo)(zuo)用，優(you)(you)化(hua)了公(gong)(gong)(gong)眾(zhong)(zhong)意(yi)見(jian)(jian)調(diao)查方式(shi)，建(jian)(jian)立健全了公(gong)(gong)(gong)眾(zhong)(zhong)意(yi)見(jian)(jian)采納或不采納反饋(kui)方式(shi)，針(zhen)對弄虛作(zuo)(zuo)假提出(chu)了懲戒措施，確(que)保公(gong)(gong)(gong)眾(zhong)(zhong)參(can)(can)與的(de)有效性和真實(shi)性；全面優(you)(you)化(hua)了參(can)(can)與程序細(xi)節(jie)，實(shi)施分類公(gong)(gong)(gong)參(can)(can)，不斷提高效率；對生態環(huan)(huan)境主(zhu)管(guan)部門環(huan)(huan)評(ping)行(xing)政(zheng)許(xu)可的(de)公(gong)(gong)(gong)眾(zhong)(zhong)參(can)(can)與進(jin)行(xing)了明(ming)(ming)確(que)等。通過(guo)修訂，進(jin)一(yi)步優(you)(you)化(hua)建(jian)(jian)設項目環(huan)(huan)評(ping)公(gong)(gong)(gong)參(can)(can)，解決公(gong)(gong)(gong)眾(zhong)(zhong)參(can)(can)與主(zhu)體不清、范圍(wei)和定位(wei)不明(ming)(ming)、流于形式(shi)、弄虛作(zuo)(zuo)假、違法成本低、有效性受(shou)(shou)到(dao)質疑等突出(chu)問題，增強其可操作(zuo)(zuo)性和有效性。《公(gong)(gong)(gong)參(can)(can)辦(ban)法》對規劃環(huan)(huan)評(ping)的(de)公(gong)(gong)(gong)眾(zhong)(zhong)參(can)(can)與相(xiang)關規定未作(zuo)(zuo)原(yuan)則(ze)性調(diao)整，主(zhu)要(yao)(yao)是按照《環(huan)(huan)境影(ying)響(xiang)(xiang)評(ping)價(jia)法》和《規劃環(huan)(huan)境影(ying)響(xiang)(xiang)評(ping)價(jia)條(tiao)例》執行(xing)。

問：修訂后，如(ru)何強(qiang)化對公眾(zhong)參與的(de)保障和監督？

答(da)：為(wei)(wei)保障(zhang)公(gong)(gong)(gong)眾(zhong)(zhong)(zhong)參(can)(can)與的(de)(de)(de)(de)充(chong)分性和(he)有(you)效性，新的(de)(de)(de)(de)《公(gong)(gong)(gong)參(can)(can)辦法(fa)》做了如下規定(ding)：一是(shi)要(yao)求(qiu)(qiu)建設單位單獨編制公(gong)(gong)(gong)眾(zhong)(zhong)(zhong)參(can)(can)與說明，并納(na)入環評(ping)審(shen)批的(de)(de)(de)(de)受理要(yao)件，同步(bu)受理同步(bu)公(gong)(gong)(gong)開(kai)，接受公(gong)(gong)(gong)眾(zhong)(zhong)(zhong)監督和(he)舉報，要(yao)求(qiu)(qiu)生(sheng)(sheng)態(tai)環境主管(guan)(guan)部(bu)門(men)認(ren)真對待公(gong)(gong)(gong)眾(zhong)(zhong)(zhong)意(yi)見(jian)；二是(shi)明確生(sheng)(sheng)態(tai)環境主管(guan)(guan)部(bu)門(men)的(de)(de)(de)(de)審(shen)查義(yi)務，要(yao)求(qiu)(qiu)生(sheng)(sheng)態(tai)環境主管(guan)(guan)部(bu)門(men)對公(gong)(gong)(gong)眾(zhong)(zhong)(zhong)參(can)(can)與說明的(de)(de)(de)(de)格式是(shi)否(fou)符(fu)合(he)要(yao)求(qiu)(qiu)、公(gong)(gong)(gong)眾(zhong)(zhong)(zhong)參(can)(can)與程序是(shi)否(fou)符(fu)合(he)《公(gong)(gong)(gong)參(can)(can)辦法(fa)》規定(ding)進行審(shen)查；三是(shi)嚴懲違法(fa)和(he)失(shi)(shi)信(xin)行為(wei)(wei)，對未充(chong)分征求(qiu)(qiu)公(gong)(gong)(gong)眾(zhong)(zhong)(zhong)意(yi)見(jian)的(de)(de)(de)(de)情形，由生(sheng)(sheng)態(tai)環境主管(guan)(guan)部(bu)門(men)責成建設單位重(zhong)新征求(qiu)(qiu)公(gong)(gong)(gong)眾(zhong)(zhong)(zhong)意(yi)見(jian)，退回環境影(ying)響報告書；對建設單位違反規定(ding)，公(gong)(gong)(gong)參(can)(can)過程中弄(nong)虛(xu)作假，致使公(gong)(gong)(gong)眾(zhong)(zhong)(zhong)參(can)(can)與說明內容嚴重(zhong)失(shi)(shi)實的(de)(de)(de)(de)，由生(sheng)(sheng)態(tai)環境主管(guan)(guan)部(bu)門(men)將該建設單位及其法(fa)定(ding)代表人(ren)(ren)或主要(yao)負(fu)責人(ren)(ren)失(shi)(shi)信(xin)信(xin)息記(ji)入其環境信(xin)用記(ji)錄(lu)。上述措施也是(shi)對公(gong)(gong)(gong)眾(zhong)(zhong)(zhong)參(can)(can)與是(shi)否(fou)充(chong)分的(de)(de)(de)(de)保障(zhang)和(he)救濟(ji)措施，遏制環評(ping)公(gong)(gong)(gong)參(can)(can)弄(nong)虛(xu)作假等行為(wei)(wei)，保障(zhang)公(gong)(gong)(gong)眾(zhong)(zhong)(zhong)環境權(quan)益。

