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© Mic hael Fa ur
e
Pete r De Smedt a nd An Stas 2015
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Law subject co llection
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ontents
List
ojjigures
List
o
ables
List
o
contr
utors
List
o
abbreviations
Intr
od
uction
Mic/we/ Faw·e
Pet
er De
Sm
edt and
n Stas
PART 1 GENERAL THEOR Y
Enviro nmenta l enforcement networks: theory practice and
IX
X
XI
XIV
potent
ia l 13
Grant Pink
2 B
etter
regulation e
nf
orcement a
nd
networking:
eo-depende
ncy
for th
e globa.l
env
ironment 37
Campbe/1 Gemme/1
3 Connecting cultures: towa rds sustainable networking: key
success factors for environme
nt
al
cooperat
ion across cultu res 59
Esther Janssen
4 The role o f netwo
rk
s in ensuring
compl
iance
and
strengthening
coordi
nation: a co
mp
a ra tive analysis on 1
NECE
ECENA
RE
NA
and
REC
Turkey
68
Zerrin SavaJWI
5 Evaluating a nd assessi ng envir
on
mental enforcement networks:
through use of the
network
evaluation ma
tr
ix 1
05
Grant Pink and
lames
Lehane
PART
II BENEFITS OF NETWORKS
6 Towards a critical analysis of enviro nmenta l enforcement
networks 1
3
Jwnes Lehane
V
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VI
Environmental e1
orcemem
net
wo
r
ks
7
Environment
al enfor
cement
netwo rks: their value proposi tion
dur
ing tim es of red ucing resources and budgets 153
Grant Pink
8 En
vironment
al regula tio n a nd e
nf
orcement
net
wo
rks
op
erati ng
in tandem: a very effective vehicle for
dr
iving eflici
enc
ies and
facil
itating know
ledge exchange
and
transfer 172
Campbelf Gemmelf and Tony Circelfi
9 Countering
tr
a nsnatio na l organized wildl ife crime: regional
and sub
-regional initi
at
ives, global responses
and the
need for
more effective
coor
dina
ti
on 87
Edward van Asclt
I0
Can
superv
ision
and en
for
cement
net
wo
rk
s make
self-regulation
wor
k? 223
J
V a
rtin de Bree, Han de Haas and Paul Meerman
PART Ill THEMATIC NETWORKS
Th
e Lusa ka Agreement T
as
k Force as a mechanism fo r
enforcement
against wildlife crime 239
Emmanuel B. Kasimbazi
2
H untington geogr
ap
hic enforceme
nt
/co
mpliance initia tive: a
case study in mu lti-organisation networ king
and
coll
abor
ation 263
Eugene Lubieniecki
13 The European
Un
ion
For
um of Judges for
the Environmen
t 276
Luc Lavrysen
4 T he Seaport Environmental Security Ne twork : facilitating
international enforcement collaboration to prevent illegal
haz
ardous
waste shipments t
hr
oug
h
ports
289
Danielle Fest Grabiel, Robert George Heiss,
A.feredith Koparova, Debomh Kopsick and Henk Ruessink
PART IV HORIZONTAL NETWORKS
15 North American
working
group on
environmenta
l
e nforcement a nd co mpliance
coo
perat
ion
: mov ing from
capaci ty building to oper
atio
nal activities
Deborah Kopsick and Susan Elizabeth Bromm
305
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ConteJIIs vii
16 Informa l environmenta l networki
ng
: th e EPA Net
work
examp
le 321
William Fawcett
17 Deve l
oping
and sustai ning environmental comp liance and
enforcemen t
networ
ks: lessons learned fr
om
the Internationa l
Netw
o rk on E nviro
nmental Comp
lia nce and
Enforcement
334
Jo
Ge
rardu Meredith Koparova. Kenneth Markowit:
Dunvood
Za
e/ke and Gunnar Baldwin, Jr
18
Environmenta l inspections and
environmental
compliance
assurance networks in
the
con text
of
European Un io n
env ironment policy 350
Miroslav Angelo v and Liam Caslnnan
19 Success and fai
lur
e factors in developing effective
env iron
me
n ta l enforcement networks:
the
case
of
the East
A frica n
Network
for Environmenta l
Compliance
and
Enforcement
377
Gerphas Opondo
PART V VE RTICAL NETWORKS
