Mekong River DamsNational Laws to Address Environmental and

Human Rights Issues, and Obstacles to Enforcement

by EarthRights International’s Mekong Legal Advocacy Institute (MLAI)

December 2009

Mekong Legal Advocacy Institute (MLAI)InMay,2009,EarthRightsInternationalfoundedtheMekongLegalAdvocacyInstitute(MLAI)inordertosupportpublicinterestlawyers,providetrainingandnetworkingopportunitiesinhumanrightsandenvironmentallaw,andpromotepublicinterestlitigationintheMekongregion.

EarthRights International (ERI)EarthRightsInternational(ERI)isanongovernmental,nonprofitorganizationthatcombinesthepowerofthelawandthepowerofpeopleindefenseofhumanrightsandtheenvironment,whichwedefineas“earthrights.”Wespecializeinfact-finding,legalactionsagainstperpetratorsofearthrightsabuses,traininggrassrootsandcommunityleaders,andadvocacycampaigns.Throughthesestrategies,ERIseekstoendearthrightsabuses,toproviderealsolutionsforrealpeople,andtopromoteandprotecthumanrightsandtheenvironmentinthecommunitieswherewework.

FormoreinformationonERI,visitwww.earthrights.org.

Copyright©2009EarthRightsInternationalThisworkislicensedunderaCreative Commons Attribution-Noncommercial-Share Alike 3.0 Unported License. PermissionsbeyondthescopeofthislicensemaybeobtainedbyemailingMLAI@earthrights.org

Contents

Introduction ................................................................................. 11. Burma ..................................................................................... 32. Cambodia ............................................................................... 53. China .................................................................................... 134. Lao PDR ................................................................................ 185. Thailand ................................................................................ 246. Vietnam ................................................................................ 30Regional Message from MLAI and Samreth on Mekong Mainstream Dams ...................................................................... 36A Note on Sources ..................................................................... 38

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Introduction

IntheMekongRegion,oneofthemostsignificantdevelopmentsaffectingtheenvironmentandlocalpeople’slivelihoodsareplanstobuildlargehydropowerdamsonthemainstreamoftheMekongRiver.TheseproposalsoriginatedduringtheColdWar,buttheUS-Vietnamwarinthe1970s,andtheglobalriseofenvironmentalawarenessamongthemajorAsianfundingsources(WorldBankandADB)duringthe1980sand1990s,preventedanyofthesedamsfromgoingforward.

However,inthedawnofthe21stCentury,Chinahastakenalargereconomicrole,bothgloballyandinSoutheastAsia,especiallywithregardtodambuilding.Furthermore,theADBandWorldBankovercameintransigencetowardlargehydropowerwiththeNamTheunIIDaminLaoPDR,andnowtheyalsoarepushingformoreofthesame.Therearecurrentlyatleast11damsproposedfortheLowerMekongRiverinThailand,LaoPDR,andCambodia.WhileVietnamhasnotproposedanymainstreamdams,theyhavebuiltseveraldamsupstreamofCambodiaonMekongtributariessuchastheSesanRiver,withsevereimpactstolocalCambodiancommunities.

InthemiddleofthissituationistheMekongRiverCommission(MRC).TheMRCisfundedbyWesterncountries,butdecision-makingpowerisheldbynationalgovernmentsofLao,Cambodia,ThailandandVietnam.Thishascreatedsignificantfriction,withdonorsseekingWestern-styleeconomic,environmentalandsocialanalysis,butMekonggovernmentspushingforrapidlarge-scaledevelopment.ThegovernmentsclaimthatMekongdamswillalleviatepoverty,butpastdambuildingintheMekongRegion(andglobally)hasbeenriddledwithcorruptionandmassiveenvironmentaldevastation.

InordertogetinfrontofthisnewpushfordamconstructionontheMekongRiver,theMRChasinitiatedaStrategicEnvironmentalAssessment(SEA)forthe11damproposals.ThefirstpublicstepintheSEAwasacallforlocalgroupsandpeopletosubmitcommentsonwhattheSEAshouldinclude.AlthoughlegalissueswerenotmentionedbytheMRCintheircallforcomments,thelawsofhostcountrieswillbecentraltoeffortsbylocalcommunitiestoconfrontthedamsproposals.

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InresponsetotheMRC’scallforinitialscopingcomments,EarthRights’MekongLegalAdvocacyInstitute(MLAI)organizedlawyersfromeachoftheMekongCountriesandaskedthemtogatherinformationabouttheircountry’slawsrelatedtohydropowerconstructionandoperation.Fivelegalsubjectswereconsideredforeachcountry:Publicparticipation,Accesstoinformation,Environmentalimpactassessment,Environmentalprotection,andLandconfiscationandresettlement.

MLAIthenanalyzedtheselawsinordertoconsideriftheyincludeanappropriatelegalframework,aswellaswhethereachhostcountryhastheabilityandpoliticalwilltoenforcetheirenvironmentallaws.Inmostcases,MLAIfoundthatMekongcountrieshavealongwaytogoinenforcingtheirenvironmentalandhumanrightslaws.

MekongRegioncountriesoftenhavemanywell-developedlawsconcerningpublicadvocacy,environmentalprotectionandresettlement.Unfortunately,theyarepoorlyimplementedandunscrupulousofficialsoftenignorethemwithimpunity.

ThisbookletpresentsthescopingcommentssubmittedonbehalfofeachofthesixMekongcountries,includingtwo(BurmaandChina)thatarenotmembersoftheMRC.DespitethelackofofficialMRCrepresentation,ChinaisdeeplyinvolvedintheMekongRiver,becausetheyarecurrentlybuildingacascadeof8damsontheirpartoftheriver(CalledtheLancang),aswellasshowinginterestinfundingandconstructingmanyoftheLowerMekongdamsaswell.Burma,whilerelativelyunrelatedtotheMekongdams,isplanningtheirowndam-buildingfrenzyontheSalween,Irrawaddy,andChindwinrivers,withthemajorityofthesebeingpaidforandbuiltbyChinaandThailand.

Thus,allMekongcountrieshaveacloseassociationwiththeLowerMekongdamproposals,andthelocalpeopledeservetohavetheirvoicesheardconcerningthelegalissuessurroundingthem.

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1. Burma

TheMekongLegalAdvocacyInstituteissubmittingthesecommentsontheproposedStrategicEnvironmentalAssessmentofLowerMekongMainstreamDams,withregardtoBurma.WenotefirstthattherewillbelittleimpactonBurmafromLowerMekongdams.Inaddition,Burmaisbesetbyamilitarydictatorship,theStatePeaceandDevelopmentCommittee(SPDC),thatruleswithoutrespectforruleoflawandwithoutimpunityforegregioushumanrightsviolations.Therehasbeennovalidconstitutionsince1988,andmanylawsareenforcedonlytobenefittheSPDCanditscronies.

TheUSStateDepartment2008CountryReportonBurma(http://www.state.gov/g/drl/rls/hrrpt/2008/eap/119035.htm)states:

“The judiciary is not independent of the government. The SPDC appoints justices to the Supreme Court, which in turn appoints lower court judges with SPDC approval. These courts adjudicate cases under decrees promulgated by the SPDC that effectively have the force of law. The court system includes courts at the township, district, state, and national levels. While separate military courts for civilians do not exist, the military regime frequently directs verdicts in politically sensitive trials of civilians.

“The government continue[s] to rule by decree and [is] not bound by any constitutional provisions providing for fair public trials or any other rights. Although remnants of the British-era legal system remain formally in place, the court system and its operation [are] seriously flawed, particularly in the handling of political cases. The misuse of blanket laws--including the Emergency Provisions Act, Unlawful Associations Act, Habitual Offenders Act, Electronic Transactions Law, Video Act, and Law on Safeguarding the State from the Danger of Subversive Elements--as well as the manipulation of the courts for political ends continue[s] to deprive citizens of the right to a fair trial and to stifle peaceful dissent. Executive Order 5/96, which provides for

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the arrest of any person deemed a threat to the National Convention and the “roadmap to democracy,” effectively stifle[s] open debate among citizens. Pervasive corruption further serve[s] to undermine the impartiality of the justice system.”

Withthisstateofaffairs,thereislittlereasontobelievethatlocalpeoplewillhavetherighttoinformationorparticipation.Inaddition,anyattemptstoperformEnvironmentalImpactAssessments(EIAs)orprovidecompensationareinvariablytwistedandeventuallystolenbytheSPDC.Thusdambuildingandotherdevelopmentinthecountrycannotbecondoned,asitwillonlybenefittherichandpowerful,andlocalpeoplewillbeabused,torturedandkillediftheymakeanyattemptatvoicingtheirconcerns.Seewww.salweenwatch.organdmembers’reportsthereinformoredetails.

