2008年-世界发展银行全球_Bhutan___Country_Environmental_Safeguard_Review_154页_844kb

报告摘要

Bhutan Country Environmental Safeguard Review Summary

Core Content

This report is a Country Environmental Safeguard Review conducted by the World Bank in collaboration with the Royal Government of Bhutan (RGOB). It evaluates Bhutan's environmental safeguard system, focusing on its equivalence with international standards and acceptability in implementation. The review is part of a broader effort to harmonize donor-supported environmental and social safeguard systems with Bhutan's national legal and institutional frameworks.

Main Objectives

To identify critical gaps in Bhutan's environmental safeguard policies and regulations compared to international best practices.
To assess Bhutan's capacity and commitment to implement its environmental policies.
To prioritize actions for improving Bhutan's environmental safeguard systems in line with its development goals.

Key Findings

A. Equivalence Assessment

Bhutan's environmental safeguard system shows significant alignment with international standards, particularly in the areas of environmental assessment, natural habitats, forests, pest management, and dam safety. However, several gaps were identified:

Environmental Assessment: Bhutan lacks reference to trans-boundary and global concerns, international environmental commitments, and international pollution prevention standards.
Natural Habitats: There is no clear preference for locating projects on previously converted lands.
Forests: The Forest and Nature Conservation Act (1995) and Rules (2000) lack regulations for plantation forests and formal independent certification for industrial-scale commercial forestry.
Pest Management: Bhutan's laws lack references to international pesticide standards and provisions for promoting integrated pest management.
Safety of Dams: Bhutan has guidelines but no legislation to regulate the design, planning, construction, maintenance, and operation of large dams. The guidelines do not include specific requirements for experienced professionals or independent verification of dam safety.

B. Acceptability Assessment

Bhutan has demonstrated commitment to environmental protection, but implementation effectiveness is constrained by several factors:

Limited data: There is a lack of comprehensive and time-series data on environmental indicators, which hinders monitoring and evaluation.
Decentralization challenges: Despite efforts to decentralize environmental clearance, the National Environmental Commission (NEC) has not fully realized this goal, and coordination mechanisms at the working level are weak.
Human resource constraints: Bhutan faces lack of qualified personnel and good topographic maps, which limits its ability to manage environmental policies effectively.
Institutional weaknesses: Conflicts exist between conservation and economic development policies, and coordination between agencies is limited. The Nature Conservation Division (NCD) and Department of Forestry have limited capacity to enforce legislation due to lack of staff, clear zoning, and boundary demarcation.
Community forestry: Bhutan has made substantial progress in developing community-based forestry for ecologically and socially sustainable outcomes.
Dam safety: Bhutan has guidelines for dam safety, but limited experience in managing large dams, which is dependent on foreign technical assistance.

Recommendations

A. Short-Term Opportunities

Update environmental assessment policies to include international standards and commitments.
Revise the Forest and Nature Conservation Act to address the lack of plantation forest regulations and independent certification.
Strengthen pest management laws to incorporate international pesticide standards and promote integrated pest management.
Develop legislation for dam safety and establish independent verification mechanisms.

B. Long-Term Options

Enhance institutional capacity through training and systems strengthening.
Improve stakeholder consultation and public disclosure during project planning.
Expand the use of country systems in other development sectors beyond the Second Rural Access Project (RAP II).
Integrate environmental safeguard policies with broader development goals, including decentralization and economic growth.

C. Opportunities for Development Partners

Support Bhutan in updating its environmental safeguard laws and regulations.
Facilitate the harmonization of donor-supported projects with Bhutan's national policies.
Contribute to capacity building for environmental management and compliance monitoring.
Promote the use of international standards in Bhutan's environmental policies.

Conclusion

Bhutan has a strong legal and institutional framework for environmental protection, but updates and enhancements are needed to fully align with international best practices and sustain its development goals. The review highlights the importance of systemic improvements, institutional strengthening, and stakeholder engagement to ensure effective implementation of environmental safeguards. The RGOB and World Bank are working together to achieve this, with a focus on harmonization, decentralization, and country ownership.

Key Institutions and Partners

Royal Government of Bhutan (RGOB)
National Environmental Commission (NEC)
NEC Secretariat (NECS)
Department of Roads
Department of Forestry
Nature Conservation Division (NCD)
International donors: DANIDA, Asian Development Bank, UNDP, SNV, Helvetas, JICA, WWF, and German Technical Cooperation.

References

Operational Policy (OP) 4.00 on the use of country systems for environmental and social safeguards.
Environmental Assessment Act (EAA) and Regulation for Environmental Clearance of Projects (RECOP).
Forest and Nature Conservation Act (FNCA) and Rules (2000).
Integrated Conservation and Development Project (ICDP).
Global Environmental Facility (GEF).
World Bank and World Wildlife Fund (WWF) studies on forest management.

Annexes

Annex A: Equivalence Analysis Matrix
Annex B: Applicable Policies, Acts, Regulations, and International Agreements
Annex C: Environmental Assessment and Management Process
Annex D: Characteristics of Bhutan's Protected Areas
Annex E: Conservation Areas in Bhutan
Annex F: Threats to Bhutan's Biodiversity
Annex G: Areas of Intervention, Corresponding Objectives, and Activities
Annex H: Pressures on Natural Forest Resources
Annex I: Key International Partner Agencies in Bhutan