2
Re
gional env
ir
o
nmental
e
nf
o
rc
eme
nt
netwo rks
in
th
e U nited
States 393
LeRoy Paddock
2 Ghana s efforts at
environmental
enforcement networks:
le
ga l
and inst ituti onal struc tures
41
9
Bem
ad
e
tt
e Araba
dj
ei and Larsey
i vf
ensah
22 Effective
netw
orking, formal versus s
ub
sta ntia l
comp
liance,
co
nflicting powers:
strengths
a
nd
weaknesses o f enviro
nm
enta l
criminal provisions enforcement netwo
rks
in Italy 430
Gra:ia Maria Vagliasindi
23
Domestic environme
nt
al enforcement netwo rks: the pract ice of
China 53
Xinyuan Lu
Hu
Qin and Jrm Yan g
24 E nviro
nment
al enfo rcement networking efforts in C hile:
lessons learnt and challenges
ahead 7
0
Juan Carlos Monckeberg Kay Bergamini and Cristian Perez
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Environmental eJJ orcem
em
networks
25
En
fo rcement of envi
ronmenta
l legislat io n by
the
Belgian po lice 482
Frans Geysels
26 The Flemish
High Counc
il
of Environmental
Enforcement
the
ro
le
of
a n
environme
nta l
enforcement ne
t
work
in a new
coo
rdinated envi ro
nm
ental
enforcement
landscape within
the
Flemish region 2009- 2014 490
Afichae/ Faure and n
Stas
Concluding
and comparative remarks 5 0
i\fichael Faure n
Stas and
P
ete
r De
Smedt
h1dex
525
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nforcemenrnerworks
in ra
ly 447
4. ENVIRONMENTAL MISCOMPLIANCE BY
CORPORATIO
NS
CAUSI
NG
ENVIRONMENTAL,
HEALTH
AND
ECONOMIC
HARM
:
THE
MI
SS IN
G
NETWORK'
AND
CONFLICTI
NG
POWERS
The
te nsion
between
a forma l '
compl
iance'
co
nce
pt
, such as
the one exem
plified in
the
prev
i
ous
section
,
and
a
substantial compliance
concept
,
such
as the o ne seen in
th
e
intense
contro l
and
inves tigative
and
enforceme
nt
activ
ities agai ns t environm
ental
crimes carried
ou
t by po lice fo rces, pros-
ecutors
and
judges,
might
create serious
ne
tworking '
cha ll
enges. A more
detail
ed
d i
sc
ussion of a case can illus
tr
ate the
point.
4.1
The
Ilva Case
The case in th is sense appears pa radigma
tic
(still under judgment), con-
ce
rn
ing
an
Italian
indu
str
ia l
co
mpan
y -
ll
va
S.p.a
.,
expo
r
ting
its
products
t
hr
oughout Europe
and
beyond - and particularly its industria l plant in
T
aranto
.
Apparently the
company
didn ' t comply (a mong
ot
h
er
th ings) with
environmental regulations (main ly
the
IPPC provisions),
causing
ser ious
envi
ronmenta
l
po
llut
ion
(mainly through
the
emissions of polluting
substances into the ai r) wh ich seems to have provok
ed
serious d amage
to human and an im al hea lth, as well
a.s
consequential damage
to other
economic ac tivities in
the
area.
29
On 26 September 20 13 , a press release announced
that
the European
Commission
is
taking action against
It
aly in an effort to reduce the environmental
im
pact of the Tlva steel plant in Taranto; while t he Commission sees recent com
mitments made by the Ita lian authorities to address the situa tion as a positive sign,
it is nevertheless ask ing lta ly to respect its o bliga tions under th e IPPC Directive
and the Environmental Liabi
li
ty Directive; more information is ava
il
able a t http://
europa.eu/rapid/press-release_
lP
- 13- 866_en.htm (accessed 10 October 20 13). On
the various problematic issues raised by the Ilva case, see Gianfranco Amendola,
'La magistra tura e
il
caso
ll
va. Prime ritlessioni ' (2012) Questione Giustizia,
No. 5, 9; Angelo Merlin, 'Caso
llva.lnquinamento
e salute: a lcu
ni
pr
ofili di rischio'
(
201
2) Ambiente Sicurezza, No .
20
, 44; Marina Zalin and Luciano Butti , 'Ca
so
Jlva. Idoneitfa c lcgittimi
tfa
delle nuove disposizio ni dopo la convcrsione del D.L.'
(20 13) Ambiente Sicurczza, No .