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2. Cambodia

Introduction

TheMekongbasiniscriticaltoCambodia,coveringmorethan84%ofCambodianterritory.1TheRoyalGovernmentofCambodia(RGC)isbuildinghydropowerdamsatKamchay,StungAtayandLowerStungRusseyChrum,KiriromIIIandTatay,with10otherprojectsundergoingfeasibilitystudiesand13MemorandumsofUnderstandingsigned.2Apre-feasibilitystudyhasbeencompletedfortheSamborHydropowerProjectonthemainstreamMekong,35kmnorthofKratieprovince,andapre-feasibilitystudyisbeingpreparedfortheStungTrengDamonthemainstreamMekonginStungTrengprovinceaswell.3

Article59oftheCambodianConstitutionsaystheStateshallestablisha“preciseplanofmanagement[emphasisadded]”fornaturalresourcessuchaswater.AnobjectiveoftheRGCis:“Indevelopinghydropowerresources,theGovernmentwillcarefullyanalyzeallaspectsinvolved,especiallytheeconomicbenefits,andtheenvironmentalandsocialbenefits.”4AlthoughtheRGChasstartedtodevelopalegalframework,includingwaterresourcemanagement,“thelackofaclearpolicyandlegislationondammanagement,exacerbatedbyweakcomplianceandenforcementofexistingrelevantlegislation,remaincriticalconstraintstothesustainableuseandconservationofnaturalresourcesandbiodiversityinCambodia.”5Also,theinstitutionalstructuresandfunctionsofrelevantlineministriesinCambodiadealing

1 “ScopingStudyofExistingFrameworksRelatedtotheWorldCommissiononDamsStrategicFramework–Cambodia”bySamChamreoun,IUCN,p.4.2 “HydropowerDevelopmentinCambodia”presentationbyMr.TungSereyvuth,DeputyDirectorofEnergyDepartment,MinistryofIndustry,MinesandEnergyattheMRC,RegionalStakeholderMeetinginLaos,25-26September2008.3 “StrategicEnvironmentalAssessmentofHydropoweronmainstreamMekongRiver”,presentedbytheMRCcommission,July2009.4 RectangularStrategyforGrowth,Employment,EquityandEfficiency2003-2008.5 “ScopingStudyofExistingFrameworksRelatedtotheWorldCommissiononDamsStrategicFramework–Cambodia”bySamChamreoun,IUCN,p.2.

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withwaterresourcemanagementarehighlycompartmentalized,lackingmechanismsforcoordination,feedbackandregulatoryresponsibility.

Inthiscontext,SamrethLawGroupandtheMekongLegalAdvocacyInstitute(MLAI)believeanyassessmentofdamsontheMekongmainstreamshouldbedelayeduntilthereispreciseplanofmanagementfortheuseofwaterrelatingtohydropowerdams,whichallowsforcarefulassessmentofthecostandbenefitsofsuchprojects.Article9oftheWaterResourcesandManagementLawstatesthatMinistryofWaterResourcesandMeteorology(MOWRAM)shallberesponsibleforpreparinganationalwaterresourcesplan.Thisplanshould,asaminimum,addressindetailthefollowingissues:

a. publicparticipation;b. accesstoinformation;c. environmentalandsocialimpactassessment;d. avoidingormitigatingenvironmentalimpacts,ande. resettlement.

AlthoughthetopicsfortheMRCscopingstudydonotincludelegalissues,SamrethlawGroupandMLAIareoftheviewtheyshouldbeincludedinanyadequatescopingstudy.ThispaperaddressesthelegalaspectsforeachofthefiveissueslistedaboveinrelationtohydopowerdamsinCambodia.

Public participation

PublicparticipationisafundamentalrightforCambodians.Article35oftheConstitutionstates;“Khmercitizensofeithersexshallbegiventherighttoparticipateactivelyinthepolitical,economic,socialandculturallifeofthenation”and“[any]suggestionsfromthepeopleshallbegivenfullconsiderationbytheorgansoftheState”.

Bylaw,thereisapositivedutyontheRGCtoencouragepublicparticipation.Article7oftheWaterResourcesandManagementLaw(WRML)states;“TheRoyalGovernmentofCambodiashallencouragethecollaborationwithandparticipationoftherelevantagencies,privatesectors,beneficiarygroups,NGOsandInternationalOrganizationsinallactivitiesrelatedtothemanagement,investment,exploitation,conservationanddevelopmentofwaterresources.”Article16oftheEnvironmentalProtectionandNaturalResourceManagementLaw(EPNRML)states;“TheMinistryofEnvironmentshall,followingproposalsbythepublic,provideinformationonitsactivities,andshallencourageparticipationbythepublicinenvironmentalprotectionandnaturalresourcemanagement”.

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However,thelegalframeworkdoesnotprovideclearproceduresforCambodiancitizenstorealizetheirrighttoparticipateorfortheRGCtofulfillthisduty.Underarticle17oftheEPNRML,thegovernmentismeanttoissueasub-decreeontheproceduresforpublicparticipation;howeverthissub-decreeisyettobeadopted.ThedraftEnvironmentalImpactAssessment(EIA)Guidelinesdocontainsomerequirementsforpublicparticipation,althoughtheytoolackdetail(seeEIAsectionbelow).

ThepublicparticipationofaffectedcommunitiesindamscurrentlybeingbuiltinCambodiahasbeenlimited.Forexample,“[approximately]30,000peoplelivingupstreamwillbenegativelyaffectedbyconstructionandoperationoftheLowerSesan2Dam,andtensofthousandsmoredownstream.However,onlyafewhundredpeoplewereconsulted,andwithoutproperdocumentation”.6Here,publicparticipationfellshortofthestandardsetoutintheCambodianConstitution.

UntilthereareclearproceduresinCambodiaforpublicparticipationinadamproject’sidentification,construction,operationanddecommissioning,forallrelevantstakeholdersincludingilliterateandindigenouspeople,decisionsonwhethertobuilddamprojectsonthemainstreamMekongshouldbepostponed.Additionally,asdamsplannedfortheMekongmainstreamrequirepriorcross-borderconsultationbythestateinaccordancewiththeMekongRiverCommission’sProceduresforNotification,PriorConsultationandAgreement,theRGCshouldpubliclyannouncehowitwillincorporatepublicparticipationintotheprocessofagreement.

Otherwise,itisnotpossibletoshowthereisacceptanceofaprojectonthepartofstakeholdersbeforeaproposedhydropowerprojectisapproved.Greaterpublicparticipationwillalsoleadtomoreinformeddecision-makingprocessesaswellasleadtofewerpost-constructiondisputes.

Access to information

Meaningfulpublicparticipationinthemanagementofwaterresourcesisheavilydependentuponaccesstoinformationofprojectdocuments,includingpre-feasibilitystudies,EIAreportsandprojectdesignandoperationreports.Lackingastrongtraditionofpublicparticipationinenvironmentalassessmentandwithoutdetailedprocedures,thepublichasdifficultyassertingitsrightof

6 LowerSesan2HydroProjectEIAReview,preparedbytheNGOForumonCambodia,August2009,pp5-6.

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accesstoinformation.Article16oftheEPNRMLstates;“TheMinistryofEnvironmentshall,

followingproposalsbythepublic,provideinformationonitsactivities”.ThedraftEIAguidelinesprovidefor“focusgroupdiscussions”to“informthepublicaboutdevelopmentprojects”,howevernofurtherdetailisprovided(seeEIAsectionbelow).

Article8oftheWRMLdoesprovideforapubliclyavailableinventoryofthelocation,quantityandqualityofwaterresourcesinCambodia;“exceptthoseclassifiedasconfidential”.Asthereisnodetailastowhatinformationwillbeclassifiedasconfidential,thisexceptionistoowide.Also,the3SRiversProtectionNetwork(3SPN)sentletterstotheCNMCandVNMCrequestinghydrologicaldataandrainfalldataontheSrepokRiver,butnoresponsewasevergiven.

TherearestillnodetailedproceduresfortheprovisionofadequateinformationaboutwaterresourcesrelatingtodamsinCambodia.

Environmental Impact Assessment (EIA) requirements

Article6oftheLawonEnvironmentalProtectionandNaturalResourcesManagementestablishesageneralEIArequirement“oneveryprojectandactivitywhetherprivateorpublicandshallbeexaminedandevaluatedbytheMinistryofEnvironmentbeforeitissubmittedtotheRoyalGovernmentforadecision”.AlistofthoseprojectsrequiringanInitialEIA(IEIA)and/orEIAwasincludedintheSub-decreeontheEIAProcess,andincludeshydropowerdams.

However,therearestillnoofficialEIAguidelinesinplace.Draftguidelinesandadraftprakas(declaration)ontheimplementationoftheguidelineswerereleasedforpubliccommentinFebruary2008.Asecond“DraftGeneralGuidelinesforEIA”wasreleasedinlate2008.TheserequirethatashortinitialEIAispreparedforaproposedprojectandreviewedbytheMoE.Ifitisrevealedthatthereare“severesocialandenvironmentalconsequences,theprojectownerwillberequiredtoprepareanEIA.”Theterm“severe”isnotdefined.

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TheRiversCoalitioninCambodia(RCC)madethefollowingrecommendationstotheMinistryofEnvironment(MoE)onthecontentoftheFebruary2008draftguidelines:7

a. moredetailisneededintheminimumcontentofanEIA;b. moredetailisneededonhowpublicconsultationtakesplacein

theEIAprocess;c. moreclarityonhowtheMoEwillbaseitsdecisiononwhetheror

nottoapproveaproject;d. strengthentheSocialImpactAssessmentoftheEIA;e. setouthowtheprojectwillbemonitoredduringandafter

construction,andf. setoutadisputeresolutionprocessfordisputesrelatingtotheEIA

process.TheHumanRightsProgramatHarvardLawSchool(HRPHLS)alsowrote

alettertotheEIADepartmentattheMoEoutliningproceduralandsubstantiveconcernsonpublicparticipation,institutionalreviewandapprovalandpost-EIAsafeguards.8

AstheSeptember2008draftEIAguidelineshavenotsubstantiallychangedfromtheFebruary2008draft,thecommentsoftheRCCandHRPHLSarestillvalid.Furthermore,SamChamreoun,Director,DepartmentofEnvironmentalPlanningandLegalAffairs,MinistryofEnvironment,statesthatmanagingandenforcingEIArequirementsinCambodiafacesanumberofobstacles:9

“First, EIA requirements are not well known, and various sector ministries and project owners are therefore not yet applying them. The authority of the Ministry of Environment to enforce the requirements appears to be limited by these circumstances. Another problem is the limited capacity within Cambodia to conduct EIAs.”