問：這次修訂在提(ti)高(gao)效率、優(you)化營(ying)商環境方面有哪些考慮？

答：為進一步(bu)提(ti)高公(gong)(gong)眾(zhong)參與的(de)(de)(de)效率(lv)、優(you)化營(ying)(ying)商環(huan)(huan)境，此(ci)次修訂中做了(le)以下考慮：一是(shi)取消了(le)第(di)一次信息公(gong)(gong)開的(de)(de)(de)10個工(gong)作日的(de)(de)(de)限制，優(you)化部分參與程(cheng)序；二(er)是(shi)實施分類公(gong)(gong)參，對(dui)(dui)于(yu)公(gong)(gong)眾(zhong)意見不多(duo)的(de)(de)(de)項(xiang)目，減(jian)少(shao)了(le)程(cheng)序；三是(shi)針對(dui)(dui)位于(yu)產業園區(qu)的(de)(de)(de)項(xiang)目，符合一定(ding)的(de)(de)(de)條(tiao)件的(de)(de)(de)，在(zai)(zai)開展公(gong)(gong)眾(zhong)參與過程(cheng)中，適(shi)當(dang)簡(jian)化公(gong)(gong)參的(de)(de)(de)程(cheng)序和形式。通過上述規定(ding)，我們在(zai)(zai)充分保障公(gong)(gong)眾(zhong)參與的(de)(de)(de)前提(ti)下，盡(jin)最大努(nu)力提(ti)高公(gong)(gong)眾(zhong)參與的(de)(de)(de)效率(lv)，不斷優(you)化營(ying)(ying)商環(huan)(huan)境。

問：在(zai)下一步(bu)執行中，應注意哪些方面呢(ni)？

答(da)：新的(de)(de)《公(gong)參(can)(can)辦(ban)(ban)法》設(she)(she)定(ding)(ding)(ding)了一(yi)定(ding)(ding)(ding)的(de)(de)過渡期(qi)限(xian)，自2019年(nian)1月(yue)1日(ri)起施(shi)行(xing)(xing)(xing)。這就(jiu)意(yi)味著自2019年(nian)1月(yue)1日(ri)起，建設(she)(she)單(dan)位向生態(tai)環境主(zhu)管(guan)部(bu)門報(bao)批建設(she)(she)項(xiang)目環評文件時，其(qi)申報(bao)的(de)(de)公(gong)眾參(can)(can)與(yu)的(de)(de)相(xiang)關(guan)材料就(jiu)需要(yao)(yao)符合(he)新的(de)(de)公(gong)參(can)(can)辦(ban)(ban)法的(de)(de)規定(ding)(ding)(ding)。由于(yu)項(xiang)目環評公(gong)參(can)(can)具有一(yi)定(ding)(ding)(ding)的(de)(de)工作周期(qi)，所以，相(xiang)關(guan)建設(she)(she)單(dan)位就(jiu)需要(yao)(yao)提(ti)前按(an)照新的(de)(de)公(gong)參(can)(can)辦(ban)(ban)法來(lai)開(kai)(kai)(kai)展相(xiang)關(guan)工作，確保在報(bao)批時符合(he)新辦(ban)(ban)法的(de)(de)規定(ding)(ding)(ding)。關(guan)于(yu)環評公(gong)參(can)(can)正在實施(shi)的(de)(de)，即在辦(ban)(ban)法印發之(zhi)前就(jiu)已經(jing)確定(ding)(ding)(ding)環評單(dan)位又是在2019年(nian)1月(yue)1日(ri)之(zhi)后擬報(bao)批的(de)(de)，已經(jing)按(an)照暫行(xing)(xing)(xing)辦(ban)(ban)法的(de)(de)規定(ding)(ding)(ding)，在7日(ri)內(nei)進(jin)行(xing)(xing)(xing)了第(di)一(yi)次信息公(gong)開(kai)(kai)(kai)的(de)(de)，予以認可，不必重復開(kai)(kai)(kai)展第(di)一(yi)次信息公(gong)開(kai)(kai)(kai)，其(qi)余公(gong)眾參(can)(can)與(yu)程序(xu)按(an)照新辦(ban)(ban)法要(yao)(yao)求執行(xing)(xing)(xing)。

各(ge)級生態環境主管部門，應(ying)通過各(ge)種形式，做好辦法的宣(xuan)傳(chuan)、解釋等工作，確(que)保自(zi)2019年1月1日起(qi)，新辦法得到貫徹執行。