2,
80 ; Frances
co
Vigano, ' In questo numero'
(2013) Dirit to penale contemporaneo, No. I, I; Roberto Bin, 'L'IIva e il
so
lda to
Baldini' 20 13) Diritto penale contemporanea, No. I, 5; Alessandro Morelli, '
decreto Jlva: un
dram
ma ti
co
bilanciamento tra principi costituzionali ' (20 13)
D
iri
tto penale contemporanea, No. I,
7;
Angioletta Sperti, 'Aicune riflessioni sui
profili costituziona li del decreto llva ' (20 13) Diritto penale contemporanea , No. I,
12; Giuseppe Arconzo, '
Note
criticbe s
ui
decreto legge ad Ilvam , tra legislazione
8/20/2019 The Ilva Case
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448
Environmental 1 ~ o r c e m e m networ
ks
Th is resul ted in the managers a nd d
ir
ecto rs being a rrested and cha rg
ed
with several crim
es
: not only envi ronm
enta
l ones, but also c
rim
es rela ted
to
hea lth and safe ty in
the wo
rkpl
ace
as well as for
the
crime
se
t
ou
t u nder
Article 434 of the Criminal Code (the
so
-c
alled
'unnamed
disaster
, in th is
case
defin
ed
as
an
·enviro nme
nt
al di
sas
te r ) .
t
al
so
r
es
ul
ted
in the
pr
ecaut
io na ry
se
i
zure
of
seve
r
al
pro
duct
ive a r
eas
of the
industrial
plan t,
wh
i
ch
was issued p ursuan t to Article 321 of th e
Criminal Procedu re Code by the judge for th e prel imina ry inquiry.
T
he se
iz
ur
e or
de
r
ca
used a
se
r
io
us
eco
nomic t
hrea
t
to the co
m
pa
ny
and to the hu
nd
reds of its employees, as th e
se
i
zu
re jud ic ial decree h
ad
excluded the poss
ib
ility o f u
sing
the
concerne
d areas of the plant pend ing
the precautio nary seizure, therefore prec luding the possibili ty of cont inu
ing prod
uct
ive
ac
tivity;
it
h
as to
be r
eca ll
ed
that
a seco
nd
pr
ecau
t
io
nary
seizure was iss ued by the j udge of the preliminary inquiry , this time
conc
e
rn
ing
mat
eri
als
in stock as
they
were
cons
i
der
ed the
prod
uct of the
crim
es .
In order to fa ce the
econom
ic consequences o f the seizure and the strong
prot
e
sts
of
the
e
mploy
ee
s,
30
a
Law
D e
cre
e
was the
n ena
cte
d
by
the
G overnment , a nd la
ter
converted in to Law by the Parlia ment,3
1
intro
du
c
ing both general
an
d ad hoc pr
ovis
ions in order to a ll ow the
in
d ustria l
plant
to c
on
t
inue
operations
,
desp
i
te the
judici
ary
d
ec
ision to seize
the
plant a
nd
to s to p
produc
tion.
provvedimentale, riserva di funzione giurisdiziona le e dovere di repressione e
prcvcnzionc dei rcati' (20 13) Diritto pcnalc contcmporanco, No. I, 16; Domc
ni
co
Pulitano, ' Fra giustizia penale e gestio ne amrninist
ra
tiva:
riOes
sioni a margi
ne
del
caso ILVA'
(2013)
Diritto pcnalc contcmporanco, No. I, 44; Fabio Di Cristina ,
'Gli stabi limenti di interesse s tralegico nazionale e i poteri del Govern o'
(20 13)
G
io
rnale di diritto ammin
is
trativo 369; Marco Cuniberti, '11 D.
L.
s
ull
' ll
va
, tra
conni tti d i
at
t
ri
buzione e
du
bbi di legi
llimi ta
costituzionale' (
20
13) Amb
ie
nle
Sviluppo
205;
Franco Giampietro , '
II
va: da lla sentenza della Sovrana Corte
11 85/2013 al D.L. . 6112013' (2013) A
mbie
le Sv
iluppo 705; Ugo Salan it
ro
,
ll
decreto Ilva tra tu
te
la della salute e salvaguardia dell'occupazione: riflessioni a
margine de
ll
a sentenza de
ll
a Corte cos
ti
tuzionale'
(20 13)
Corr
iere giuridico I
041 ;
Marisa Meli, ' Ambiente, salute, lavoro:
il
caso Ilva' (20 13) Nuove leggi ci
vil
i
commenta te 10 17; G razia Maria Vagliasindi,
Eot
i collettivi e reati
am
bientali
tra rcspoosabi li ta penale c rcsponsabi litil socialc' in Bruno Monta ari (ed.), La
costruzione dell identita europea. Sicure
zz
a collettiva, liberta individuali e mode/li
di
regolazione
so
culle
(vol. I, T
or
ino: Giappiche
ll
i, 20 12), 367.
l l On these pro tests, see Nazareno Dinoi, 'l lva, scalta o sequestro e arresti,
8mila oper
ai
occupa o le vie d i Taranto' Corriere del e=zogiom o (26 Ju ly 20 12)
ava
il
ab le at http://
cor ri
eredelmezzogiorno.co
rri
ere.it (accessed I0 October 20 13) .