Finally,thereiscurrentlynolawinplaceinCambodiadetailingwhenacumulativeimpactassessmentisneededorrequired.GiventhatacascadeofdamsisplannedontheLowerMekongRiver,acumulativeimpactassessmentshouldbedeemednecessaryinordertofullyassesstheproject’sfeasibilityandimpacts.Proceduresonhowtocarryoutthiscumulativestudyshould

7 LetterfromRCCtoMoE,dated6March2008.8 LetterfromtheHumanRightsProgramatHarvardLawSchooltotheEIADepartmentatMoE,dated12March,2008.9 “MekongRegionWaterResourcesDecision-making”,IUCN,2006,p.10.

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alsobeestablishedpriortoanydecision-makingprocessforaprojectplannedwherenumerousprojectsarelocated.

Avoiding or mitigating environmental impacts

CambodiaproducesthefourthmostfreshwaterfishintheworldafterChina,IndiaandBangladesh;some850speciesoffishhavebeenreportedontheTonleSaplakeandlowerreachesoftheMekongRiver.10Itisalsoestimatedthatmorethan70%ofthetotalfishcatchintheMekongbasinisdependentuponfishmigrations,andthemainstreamMekongisthecorridorformostlong-distancemigrations.DamsonthemainstreamMekong,especiallyinthemiddleandlowerpartsoftheMekong,includingCambodia,willthereforehaveagreaterimpactonfisheriesthandamsontributariesandtheupperpartsoftheMekong.11Theimpacttofisherieswouldalsolikelycausesignificantimpactonpeople’sfoodsecurity,healthandnutrition,asmorethan80%ofCambodia’spopulationdependsonfishasamainsourceofanimalmeatprotein12.

TheMRC’sresearchnotesthattheSamborrapidsandassociateddeeppoolsareimportantfishhabitats,particularlyforspawningandrefugepurposes.TheconstructionoftheSamborDamwouldhave“significant”impactsonmigratoryfishstocks.13

Furthermore,aninternationalexpertgrouprecentlyfoundthatbasedonavailableinformationthereisnotatpresentanytechnologicalsolutiontoenableeffectivefishmigrationacrossdams,andanydamonthemainstreamMekonginthemiddleandlowerparts“willhaveamajorimpactonfisheriesandseriouseconomicandsocialimplications”.14

ThereisarequirementinthedraftEIAguidelinesforanEnvironmentalManagementPlanforeachprojectthatmustincludeasummaryofprotectionmeasures,trainingsandamonitoringschedule.Thesignificantenvironmentalimpactstofishstocksandassociatedsocialandeconomicimpactsalone

10 “ScopingStudyofExistingFrameworksRelatedtotheWorldCommissiononDamsStrategicFramework–Cambodia”bySamChamreoun,p.3811 “MainstreamDamsasBarrierstoFishMigration:internationallearningandimplicationsfortheMekong”,PatrickDuganinCatch and CultureVolume14,No.3December2008,p.11.12 KentHortle,2007.13 Middleton,p.32.14 Dugan,p.12.

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underlinewhyamoredetailedandpreciselegalframeworktoregulatedamsisneededbeforeprojectscanbeproperlyassessedandbuilt.

Land confiscation and resettlement issues

Theconstructionoflargehydropowerprojectsraisesseriousissuesregardingresettlementandcompensation.ByitsConstitutionandLandLaw,theRGCisrequiredtoprovidefairandjustcompensationinadvanceforanytakingofland.15TheseprovisionsarebolsteredbyinternationalconventionstowhichCambodiaisaparty.Forexample,theConventiononEconomic,SocialandPoliticalrightsprovidesastrictframeworkforevictionandresettlementproceduresandminimumstandards.

However,theselegalprinciplesarenotbeingadequatelyimplemented.16Localcommunitiesareoftenevictedinaprocessthatlacksdueprocessoradequatecompensationfortheirlossoflandandlivelihood,despitedomesticandinternationallawobligations.ThisincludesthecommunitiesbeingresettledduetothedamscurrentlybeingbuiltinCambodia.Whileestimatesvary,itislikelythattensofthousandsoffamilieswillbeaffectedbymainstreamdamoperations.Theproposedprojectlocationssuggestthatthepoorestsectorsofsociety,thosemostcompletelyreliantonthelandfortheirlivelihoods,willbethemostadverselyaffected.

TheRGCiscurrentlyintheprocessofdraftingaResettlementLawandaCircularonInformalSettlements.ItistheopinionofSamrethLawGroupandMLAIthatitwouldbebeneficialifmoredetailedlegalproceduresaredeveloped,solongastheproceduresareconsistentwithexistingCambodianlawsandhavebeendevelopedinaprocessofmeaningfulpublicparticipation.Moreimportantly,implementationofexistinglawsrelatedtoresettlementandcompensationneedtobeimprovedbeforedamsshouldbebuiltontheMekongmainstream.

Conclusion and recommendations

TherearetwomainissuesthatneedtobeimprovedbeforedamsonthemainstreamMekongcanbeproperlyassessed.First,thereneedstobeapreciseanddetailedplanofmanagementofhydropowerdamsthrough

15 CambodianConstitution,article44;2001LandLaw,article5.16 See“RightsRaised:ForcedEvictionsinCambodia,”AmnestyInternational,February,2008.

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thewholedevelopmentcycleofidentification,construction,operationanddecommissioning.Second,thecomplianceandenforcementofexistinglawsandpoliciesneedstoimprove.Untilbothoftheseimperativesoccur,hydropowerdamsshouldnotbebuiltonthemainstreamMekong.

SamrethLawGroupandMLAIrecommendthefollowinglawsandproceduresbeputinplacebeforedamsarebuiltonthemainstreamoftheMekong:

a. moredetailedproceduresofpublicparticipationandaccesstoinformationaredevelopedthataccommodateindigenousandilliteratecommunities;

b. moredetailedenvironmentalimpactassessmentguidelinesaredevelopedwiththerecommendationsoftheRCCinmind,

c. avoidingormitigatingenvironmentalimpacts,andd. demonstratedcommitmentofgovernmentalimplementationof

itslandlawframework,particularlyrelatingtoproceduralrights,compensationandresettlement.

SamrethLawGroupisapublicinterestlawfirmregisteredwiththeBarAssociationoftheKingdomofCambodia.SamrethLawGroupiswillingtoassistrelevantgovernmentauthoritiesinthepreparationofamoredetailedlegalframeworkwithoutchargingfees.

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3. China

ThesecommentsregardingChina’slawandlegalaspectsoftheassessmentofmainstreamdamsontheMekongaresubmittedonbehalfoftheMekongLegalAdvocacyInstitute(MLAI)inChiangMai,Thailand.Weaddressfivecorelegalissueswithregardtodamconstructionandoperation:(a)PublicAccesstoInformation,(b)PublicParticipation,(c)RequirementsforproducingandenforcingEnvironmentalImpactAssessments,(d)Preventing,avoidingormitigatingenvironmentalimpacts,and(e)Landconfiscation,CompensationandResettlementconcerns.

Eachoftheseissueshasadirectimpactnotonlyontheproceduralstepsrequiredforbuildingandoperatingdams,butalsothelivelihoodsofpeoplelivingallalongtheMekongRiverwhodependonathriving,free-flowingriverfortheirveryexistence.Therefore,itisincumbentupontheMRCtobeawareof,followandenforcetheselegalprovisionsthroughouttheprocessoftheStrategicEnvironmentalAssessment.

Access to Information

TheConstitutionofthePeople’sRepublicofChina(PRC),theLegislationLawof2000,andtheEnvironmentalImpactAssessmentLawof2002provideforpublicaccesstoinformation.Informationaccessiblebythepublicincludesthepolicies,laws,plansandmajorprojectsthathavebeenenacted,andthedecision-makingprocessusedtoenactthem.

TheRegulationofthePRContheDisclosureofGovernmentInformationof2007tookeffectMay1st,2008.

• Itpromotesofficialtransparencyandsafeguardsthepublic’srighttoknow,therighttoparticipateandtherighttosupervise.TheregulationisChina’sfirstinformationdisclosurelegislationandrequiresgovernmentstoreleasedataonsuchpublicissuesaslandacquisitions,residencerelocationsandrelatedcompensation.

• Theregulationalsosetslimitstopublicdisclosure.Article14statesthat“noadministrativeorganmayendangernationalsecurity,publicsecurity,economicsecurityorsocialstabilitywhendisclosinggovernmentinformation.”

TrialMeasuresonOpenEnvironmentalInformationwereadoptedby

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theStateEnvironmentalProtectionAdministrationonFebruary8,2007andeffectiveonMay1,2008.Thesemeasures:

• propelandregulatethedisclosureofenvironmentalinformationbyadministrativedepartmentsinchargeofenvironmentalprotectionandenterprises,and

• maintaintherightsandinterestsofcitizens,legalpersonsandotherorganizationstoobtainenvironmentalinformationandpromotethepublic’sinvolvementinenvironmentalprotection.

