| Opinions of the Ministry of Environmental Protection on the Issues concerning Application of Law to the Illegal Act of "Building without Approval" of Construction Projects | | 环境保护部关于建设项目“未批先建”违法行为法律适用问题的意见 |
| (Letter No. 31 [2018] of the Ministry of Environmental Protection) | | （环政法函[2018]31号） |
| The environmental protection departments (bureaus) of all provinces, autonomous regions, and municipalities directly under the Central Government; the Environmental Protection Bureau of Xinjiang Production and Construction Corps; and the environmental protection bureaus of cities under separate state planning and provincial capital cities: | | 各省、自治区、直辖市环境保护厅（局），新疆生产建设兵团环境保护局，计划单列市、省会城市环境保护局： |
| Since the implementation of the new Environmental Protection Law and the new Law on Environmental Impact Assessment, there has been a controversy over the administrative penalty for the illegal act that construction employers commence building without filing construction project environmental impact reports and report forms for approval, or without re-filing for approval or filing for another review of the environmental impact reports and report forms according to Article 24 of the Law on Environmental Impact Assessment (hereinafter referred to as the "building without approval"), in application of law, retroactive time limitation, consequent undergoing of procedure of environmental impact assessment, and other aspects. Upon deliberation, the following opinions on issues concerning the application of the relevant laws and regulations are hereby offered. | | 新环境保护法和新环境影响评价法施行以来，关于建设单位未依法报批建设项目环境影响报告书、报告表，或者未依照环境影响评价法第二十四条的规定重新报批或者报请重新审核环境影响报告书、报告表，擅自开工建设（以下简称“未批先建”）违法行为的行政处罚，在法律适用、追溯期限以及后续办理环境影响评价手续等方面，实践中存在不同争议。经研究，现就有关法律法规的适用问题提出以下意见。 |
| I. Application of law with respect to administrative penalty for the illegal act of "building without approval" | | 一、关于“未批先建”违法行为行政处罚的法律适用 |
| 1. Relevant provisions in law | | （一）相关法律规定 |
| Paragraphs 1 and 2, Article 31 of the former Law on Environmental Impact Assessment issued in 2002 (and coming into force on September 1, 2003) respectively provided, | | 2002年公布的原环境影响评价法（自2003年9月1日起施行）第三十一条第一款、第二款分别规定： |
| "Where a construction employer commences building without filing the construction project environmental impact document for approval, or without re-filing for approval or filing for another review of the environmental impact document according to Article 24 of this Law, the environmental protection authority having the power to approve the environmental impact document shall order the construction employer to cease building and undergo the required procedure during a specified period; and, if it fails to undergo the required procedure during the specified period, may fine it not less than 50,000 yuan nor more than 200,000 yuan and take administrative action in accordance with the law against the directly responsible person in charge and other directly liable persons of the construction employer. | | “建设单位未依法报批建设项目环境影响评价文件，或者未依照本法第二十四条的规定重新报批或者报请重新审核环境影响评价文件，擅自开工建设的，由有权审批该项目环境影响评价文件的环境保护行政主管部门责令停止建设，限期补办手续；逾期不补办手续的，可以处五万元以上二十万元以下的罚款，对建设单位直接负责的主管人员和其他直接责任人员，依法给予行政处分。 |
| "If a construction employer commences building without the construction project environmental impact document being approved, or reviewed and consented to by the original approval authority, the environmental protection authority having the power to approve the environmental impact document shall order the construction employer to cease building, and may fine it not less than 50,000 yuan nor more than 200,000 yuan and take administrative action in accordance with the law against the directly responsible person in charge and other directly liable persons of the construction employer." | | “建设项目环境影响评价文件未经批准或者未经原审批部门重新审核同意，建设单位擅自开工建设的，由有权审批该项目环境影响评价文件的环境保护行政主管部门责令停止建设，可以处五万元以上二十万元以下的罚款，对建设单位直接负责的主管人员和其他直接责任人员，依法给予行政处分。” |
| Article 61 of the new Environmental Protection Law (which came into force on January 1, 2015) as revised in 2014 provides, "Where a construction employer commences building without either submitting the construction project environmental impact document or having it approved, the authority charged with the duty of supervision and administration of environmental protection shall order the construction employer to cease building and fine it, and may order it to make restoration to the original state." | | 2014年修订的新环境保护法（自2015年1月1日起施行）第六十一条规定：“建设单位未依法提交建设项目环境影响评价文件或者环境影响评价文件未经批准，擅自开工建设的，由负有环境保护监督管理职责的部门责令停止建设，处以罚款，并可以责令恢复原状。” |
| Article 31 of the new Law on Environmental Impact Assessment (which came into force on September 1, 2016) as amended in 2016 provides, "Where a construction employer commences building without filing the construction project environmental impact report and report form for approval, or without re-filing for approval or filing for another review of the environmental impact report and report form according to Article 24 of this Law, the environmental protection authority at or above the county level shall order the construction employer to cease building and, according to the circumstances of its violation of law and the harmful consequences, fine it not less than 1% nor more than 5% of the total investment in the construction project, and may order it to restore the construction site to its original state; and take administrative action according to the law against the directly responsible person in charge and other directly liable persons of the construction employer." | | 2016年修正的新环境影响评价法（自2016年9月1日起施行）第三十一条规定：“建设单位未依法报批建设项目环境影响报告书、报告表，或者未依照本法第二十四条的规定重新报批或者报请重新审核环境影响报告书、报告表，擅自开工建设的，由县级以上环境保护行政主管部门责令停止建设，根据违法情节和危害后果，处建设项目总投资额百分之一以上百分之五以下的罚款，并可以责令恢复原状；对建设单位直接负责的主管人员和其他直接责任人员，依法给予行政处分。” |
Through the foregoing revision and amendment, the new Environmental Protection Law and the new Law on Environmental Impact Assessment annulled the requirement of "undergoing the required procedure during a specified period."
．．．．．． | | 通过以上法律修订，新环境保护法和新环境影响评价法取消了“限期补办手续”的要求。
．．．．．． |
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