Law Decree
3
Decem be r
20 12,
No.
207,
converted (with amendments) into
Law
24
December 20 1
2 No
. 23 1.
8/20/2019 The Ilva Case
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nforcemenr nerworks in aly
449
Law Decree3 Decembcr 20 12,
n.
207, as
co
nverted into Law 24 December
20 12, No. 23 1, estab lishes in general that when a situation of econo
mic
crisis occurs
wit
hin a company
of national
strateg
ic
relevance with more
than two h undred employees (and therefore there being a compelling
need
to
safeg
uard occ
u
pat
io n a nd
production
),
32
the
Min
iste r fo r
the
Environm ent, while revising the
IPP
C permit, may
autho
rise
th
e
industr
ial
plants to continue their econom ic
act
ivities for 36 months , despite the
pre
ca
utionary se izure o rder even tually imposed by a judge. The Law Decr
ee
specifica
ll
y establishes that the
ll
va industrial plan t must be co nsidered of
strategic n
at
ional relevance, it puts Ilva back in possession
of the
seized
goods and it authorises
the
prose
cu
tion of i ts
pro
ducti
on
activiti
es
.
T hese provisio ns seemed to substa ntia lly nullify the effects of the judi
cia l precautionary seizures.
As a consequence of
the
enactmen t and conversion i
nto
Law of the
pre
vio usly ment
ioned
Law
Decree
, a conflict of powe rs challenge
was ra
ised
by the proceeding
prosecutor
agai nst the Government
and
Parl iament;
mo reover the involved Court for
the
re-
examination of
precautionary
measures and
the
judge for tbe prel
iminary
i
nqu
iry challenged the consti
tutional legitim
acy
of the Law Decree, as converted into Law.
The
Constitutio na l Cour t, ca
ll
ed on
to
decide o n bo
th
issues, did no t
ad mit the challenge
of
conflict of powers
33
or the constitut ional legitimacy
one;J.l the latter was also declared partly ungrounded . The Constitutiona l
Court decisions considered, among o
ther
profiles, the
eco
no mic
pr
o
te
c
tion
aims pursued
by
the Government
and
Par
l
iament.
After
th
e Constitu tional Court
decis
io ns, the same ju
dge
fo r the
preliminary
inquiry
ordered
the precaut iona ry seizure (final ised to the
confiscati
on
order of an equiva len t value) of 8 bill ion
euros
(the amo
unt
corre
sponding
to the estim a ted proceeds of the crimes attributed to
the man
agers
a nd
directo
rs of llva) belonging
to
a holding co
rp
o ration
of the Ilva company; at
the
time of
the
seizure th e
company
was managed
by the same persons
who
had managed Ilva at th e time o f the commission
of
th
e facts
con
t
ested
in the llva case.
This
seizure o
rder was
issued
pursuant
to
Legislative Decree 8
June
2001,
3
See Ugo Salanitro, dccrcto Ilva tra tutela della sa lute e sa lvaguardia
dcll 'occupazionc: riflcssio
ni
a marginc dclla scntcnza dclla Cortc costituzionalc'
20 13) Corriere giu ridico t041.
Corte Costituzionalc. ord. 13 February 2013, No. t6; Corte Costituziona le,
ord. 13 February 20 13, No. 17; the decisions are available a t www.pcnaleeontcm
poranco.it (14 February 2003) (acccssed 10 October
20
t3).
Cortc Costituzionalc, 9 May 2013, No. 85, ava ilable at www.pcnalccontcm
poranco .it
9
May
20
1
3)
(accesscd I0 October
20
13
).
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8/20/2019 The Ilva Case
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Enforcemen ne works in Italy
451
institutions
,
the judiciary,
t
he company
and its emp loyees, t
he
civil society
(in
cluding media
) and
other
slakeholders.
The case involves the
enforcement
of many
relevant
legal provisions, in
a framework
where
t
he enforcement
of environmental legislation is strictly
linked
to
the enforcement ofother relevant specific provisions
(s
uch
as
those
on safety
in
workplaces)
as
well
as
of
general
substant
ia l
and
procedu
ral
crimina
l
provisions.
The case a l
so inv
olved the
constitutional rules on
dis
tributio n
of powe
r a
nd
,
moreover
, the
same fundamenta
l
concep
t
of separa
tion ofpowe
rs and the role
of the
ju
dic
iary in
the
area
of
crim in
al
law.