AccesstoinformationisalsohinderedbyChina’sstatesecurityregulations.Informationaboutthewaterresourcesofinternationalrivers(includinghydrology,waterquality,sediment,water,internationalriverconditionsandcircumstancesofthenaturalecosystems,etc.)isaState2ndSecret-levelissue.Real-timeinformationaboutinternationalriverswaterlevelsandforecastingresults,areState3rdSecret-levelmatters.

So,whileChinahasmanylawsandregulationstoprovideinformation,therearealsoprovisionsthataremorethanampletopreventthereleaseofanythingthegovernmentwantstokeepsecret.WithregardtodownstreamimpactsoftheirMekongMaintreamdams,thismeansthatvillagesalongtherivercannotcurrentlyobtainreal-timeknowledgeofunseasonalriverflows.ThishasalreadyhaddevastatingeffectsinChiangSaenandChiangKhongDistricts,ThailandandwillcontinuetodosoaslongastheChina’sgovernmentremainssosecretiveabouttheirdamoperations.

Public Participation

ThePRCConstitutionrequirespublicparticipationinsomecases.Forexample,the2002EIALawestablishespublicparticipationinEIAsduringthefeasibilitystudyphase.ItstatesthatdraftEIAsofanyimportantplansorprojects,exceptthoseconcerningnationalsecuritythatwillhaveanadverseimpactontheenvironmentoraffectpublicenvironmentalrightsmustbecommunicatedthroughpublichearings,workshopsorotherchannels.

Mostrecently,theMinistryofEnvironmentalProtectiondraftedtheRegulationofthePeople’sRepublicofChinaonEnvironmentalImpactAssessmentofPlanning.ItwasadoptedbytheStateCouncilonAugust12th,2009andcameintoforceonOctober1st,2009.ItincludesArticle25(3),regardingfollow-upassessmentofenvironmentalimpactsofplanning,whichshallincludepublicopinionsofenvironmentalimpactwhiletheplanningisimplemented.

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TheLandAdministrationLawof2004establishesprovisionsforpublicparticipationinresettlementplans,includingthedisplacedpeople.ForlandconfiscatedbytheState,therequisitionplanshallbepubliclyannouncedbythepeople’sgovernment,withcommentsandsuggestionssolicitedfromlocalorganizationsandpeople.Disagreementsaresubjecttonegotiationandthen,arbitration,withnomentionoflitigation.

China’sresettlementpolicies,however,aresubjecttoseverecorruption,withmuchofthemoneyforcompensationbeingdivertedtootherusesbylocalorCountyauthorities.Further,intimidationandviolencebysecurityofficialsareoftenusedtopreventactiveparticipation,asseenduringthe2008BeijingOlympics,intheexperiencesofbereavedparentsfollowingthe2008Sichuanearthquake,andinothervenues.

OppositiontodamconstructionhasalsobeentargetedbyChineseauthorites,impedingtherighttopublicparticipation.“ProtestorsoftheThreeGorgesDaminChinahavesufferedfromgovernmentoppression.DaiQing,anactiveopponentoftheproject,wasimprisonedfortenmonthsforeditingthebook“Yangtze!Yangtze!,”whichcriticizedthedamproject.ThebookwasalsobannedinChinaandremainingcopieswerecollectedandburned.”17

Environmental Impact Assessment

EIAwasoriginallymentionedintheEnvironmentalLawforthePRCof1989.Morerecently,therequirementsforEIAwerelaidoutundertheEIALawof2002andsubsequentRegulations.Thus,EIAisrequiredfortheexploitation,utilizationanddevelopmentofriverbasins;aswellasspecificplansconcerningenergyproductionandwaterconservation.

WhenpreparingEIAs,publicaccesstoinformationandpublicparticipationareguaranteed.TheEIAlawandregulationsrequirethatDraftEIAsofanyimportantplansorprojectsthatwillhaveanadverseimpactontheenvironmentoraffectpublicenvironmentalrightsmustbecommunicatedthroughpublichearings,workshopsorotherchannels.

17 Krech,McNeillandMerchant,EncyclopediaofWorldEnvironmentalHistoryA-E,pg.283(Routledge).

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Also,theRegulationsonAdministrationofConstructionProjectEnvironmentProtectionrequireanEIAtobeprepared.Further,theTechnologicalGuidelinesforEIA,1993statethataprojectEIAmustincludeassessmentof:

• theenvironmentalcomponents,• ageneralsurveyandassessmentofpeople’shealth,• socio-economicconditions• sitesofscencandhistoricalinterest,valuablemonumentsandrelics.Withregardtoenforcement,theEIAapprovalauthoritycanorder

monitoringandmitigation.Inaddition,theDevelopermustprotecttheenvironmentduringconstruction.

Whiletheseprovisionssoundpowerful,manydomesticEIAsremainstatesecrets,andthereisnolawthatrequiresChina’scompaniestoproduceEIAsforforeignprojects.TherearesomeguidelinesfortheChinaEx-Imbank,butnothingismandatory.Thus,China’sinvolvementinLowerMekongdamscouldleadtosignificantenvironmentalimpactsthatfacelittleornocomprehensive,multidisciplinaryanalysisordisclosureinanEIA.

Avoiding or mitigating environmental impacts

Chinahasseverallawsandregulationsthatprotecttheenvironmentandrelatetodamconstructionandoperation.Mostsignificantly,manyoftheselawsstatethatmigratoryfishmustbeprotectedfromdams,includingtheWaterLawof1988andits2002revision,theLawonWildlifeProtectionof1988,andtheFisheryLawof2007.Inaddition,theRegulationsonNatureReserves,1994createprotectedareasandrelatedbufferzoneswithahigherconservationstatus,andtheLawonWildlifeProtection,1988,establishesprotectedareasforthreatenedandendangeredspecies.

Inotherrivers,however,theselawsandregulationshavefailedtoprotectChina’sendangeredaquaticspecies,liketheYangtzedolphinortheMekonggiantcatfish.AstheMRCwellknows,theMekongRiver’saquaticbiodiversityiswithoutparallel,butremainsextremelyvulnerabletomigrationblockages.Passageformigratoryfish,whetherbyladderorbypass,isimpossibleforthevolumeofmigratoryfishintheMekong,nomatterwhatthelawsofanynationsay,includingChina.

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Resettlement and compensation

Chinahasextensiveexperienceandmanylawsthatcoverresettlement.Forexample,theConstitutionrequirescompensationwhentheStateconfiscatesprivateproperty.Also,theLandAdministrationLawregulatesresettlementandcompensation.

Otherlawsthataddressresettlementandcompensationinclude:• RegulationsforLandAcquisitionandResettlement1991• RegulationsonResettlementoftheThreeGorges,2001• CivilLitigationLawandGeneralrules.

RecentlytheChinesehavetriedtwodifferentcompensationschemes:Landforland,andlong-termfinancialpayments.ArecentstudybyEarthRightsresearchersfoundthat,whilethefinancialpaymentsledtomoreincome,theoveralllevelofstressthesameforbothschemesbecausealloftherelocatedpeoplewereveryconcernedabouttheirnewlivelihoods.Thiswasbecausetheyhadtofindnewjobs,oftenhadtomigrateforwork,andwereforcedtocompletelychangetheirwayoflife.Moreeffortsatovercomingthisstressandprovidingsocialsafetynetsareessential.

So,eventhoughChinahasgreatexperienceindealingwithlandconfiscationandresettlement,andhasestablishedlawstoregulatethesepractices,thereremainvastsocial,economicandenvironmentalpitfallsthatrequireadditionalstudyandadaptations.

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4. LaoPDR

ThesecommentsregardingthelawoftheLaoPeople’sDemocraticRepublic(LaoPDR)andlegalaspectsoftheassessmentofmainstreamdamsontheMekongaresubmittedonbehalfoftheMekongLegalAdvocacyInstituteinChiangMai,Thailand.Weaddressfivecorelegalissueswithregardtodamconstructionandoperation:(a)PublicAccesstoInformation,(b)PublicParticipation,(c)RequirementsforproducingandenforcingEnvironmentalImpactAssessments,(d)Preventing,avoidingormitigatingenvironmentalimpacts,and(e)Landconfiscation,CompensationandResettlementconcerns.

Eachoftheseissueshasadirectimpactnotonlyontheproceduralstepsrequiredforbuildingandoperatingdams,butalsothelivelihoodsofpeoplelivingallalongtheMekongRiverwhodependonathriving,free-flowingriverfortheirveryexistence.Therefore,itisincumbentupontheMRCtobeawareof,followandenforcetheselegalprovisionsthroughouttheprocessoftheStrategicEnvironmentalAssessment.

Public Access to information

Fundamentalrightslikeaccesstoinformation,freedomtoengageinadvocacyandenvironmentalprotectionmechanismsareverynew.ThereisnospecificlegislationintheLaoPDRonpublicaccesstoinformation.Asaresult,informationaccessandpublicparticipationarestillnotbeingproperlyimplementedformostdevelopmentactivities.Thisglaringomissionmakespublicparticipationingovernmentactivitiesseriouslydifficultifnotoutrightimpossible.TheresultisthatanydamsontheMekongbuiltunderLaolawwilllacktransparencyandwillultimatelytramplelocalpeopleslivelihoods.

Further,theLaolawsarenotclearregardingsecretandpublicinformation.TheLaopeopleneedmoretimetobuildknowledgeonlegalrights,particularlylocalcommunitiesthatarefamiliarwithsustainableuseofnaturalresourcesandcustomarylivelihoods.

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Public participation

UndertheConstitution,Article37,allLaocitizenshaveequalrighttoengageinpolitics,economics,andsocial-culturalfamilydevelopment.TheEnvironmentalLaw,Article8(5)requires”participationfromvillagerslikelytobeeffectedbythedevelopmentprojectsoroperations.”

PublicparticipationunderLaolawisalsoprovidedintheNationalEIARegulation,theRegulationonImplementingEnvironmentalAssessmentforElectricityProjects,andmoreparticularlyintheSummaryoftheNationalPublicInvolvementGuidelines,2003.

Theseguidelinesprovideadefinitionofpublicinvolvementanditscomponentparts;introducethemainprinciplesunderlyingtheconsultationandparticipationprocess;andprovideclarificationofpublicinvolvementterminology.

Despitetheselawsandguidelines,inmanysignificantprojectsthereisstillnopublicinvolvementindecision-making.Inothers,publicparticipationisminimal.Theendresultisthatlocalpeople’sknowledgeoftheriverandtheiradaptationstonaturalvariabilitywillbeignoredorlost,andfutureprospectsfortheriveranditspeoplearequitedim.

EIA requirements and enforcement

TheLaoConstitution,Article19,requirestheprotectionoftheenvironment.

AccordingtotheEnvironmentalProtectionLaw,1999,NationalEIARegulation,andtheRegulationonImplementingEnvironmentalAssessmentforElectricityProjects,Environmentalimpactassessments(EIAs)must

• includeanassessmentofsocial,healthandculturalissues;• describetheexistingsocio-economicandnaturalenvironmentinthe

area(s)affectedbytheprojectconcerned;• identifyanddescribetheenvironmental,socialandeconomicimpacts

oftheproject;• comparetheimpactswithregardtooneormorefeasiblealternatives

totheproject;• identifyunavoidableimpactsandproposewaystocompensatefor

them;• selectonealternativethatbestaccomplishesthepurposeofthe

project,whilebestprotectingenvironmentalvalues;

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• supplementexistingpublishedinformationwithsufficientfieldstudiestoadequatelydeterminetheexistingconditionsinthearea(s)affected.

TheEnvironmentalProtectionLawrequiresaprojectproponenttoprepareanEIAreporttotheconcernedenvironmentalmanagementandmonitoringunitforanenvironmentcompliancecertificatetobeissuedbeforestartingtheproject.

TheEnvironmentalProtectionLaw,WaterandWaterResourcesLaw,ElectricityLaw,NationalEIARegulation,theRegulationonImplementingEnvironmentalAssessmentsforElectricityProjects,andEnvironmentManagementStandardsforElectricity

ProjectsallrequirecompliancewithenvironmentalandsocialcommitmentsmadeintheEIA.

Non-compliantpersonsandorganizationsareconsideredtobeinviolationoflegalinstrumentswhentheyfailtofollowtheEIA.PenaltiesforviolationarespecifiedintheEnvironmentalProtectionLaw,ElectricityLaw,andNationalEIARegulation.

Inpractice,EIAsfordevelopmentprojectsarepreparedandprovidedbytheinvestor,andagovernmentagencylikeEnvironmentalandWaterResourcesAdministrationrarelydissaprovesEIAs.ThelackofanindependentEIAagencyandmonitoringfromvariousstakeholders/localgroupandcivilsocietymeansthatthereisnopublicoversightofEIAapproval.SinceEIAsarenotrigorousinLao,andRuleofLawisoftenignoredbyLaotianCourts,theunderlyinglawsandemergentprotectionandmitigationrequirementshavelittleifanyforceanddonotprovideanybenefitstolocalpeopleortheenvironment.

TheTheun-HinbounExpansionProjectinLaosrejectedanEIAproducedbyDr.MurrayWatsonandhiredaNorwegiancompany,Norplan,tocompletetheEIA.

WatsonsaidthattheNorplanEIAcomestodifferentconclusionsregardingtherisksoftheplannedexpansionproject.AccordingtoWatson,“theNorplanEIAseriouslyunderestimatestherisksoftheTheun-HinbounExpansionProject,andunderstatesorignoresthechangesalreadyexperiencedfromtheTheun-HinbounHydropowerProject.TheyaredeceivingtheLaoGovernmentandenablingtheirclienttoexternalizecosts.”

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Planning & Management Criteria

TheEnvironmentalManagementStandardsforElectricityProjects,andLaoElectricPowerTechnicalStandards,2004provideaclear,commonsetofcriteriafordevelopingwaterandenergyresourcesbyusingdams.

Unfortunately,theLaoPDR’sagencieslackthecapacitytofullyutilizethesecriteriaandmanagementprovisions,andaregenerallyreliantonforeignassistance.Unsympatheticbureaucratsorinfluentialofficialscanalsostandinthewayofcompliance,sotheplanningandmanagementprovisionsarenotfollowed.Therefore,long-termmanagementofresourceswillbeskewedtowardmaximizingprofitsthroughelectricitygenerationattheexpenseoflocalconcerns.

Preventing, avoiding or mitigating environmental impacts

TheWaterandWaterResourcesLaw,1996states:“Theresponsiblewaterauthorityshalldeterminequalitystandardsfordrinkingwaterandusedwaterthatisdrainedintowatersourcesorintosomeotherplace.”Thelastpartabout“waterthatisdrainedintowatersources”seemstobereferringtowaterpollution.

TheLawonWaterandWaterResources,theEnvironmentProtectionLaw,theForestryLaw,1996andtheElectricityLawallhaveprovisionstoprotectendangeredspeciesanddemandenvironmentalconservation.

Theseprovisionsremainmostlyhypothetical,withuncheckedpollutionongoingandlittleconcernforendangeredspeciesliketheMekonggiantcatfish.Otherenvironmentalissuesarecompletelyoverlooked,suchastheneedsofmigratoryaquaticspecies,impactsofreservoirs(evenrun-of-riverdamscreateimpoundments),orlossoftransportationalternatives.

Waterpollutionisincreasing,especiallyinVientiane,fromurbandevelopmentandindustrialpollution.Existingwatersupplysystemstendtobeoutdatedandinpoorcondition.Groundwatercontaminationisgrowinginthelargercitiesfromsewageandindustrialwastes.

Land confiscation, Compensation and Resettlement issues

Laolawsthatprovideforcompensationtopeopleadverselyaffectedbytheconstructionandoperationofdamsinclude:

• TheElectricityLaw,1997,• NationalEIARegulation,2000,

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• TheRegulationonImplementingEnvironmentalAssessmentforElectricityProjects,2001,and

• EnvironmentalManagementStandardsforElectricityProjects,2001.TheEnvironmentManagementStandardsforElectricityProjectslaw,as

wellasresettlementpolicyandguidelinesoninvoluntaryresettlementstatethatanaffectedpersonisentitledtoreceivedirectorindirectbenefitsharing.

Littleisactuallydonetoenforcetheseprovisions.AnexampleofthisistheTheun-HinbounDamincentralLaos.RecentlytheTheun-HinbounPowerCompanyadmittedthat25,000peoplein61villages—mostlysubsistencefarmers—havelostfish,rice,vegetablesanddrinkingwaterasaresultofthedam.Alittlecompensationwasallowed,butvillagersstillhavenotbeencompensatedforfishlossesofupto90percentoftheirpre-damcatch.

InternationalRiversfoundthattheprojectwasinviolationofLaogovernmentresettlementlawandtheEquatorPrinciplesinnumerousinstances.TheTheun-HinbounPowerCompanyisalsofailingtocomplywithitsConcessionAgreementandResettlementActionPlan(RAP).Theseviolationsinclude:CompensationforlossofassetsandlivelihoodsinthedownstreamvillagesasaresultoftheoriginalTheun-HinbounProjecthasnotbeenpaid[ViolationofLaoresettlementlawArticle6];noprovisionofarangeofresettlementoptionstothedownstreamvillagers[ViolationofPerformanceStandard5],andnodocumentationon“goodfaithnegotiations”withtheaffectedindigenouscommunities[ViolationofPerformanceStandard7].Seehttp://www.internationalrivers.org/en/southeast-asia/laos/theun-hinboun.

Villagersuseagriculturallandfortheirlivelihood,whilebusinessmenusethoselandstoseekprofit.Whengovernmentpolicyistopromoteinvestmentinthecountryforeconomicgrowthsomevillagersagree,butwhenvillagerswhodisagreewiththeconcessiontheyarenotprovidedinformation.Thereisnorightsprotectionmechanismforthecommunityorindividualstolitigate,noristhereanywaytoconfrontthecompanyorauthorityresponsible.Therearenoguaranteedrightsthatapplyequallyforeveryoneandeverywhere.Conflictresolutionmethodsforcustomarylivelihoodsthroughthelegalsystemarenarrowandlimited,andfailtoprovideanadequateremedy.

TheLaoGovernmentandtheMRCneedtoconsiderthesequestions:“Whatisinvestmentforpublicinterest?Whatisfaircompensation?Howshouldgoodgovernanceprinciplesbeapplied?”