36
More
ove
r, the case shows the need to adequately take
into
consideration
the links
between
environment
al
protection and economic-occupational
in terests when enact ing and
enforcing
(among other
th
ings) envi ronmen
tal provisions,
as
both activities imp ly a deep reflection on
the ba
lance
between
environmental protection,
health
protection
an
d work
safety
protec
t
ion
,
as
well
as
a
stud
y
on
the
balance
between
the above-mentioned
facto rs and
economic
activities and competiti
on
.
Clearly,
dealing
with such a complex, multilevel and
articu
lated case
w
ou
ld require a high level
of
cooperation
and
inf
orma
l networking
among
a ll the interested part ies.
Looking
at
the facts, some significant gaps in networking have occurred,
reaching the level of a
connict
of powers challenge, probably
as
a conse
quence
of
(am
ong othe
r issues) the above-mentioned different
approaches
to the issue of envir
onme
ntal compliance.
These gaps in networking contributed to generating relevant conse
quences: the increased time needed
to
solve the connict; the emergency
(and indeed not thought through
enough)
intr
oduction of provisions
which potentia lly apply
to
future similar
crit
i al situations; the adoption
of
judicial decisions which, with the aims of overcoming the legislative
intervention
and
the Constitutional
Court
decisions, might be interpreted
as partia
ll
y f
orc
ing
if
not the letter at least the rat ionale
of
some normative
provisions,
as
well
as
violating some fundamenta l principles of punitive
Jaw. All these elements do not seem
to
produce positive effects on the
ultimate goal
of
the protection
of
the environment
and
of the other related
interests,
as
well as.
in
a
more
general perspective, on the fundamenta l
principles
of
crimina l Jaw
and
on the same concept
of
separation
of
powers.
' On the latter proliles. sec for instance Domenieo Pulitano. 'Fra gi ustizia
penale e gestione amministrativa: rinession i a margine del
caso
ILVA (2013)
Oiritto penale contemporaneo ,
No.
I, 44; Francesco Vigano, In questo numero'
(2013)
Diritto
penale con temporaneo,
No.
I, I .
8/20/2019 The Ilva Case
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452 nvironmemal enforcement net r s
5. CONCLU
I
NG REMARKS
The analysis
co
nduct
ed
so far demonstrates tha t, despite a
certa
in
in
dif
ference towards
environmenta
l cri
minal
provisions
en
f
or
c
emen
t net
works
from a
co
n
cept
ual a nd
theor
etical perspective, in Italy th ere do exist
relevant examples o f effectiveness
in
net
wo
rking formal and info rm al, at
the
public level, at
the
civil society level
an
d at a mixed p ublic-civil society
level) for the enforcement o f enviro nmenta l criminal
prov
isio ns.
Al
so
, the concep tual importance and practical benefits of netwo rks in
the
specific
fie
ld o f the fight agai
nst
organised
env
ir
onmental
crime was
demonstr
ated .
The stru ct
ur
e, tasks a nd achievement of these netwo rk s depose in the
sense that
the
latter are potent ally effective
models
o f enviro
nm
enta l
enforcement networks.
Nevertheless, these pos iti
ve
examples sti
ll
coexist with
so
me relevant
gaps to be
fi ll
ed when it
co
mes to substant ial
co
mp lia nce, as we
ll
as to
cooperat
ion between powers and authorities wh ich are involved in envi
ronmenta.l enforcemen t T hese pro files migh t con tribu te to creating cha
l-
lenges to environ mental
co
mpliance and enforcement , th er
efore
negatively
affecting
the environmental protection goals ac hievement
and
rela ted
relevan t economic interests and resulting in a substantial breach of the
sa me
funda
menta l
pr
inciple
of
sustainable deve lop
me
nt
as
we
ll
as of
the
relevan t fundamen tal principles of criminal law.
Th is co nclusion ca
ll
s for t he need to foster informa l network ing between
pub lic au
tho
rities
as
well
as
between public authorities and
co
r
pora
t
ions
a nd stakeho lde rs fo r environmental compliance a nd enfo rcement.
Moreover, th e need to adequa tely take into consideration the links
between envi ro nmental protection a nd econom ic-occupational interests
sh
ou
ld not be neglected in the future devel
opment
of environmenta l leg
islation and the related
fo
rma l and info rmal complia nce and enforcement
networks.
Th is seems necessary
to
make f
ur
ther progress in ens
ur
ing a more
effec
ti
ve a
pp
lica tion
of
en
vi
ro
nm
enta l legisla t
io
n, also
thr
ough
a n
etwo
rk
cu lture which can contribute to reaching a greater consistency of approach
in the implement
at
io n, application and enforcem
ent
of environmenta l
legislatio n.