Whenpublicinterest,humanrightsandenvironmentalprotectionconflict

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witheconomic-socialdevelopment,localcommunitiesgenerallylosetheiragriculturelandandareleftwithalowqualityofenvironment.Theyalsofaceahighriskiftheycriticizethegovernmentpolicyordevelopmentprojects.Someactivecommunityleaderswerearbitrarilydetained,manypeoplereceivedunfaircompensation,andconflictrelatedtolandandnaturalresourceisincreasing.Stillthereisonsocialagencyormechanismtosolvetheseconflicts.“Publicinterest”advocacyislimitedtopreservingsocialorderbygovernmentofficials,whouseittocontrolfreedomofexpressionanddemonstrations/protests.Humanrightsdefendersandlawyersarenotallowedbythejudiciarytoengageinpublicinterestlitigationforcivilsocietybasedonenvironmentalandhumanrightsissues.

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5. Thailand

ThesecommentsregardingThailand’slawsandlegalaspectsoftheassessmentofmainstreamdamsontheMekongaresubmittedonbehalfoftheMekongLegalAdvocacyInstituteinChiangMai,Thailand.Weaddressfivecorelegalissueswithregardtodamconstructionandoperation:(a)PublicAccesstoInformation,(b)PublicParticipation,(c)RequirementsforproducingandenforcingEnvironmentalImpactAssessments(EIA),(d)Preventing,avoidingormitigatingenvironmentalimpacts,and(e)Landconfiscation,CompensationandResettlementconcerns.

Eachoftheseissueshasadirectimpactnotonlyontheproceduralstepsrequiredforbuildingandoperatingdams,butalsothelivelihoodsofpeoplelivingallalongtheMekongRiverwhodependonathriving,free-flowingriverfortheirveryexistence.Therefore,itisincumbentupontheMRCtobeawareof,followandenforcetheselegalprovisionsthroughouttheprocessoftheStrategicEnvironmentalAssessment.

Public Access to Information

Thailand’s2007Constitutionhasseveralsectionsthatguaranteefreeinformationfromthegovernmentandprovideforpublicparticipation.

Section56oftheConstitutionstates:“Apersonshallhavetherighttogainaccesstopublicinformationinpossessionofastateagency,stateenterpriseorlocalgovernmentorganization,exceptifitwillaffectstatesecurityorpublicsafety.”Also,“Apersonshallhavetherighttoreceiveinformation,reasons,andexplanationfromastateagency,stateenterpriseorlocalgovernmentorganizationbeforepermissionisgivenforimplementationofanyprojectoractivitywhichmayaffectthequalityofenvironment,health,andsanitaryconditions,qualityoflifeorothermaterialofinteresttohimorheroralocalcommunityandshallhavetherighttoexpresshisorheropiniononsuchmatterstoagenciesconcernedforconsideration.”

TheseprovisionsareanewideainThailand,wherethepowerfulbureaucracyishistoricallyquitesecretive.Attemptstogainaccesstogovernmentstudieshavehadmixedsuccess,butrecentNGOeffortstogainaccesstotheEnvironmentalImpactAssessmentforEGAT’sHatgyiDaminBurmaweresuccessfulthankstotheinterventionofThailand’sNational

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HumanRightsCommission(NHRC).Theprecedentofthiscase,whichinvolvesreleasinginformationanathematothemilitaryjuntathatrulesBurma,provideshopeforfutureeffortswithrespecttoMekongdams.

Public participation

Constitutionalprovisionsthatprovideforpublicparticipationinclude:• Section58:Apersonshallhavetherighttoparticipateinthedecision-

makingprocessofstateofficialsinperformanceoftheadministrativefunctionswhichaffectormayaffecthisorherrightsandliberties.

• Section59:Apersonshallhavetherighttopresentapetitionandtobeinformedabouttheresultofitsconsiderationwithintheappropriatetime.

• Section60:Therightofapersontosueastateagency,stateenterprise,localgovernmentorganization,orotherstateauthoritywhichisajuristicpersontobeliableforanyactoromissionbyitsgovernmentofficial,officialoremployeeshallbeprotected.

• Section67:Therightofapersontogivetothestateandcommunitiesparticipationinthepreservationandexploitationofnaturalresourcesandbiologicaldiversityandintheprotection,promotionandpreservationofthequalityofenvironmentforusualandconsistentsurvivalintheenvironmentwhichisnothazardoustohisorherhealthandsanitaryconditions,welfareorqualityoflife,shallbeprotected.Therightofacommunitytosueastateagency,stateenterprise,localgovernmentorganizationorotherstateauthorityasalegalentitytoperformthedutiesasprovidedbyparagraphoneandparagraphtwoshallbeprotected.

• Section87:ThestateshallimplementthePublicParticipationPolicyasfollows:

(1) encouragingpublicparticipationinthedeterminationofpublicpolicyandthemakingofeconomicandsocialdevelopmentplanbothinthenationalandlocallevel;

(2) encouragingandsupportingpublicparticipationtomakedecisiononpoliticsandthemakingofeconomicandsocialdevelopmentplanandtheprovisionofpublicservices;

(3) encouragingandsupportingpublicparticipationintheexaminationoftheexerciseofStatepoweratalllevelsintheformofprofessionoroccupationorganizationorotherforms;

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• TheRoyalDecreeonGuidelinesandProceduresonGoodGovernance,2003statesthatpublichearingarerequiredpriortooperatingagovernmentproject.

• TheActonEstablishmentofAdministrativeCourtsandAdministrativeCourtProcedure,1999providesachannelforaffectedpeopletoseekredressofgrievancesresultingfromanactoromissionbyadministrativeagenciesorStateofficials.

• TheRoyalDecreeonGuidelinesandProceduresonGoodGovernance,2003statesthatapublichearingmustbearrangedpriortotheoperationofanyproject.

Thesepublicparticipationlawsarestrongonpaper,butthereareseriousimpedimentsduetothe“powerfulfigures”whouseforce,threatsandintimidationtoscarepeoplefromparticipating.

Thai Laws Regarding Use and Regulation of Water, a Public Resource

The1992CivilandCommercialCodestatesthat“waterbelongstotheStateandisthereforeregardedaspublicproperty.”

ThePromotionofEnergyConservationAct,1992statesthattheNationalCommitteeonEnergyPolicyhastheauthoritytoissueanymeasuresrelatedtonationalenergy,includingwaterresources.

TheMetropolitanWaterworksAct,1967allowsprivateentitiestoconstructandoperatetheirownwaterworkssystemsincertainareas.

ThePrivateIrrigationAct,1939authorisesindividualsorgroupsofindividualstoacquireanddevelopwaterresourcesbymeansofprivateirrigationsystems.

Thesewater-relatedlawsandregulationsprovideleveragetopubliceffortstoensurethatlocalpeople’svoicesareheardwhenplanningandoperatinghydropowerplants.

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EIA requirements

TherequirementforEIAinThailandfirstaroseintheearly90’s.AccordingtotheAnnextotheMinistryofScience,TechnologyandEnvironmentNotification,1992,EIAreportsmustprovideinformationon,andananalysisof:

(a)thestateoftheenvironment(physical);(b)thestateofbioticresources;(c)humanusevalues;andd)qualityoflife,includingthesocial,healthandculturalaspects.

DuringtheEIApreparationprocess,consultationsamongrelevantagencies,representativesoflocalcommunitiesandindependentexpertsarerequired.AdditionalMinisterialNotificationsupuntil2000statethatEIAsarerequiredfornationalandsub-nationalwaterdevelopmentplans.

Accordingtothe2007Constitution,Sec.67,“Anyprojectoractivitywhichmayseriouslyaffectthequalityofenvironmentshallnotbepermitted,unlessitsimpactonthequalityofenvironmenthavebeenstudiedandevaluatedandopinionsofanindependentorganization,consistingofrepresentativesfromprivateenvironmentalorganizationsandfromhighereducationinstitutionsprovidingstudiesintheenvironmentalfield,havebeenobtainedpriortotheoperationofsuchprojectoractivity.”

Furthermore,theEIAmustincludeopinionsofanindependentorganization,consistingofrepresentativesfromprivateenvironmentalorganizationsandfromhighereducationinstitutions.

TheseEIAprovisionsarequitespecific,butinmanycasesThailandlacksthepoliticalwillorexpertisetofulfillthem.Further,thereleaseofmanyEIAsispreventedbyoverzealousbureaucratsguardingtheiradministrativeturf.Thispreventsfullyinformedparticipationbytheaffectedpublic,andmustbeovercometoproduceeffectiveEIAsthatprotecttheenvironmentwhileallowingsustainabledevelopmenttoproceed.

Avoiding or mitigating environmental impacts

The2007Constitutionalsocontainsspecificprovisionsaimedatprotectingtheenvironment.ConstitutionSection84statesthat“Thestateshallimplementtheland,naturalresources,andenvironmentpolicyasfollows:

…(4)preparingsystematicmanagementplanforwaterandothernaturalresourcesforthecommoninterestsofthenation,andencouragingthepublic

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toparticipateinthepreservation,conservationandexploitationofnaturalresourcesandbiologicaldiversityappropriately;

(5)conductingthepromotion,conservationandprotectionofthequalityoftheenvironmentunderthesustainabledevelopmentprinciple,andcontrollingandeliminatepollutionwhichmayaffecthealthandsanitary,welfareandqualityoflifeofthepublicbyencouragingthepublic,thelocalcommunitiesandthelocalgovernmentstohaveparticipationinthedeterminationofthemeasures….”

Also,accordingtotheNationalEnvironmentalQualityActor1992,thepubliccansuefordamagesrelatedtopollutionorenvironmentalchangescausedbystateprojects:

However,violenceandintimidationaimedatactivistsandlawyers,combinedwithbureaucraticdelaysandlackofcapacity,aswellasbriberyandkickbacksbetweencompaniesandgovernmentofficials,meanthattheseprovisionslackeffectivenessinmanycases.Forexample,thenotedThaiHumanRightslawyerSomchaiNeelaphaijitwaskidnappedin2004andispresumeddeadduetohisoutspokendefenseofMuslimsinsouthernThailand,effectivelyintimidatingandsilencingmanyotherThaiactivistsandlawyers.Seehttp://news.bbc.co.uk/2/hi/asia-pacific/4608594.stm.

Land confiscation, Compensation and Resettlement issues

The2007ThaiConstitutionalsohasprovisionstoprotectpeople’srightsconcerningpropertyanddwellings.Section33statesthat“Apersonshallenjoythelibertyofdwelling.Apersonisprotectedforhispeacefulhabitationinandforpossessionofhisdwelling.”Further,Section41promisesthat“Thepropertyrightofapersonisprotected.”

Withevenmoredetail,Section42states:

“The expropriation of immovable property shall not be made except by virtue of the law specifically enacted for the purpose of public utilities, necessary national defence, exploitation of national resources, town and country planning, promotion and preservation of the quality of the environment, agricultural or industrial development, land reform, conservation of ancient monument and historic sites, or other public interests, and fair compensation shall be paid in due course….”

TheEnhancementandConservationofNationalEnvironmentalQualityAct,1992statesthatapersonhastherighttoreceivecompensationinthecase

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ofdamagecausedbythespreadofpollutionorchangesintheenvironmentarisingfromactivitiesorprojectsinitiatedorsponsoredbytheState.TheStateIrrigationActallowsnationalizationoflandandprovidesforcompensationforirrigationdevelopmentplans.

TheselawsarealsosubjecttopervasivecorruptionwithinThailand,andlegaleffortsaimedatgettingcompensationareextremelyrareandtakedecades.Forexample,Thailandrecentlypaid1.2millionbahttoHaiKhanjantha,alsoknownasGrandmaHai,whofoughttoreclaimhersubmergedlandfromtheconstructionofHuayLaHareservoir32yearsago.

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6. Vietnam

ThesecommentsregardingVietnam’slawandlegalaspectsoftheassessmentofmainstreamdamsontheMekongaresubmittedonbehalfoftheMekongLegalAdvocacyInstituteinChiangMai,Thailand.Weaddressfivecorelegalissueswithregardtodamconstructionandoperation:(a)PublicAccesstoInformation,(b)PublicParticipation,(c)RequirementsforproducingandenforcingEnvironmentalImpactAssessments(EIA),(d)Preventing,avoidingormitigatingenvironmentalimpacts,and(e)Landconfiscation,CompensationandResettlementconcerns.

Eachoftheseissueshasadirectimpactnotonlyontheproceduralstepsrequiredforbuildingandoperatingdams,butalsothelivelihoodsofpeoplelivingallalongtheMekongRiverwhodependonathriving,free-flowingriverfortheirveryexistence.Therefore,itisincumbentupontheMRCtobeawareof,followandenforcetheselegalprovisionsthroughouttheprocessoftheStrategicEnvironmentalAssessment.

Public Access to Information

TheRegulationonDemocracyatGrassrootsLevel,GovernmentDecree79/2003/ND-CP,dated7/7/2003,requiresreleaseofinformationtothepublicaswellasparticipationinofficialdecisions.Furthermore,aDraftLawonAccesstoInformationiscurrentlybeingconsidered.Seehttp://www.article19.org/pdfs/laws/vietnam-law-on-access-to-information.pdf.

Despitetheseefforts,thereisstillconsiderablequestionaboutVietnam’scommitmenttoprovidefreedomofinformation.The2003arrestofDr.NguyenDanQueafterdemandingpublicaccesstogovernmentinformationisstillremembered,andtheDecreeandDraftLawstillcontainmanyloopholesthatwillallowthegovernmenttocontrolinformationinappropriately.

Public Participation

TheLawonEnvironmentalProtectionstatesthattheEIApreparationprocessmustincludecommentsandfeedbackfromcommune-levelPeople’sCommittees(PCs)andrepresentativesoflocalcommunitieswithintheprojectarea.Thesecommentsmustincludeanyoppositiontoprojectimplementation

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orenvironmentalprotectionmeasures.DuringtheEIAappraisalprocess,localorganizations,communitiesand

individualsmayprovidecommentsonenvironmentalprotectionissues.Furthermore,projectappraisalandapprovalauthoritiesthenmusttakeintoaccountallthesecomments,beforeanyconclusionordecisionisreached.

VietNam’sAgenda21statesthatforthelargestprojectswiththegreatestimpactonthepopulation,communityparticipationinenvironmentalimpactassessmentshouldbeenhanced

TherequirementsforcommunityconsultationonEIA,transparencycommunicationwithcommunityabouttheprojectandEIAoutcomesarementionedinEIA-relatedlegaldocuments.However,theserequirementsarelikelytobeambiguousandunspecified.Accordingtosomeexperts,thedefinitionofcommunityasanobjectoftheconsultationisratherinsufficient–whoisthecommunitythatshouldbeconsultedbytheEIArelatedspecialists,consultants,investorsandlocalauthorities?Civilorganizationsandassociationsarethebridgesthatconnectthecommunitieswiththegovernment’sfunctionalbodies;howeverregulationsregardingtheirrolesinandbenefitsfromtheirparticipationinEIAarealmostunmentionedinthelaws.

DuringthepreparationprocessofEIA,consultationandconsiderationofthecommunity’sperspectivesaredoneonanad hocbasis.Therefore,theserequirementsarefulfilledtodifferentdegrees,dependingoneachlocality.InbigcitiessuchasHanoiorHoChiMinhCity,theserequirementsarestrictlyfollowed,whileincontrast,theserequirementsarepoorlyfollowedinotherlocalities,iffollowedatall,especiallyinpoor,mountainousorloweducationalareas.Theserequirementsarecarefullyfulfilledbyforeigninvestmentprojects,suchasthePhuMy2thermoelectricityprojectinBaRia-VungTauprovince,financedbytheWorldBankwithfullparticipationoftheprojectstakeholders(localauthorities,relevantdepartments,agenciesandhouseholdsintheprojectareas)andadequateprovisionofinformationregardingtheprojectandmeasurestomitigateenvironmentpollution.

Infact,MONREissueditsCircular05/2008/TT-BTNMTdated08December2008onguidingthestrategicenvironmentassessment,environmentalimpactassessmentandenvironmentalprotectioncommitments.Article2:CommunityConsultation,ChapterIII–Circular05/2008/TT-BTNMTprescribesthatprojectowner(s)shallpublicizeinformationtothelocalcommunityandorganizedialogueswiththeprojectowner(s)on

Mekong River Dams 32

maininvestmentitems,environmentproblems,andenvironmentprotectionbysendingoutitsofficialletterandaskforcommentsfromProvincialPeople’sCommitteesandtheCommunalFatherlandFrontintheprojectarea.Thesegovernmentbodies,however,maynotzealouslyrepresentlocalpeople’sinterests.

Eventhoughthereareseverallegalrequirements,Vietnam’scourtsseemtohavelittleregardforpublicparticipationortheruleoflaw.AttorneyCuHuyHaVufiledalawsuitagainstthePrimeMinisterforillegallyapprovingabauxiteminewithoutanEIAandwithoutapprovalbytheNationalAssembly.ThelawsuitwasrejectedonthegroundsthatMr.HaVuisnotalicensedlawyer.TheCourtofAppealsagreed,andrejectedanyfutureappealsaswell.Seewww.lookatvietnam.com/2009/07/cu-huy-ha-vu-not-a-lawyer.htmlandhttp://www.viettan.org/spip.php?article8644.

EIA requirements

Vietnam’slawexplicityrequiresEIA,intheLawonEnvironmentalProtection2005.ThelawstatesthatapprovaloftheEIAreportisaprerequisiteforaprojecttogetinvestmentandoperationallicenses.TheEnvironmentalProtectionLawalsodemandsthesupervisionandinspectionofcompliancewithenvironmentalprotectionrequirementssetoutintheEIAreportasapproved.

Unfortunately,asnotedabove,Vietnam’slegalrequirementstoproduceEIAsandsharethemwiththepublichavelittleforcewhenpowerfulpoliticianssuchasthePrimeMinisterwantaprojecttohappen.Ratherthanaddressinglegalissues,Vietnam’sgovernment(includingcourtsthatlackindependence)willintroduceimaginaryandmeaninglessarguments.Atthepresent,EIAreportsaremerelyconcernedwithshort-termanddirectlynegativeimpactsonthenaturalenvironment,andgivemuchlessattentiontolong-term,indirectandbeneficialimpactsonthesocialenvironment.Therecommendationsandoptionsformitigationoftheimpactsarecursory,infeasibleorfutile,ormerelyabaselesspromise.

EIAisessentiallyasystematicprocesstoidentify,predictandevaluatethenegativeenvironmentalandsocialeffectsofproposedactionsinordertoaiddecision-makingregardingthesignificantenvironmentalconsequencesofprojects,toensurethattheprojectisnotonlyeconomicallysoundbutalsosociallyandenvironmentallyviable.Nevertheless,themeaningofthistaskisnotfullyunderstoodbysomemanagersandinvestors.Usually,theyconsider

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EIAreportingtobeaprocedureofprojectpreparation/implementation.Worsestill,manyinvestors“blame”theEIArequirementsforhamperingtheirinvestmentandproductionactivities.Therefore,whenoneisrequested,anEIAreportispreparedjustforform’ssake,onemoreprocedureamongothersjusttomakesurethattheprojectiseligibleforapprovalwithoutdueattentionbeingpaidtothefactualenvironmentimpactsandhazards.TypicalexamplesincludethemassivepermissionsforgolfcourseprojectsinVietnamoverthelastfewyears.IfEIAreportsfortheprojectshadbeenpreparedinathoroughandpropermanner,therewouldnotbeconflictsbetweenprojectownersandthelocalcommunitiesontheownershipandaccessibilityofland,forestandwaterresources.

Avoiding or mitigating environmental impacts

Vietnam’sLawonEnvironmentalProtectionincludeslegally-bindingmeasuresforpreventing,minimizing,and/ormitigatingnegativeimpactsofdamsonriversflowingthroughprotectedareasaredirectlyintroducedthroughEIAs.

Furthermore,threatenedorendangeredspeciesareprotectedbymeansofvariousdocumentsincluding:

• theLawonForestProtectionandDevelopment2004,• theLawonEnvironmentalProtection2005,• theLawonFisheries,2003,• theOrdinanceonProtectionandQuarantineofPlants,2001,• GovernmentDecree175/1994/ND-CPontheImplementationofthe

LawonEnvironmentalProtection.Finally,thePenalCodeprovidesamaximumofsevenyearsimprisonment

fortheviolationofregulationsrelatedtotheprotectionofrareandwildspeciesofanimals.

Inordertobeeffective,theseprovisionsrequirevigilantenforcementbyconscientiousofficials.TherequisiteawarenessofconsequencesissometimeslackinginVietnam,ascanbeseenfromthesaleofendangeredpangolinsbywildlifeauthorities,encouragingevenmoreillegalwildlifetrafficking.Seehttp://www.panda.org/wwf_news/news/?153842/Seized-pangolins.

TheMRCmustalsoaddresstheneedtoremedyexistingdamspriortobuildingnewdams(Article7and8ofthe1995MekongAgreement).ThereisanongoingdisputebetweenCambodiaandVietnam,whohavenotbeenabletosuccessfullyresolvethecross-borderimpactsofYaliFallsDamon

Mekong River Dams 34

theSesanRiver.TheCambodiangovernmentmustprotectitspeoplefromharmoriginatinginVietnam,andmustalsofundorstaffitsagencyintheCambodianMoWRMdesignatedtoworkwiththegovernmentofVietnam.IfCambodialacksthecapacityandwilltoresolvethisexistingdispute,howwillVietnam’sgovernmentsolvemultiplefuturedisputeswithCambodiathatwillbeonafarlargerscale?

Formoreinformation,seereport“DownRiver”byHarvardLawSchool’sHumanRightsProgram,availableathttp://www.law.harvard.edu/programs/hrp/documents/down_river.pdf.

VietnamhasnotliveduptotheagreementsmadewithCambodiainthepast.Forexample,Vietnampromisedtobuildre-regulatingdamsontheSesanandSrepokRiversnearthebordersbetweenVietnamandCambodia(Srepok4AandSesan4A),buttherearenoreportsaboutwhetherthesere-regulatingdamsarebeingbuiltandwhethertheyareactuallyhydropowerdams.(ThiscommitmentwasmadeonJanuary12,2007attheCambodia-VietnamStakeholdersMeetingontheSrepokEIAreportatSunwayHotel,PhnomPenh).

Land confiscation, Compensation and Resettlement issues

Likeitsneighbors,Vietnamhasyearsofexperienceinrelocatingpeoplefordevelopmentprojects,aswellaswritinglawstoregulatethepractice.Accordingly,whenlandisrequisitionedbytheState,affectedpersonsshouldbecompensatedandassistedinresettlement,accordingtotheConstitutionof1992,theWaterResourcesLawof1998andtheLandLaw,2003.Furtherregulationsregardingcompensationinclude:

o Decree181/2004/ND-CPonLandLawimplementationo MinistryofFinanceCircular116/2004/TT-BTCo Decree197/2004/ND-CPoncompensation,supportand

resettlementwhenlandistakenbackbytheState;o Decree17/2006/ND-CPdated27/01/2006onrevisionof

previouslyissuedDecreesonLandLawimplementationandDecree187/2004/ND-CPonequitizationofState-ownedenterprises

o LawonEnvironmentalProtection:adverseimpactsontheenvironmentrequirecompensation.

Unfortunately,Vietnam’spreviouseffortsatresettlingpeoplefordamconstructionhavebeenfraughtwithdifficulties.Forexample,thousandsof

35 MekongLegalAdvocacyInstitute

ethnicminoritieshavebeenforcedtomovefortheSonLaDamontheDaRiver,buttheirpreviousoccupationaswetlandricefarmersleavesthemunpreparedformountaintopagricultureforceduponthembyrelocation.Monetarycomnpensationiscompletelyinadequatetorebuildtheirhomes,anddelaysintheprocessareleavingthousandsinabjectpoverty.Seehttp://www.monstersandcritics.com/news/asiapacific/news/article_1471157.php/Vietnam_admits_dam_resettlement_programmes_inadequate.

Mekong River Dams 36

EveryMekongcountryhasitsownlegalandpoliticalsystems.Thesesystemsvarywidely,someworktoprotecteconomicinterestsattheexpenseofothers,whilesomecountriesattempttoseekabalancebetweeneconomics,environmentandlocalpeople’slivelihoods.Somehavelawsthatprovideaccesstoinformationandseekpublicparticipation,whileothercountriesshunorevensuppressthevoicesoftheircitizens.

EachMekongmainstreamdamwillhaveanimpactontheenvironmentandpeoplefarbeyondthebordersofthecountrywhereitisbuilt.Giventhepatchworkoflawsandpoliciesthatwillbeusedtoregulatetheseimpacts,itisimpossibletoreconcileharmtolocalpeople’slivelihoods,includingfoodsecurity,watersupply,andtransportation,withtheeconomicbenefitsthatwillaccruetourbanpeoplewhowillusethepower.

Therefore,weurgetheadoptionofstandardizedlaws,policiesandproceduresthatcontrolwatershedplanning,protectaquaticecosystemsandwaterresources,regulatedamconstruction,relocationandcompensation,andaddressthewiderangeotherissuessurroundingdamconstructionacrosstheMekongRegion,beforethelivelihoodsofmillionsofpeopleareirretrievablydamaged.

Thiswillinvolvetwolevelsofaction.First,individualgovernmentsneedtoharmonizetheirownlegalregimesacrossallsectors,inordertobalancecompetinginterestswhileprotectingtheenvironmentandlocallivelihoods.Second,governmentsthroughouttheregionmustharmonizetheirlegalregimesgoverningwaterresourcesacrossborderstoprovideuniformpoliciesandprocedurestoallpeopleaffectedbyMekongdams.

OneexampleofcountriesadoptingadutytoperformEIAsforprojectswithimpactsthatcrossbordersistheConventiononEnvironmentalImpactAssessmentinaTransboundaryContext(Espoo,1991).Seehttp://www.unece.org/env/eia/.OfparticularinteresttoSoutheastAsiaarethestrongguidelinesforpublicparticipation.Theseguidelinesrecognizemultiplebenefits,suchas:

• Improvedrelationsbetweenpeoplesandcountries,andpreventionoftransboundaryenvironmentalconflicts

RegionalMessagefromMLAIandSamrethonMekongMainstreamDams

37 MekongLegalAdvocacyInstitute

• DevelopmentofcivilsocietyanddemocracyinthecountriesoftheECEregion

• Promototionoftimelydisclosureofrelevantinformationtoparticipantsintheenvironmentaldecision-makingprocess

• Makingpeopleunderstandandrespectthefinaldecisionsonprojects• Givinginsightintoenvironmentalprotectionandlong-term

environmentalproblems.(http://www.unece.org/env/eia/about/publicpart.html.)

InorderforthegovernmentsoftheMekongRegiontoensurearobustfutureforalltheirinhabitants,itisessentialthattheycommittocomprehensiveandtransparentSEAandEIAprocesses.Thisisinadditiontotheneedfortimely,multidisciplinaryEIAs,adherencetoruleoflaw,andprovisionoffair,adequatecompensationforconfiscatedpropertyandlostlivelihoods.

Mekong River Dams 38

ANoteonSources

MostlegalauthoritieshereinhavebeenextractedfromMekongRegionWaterResourcesDecision-making:NationalPolicyandLegalFrameworksvis-à-visWorldCommissiononDamsStrategicPriorities,IUCN(2006),Availableonlineathttp://cmsdata.iucn.org/downloads/mekong_region_water_resources_decision_making.pdf.

The2007ConstitutionofThailandcanbefoundathttp://www.asianlii.org/th/legis/const/2007/1.html.

Contacts for MLAI and Samreth Law GroupMr.MartyBergoffenEarthRightsInternationalMekongLegalCoordinator+66(8)43727696Email:marty@earthrights.org

SamrethLawGroupPhone:(+855)12585269