By Dr. Kariuki Muigua, PhD (Leading Environmental Law Scholar, Policy Advisor, Natural Resources Lawyer and Dispute Resolution Expert from Kenya), Winner of Kenya’s ADR Practitioner of the Year 2021, ADR Publication of the Year 2021 and CIArb (Kenya) Lifetime Achievement Award 2021*
Introduction
Strategic Environmental Assessment (SEA) has been hailed as a key means of integrating environmental and social considerations into policies, plans and programs, particularly in sector decision-making and reform, and the World has even demonstrated its commitment to promoting the use of SEA as a tool for sustainable development. Notably, since the inception of SEA in the early 1990s, it has globally received adoption for environmental assessment of strategic decisions – Policies, Plans and Programs, (PPPs). However, one of the contentious issues in SEA amongst environmental law scholars is whether it should be founded in legislation or left as a non-statutory administrative tool. Despite this lack of common ground on the legal status of SEA, many developed and developing countries have either national legislative or other provisions for SEA, e.g. statutory instruments, cabinet and ministerial decisions, circulars and advice notes.
It is also noteworthy that increasingly, developing countries are introducing legislation or regulations to undertake SEA – sometimes in EIA laws and sometimes in natural resource or sectors laws and regulations. This development illustrates the fact that SEA has become an important part of both international and domestic legal framework on environmental management. This paper examines the legal aspects of SEA and environmental management and highlights the prominent provisions from both international and domestic environmental law framework.
Strategic Environmental Assessment- A Definition
One of the conceptual definitions of SEA is a process directed at providing the proponent (during policy formulation) and the decision-maker (at the point of policy approval) with a holistic understanding of the environmental and social implications of the policy proposal, expanding the focus well beyond the issues that were the original driving force for new policy. The Protocol on Strategic Environmental Assessment to the Convention on Environmental Impact Assessment in a Transboundary Context defines strategic environmental assessment to mean the evaluation of the likely environmental, including health, effects, which comprises the determination of the scope of an environmental report and its preparation, the carrying out of public participation and consultations, and the taking into account of the environmental report and the results of the public participation and consultations in a plan or programme. Thus, it may be said that Strategic environment assessment is all about ensuring that public policy, programmes and plans are compliant with sound environmental management.
Locating Strategic Environmental Assessment Within the Environmental Assessment Continuum
Environmental Impact Assessment (EIA) is one of the tools for environmental management, a procedure for evaluating the likely impact of a proposed activity on the environment. Its object is to provide decision-makers with information about the possible effects of a project before authorizing it to proceed.8 It can be defined as a process which produces a written statement to be used to guide decision-making, which provides decision makers with information on the environmental consequences of proposed activities, programmes, policies and their alternatives; requires decisions to be influenced by that information and ensures participation of potentially affected persons in the decision-making process.
The need for EIA was succinctly expressed in Principle 17 of the 1992 Rio Declaration on Environment and Development which affords the strongest evidence of international support for EIA in the following terms; Environmental impact assessment, as a national instrument, shall be undertaken for proposed activities that are likely to have a significant impact on the environment and are subject to a decision of a competent authority. It has been argued that since policies, plans and programmes (PPPs) are more “strategic” as they determine the general direction or approach to be followed towards broad goals, SEA is applied to these more strategic levels while Environmental Impact Assessment (EIA) is used on projects that put PPPs into tangible effect.
Strategic environmental assessment (SEA) is undertaken much earlier in the decision-making process than project environmental impact assessment (EIA). However, SEA is not a substitute for EIA or other forms of environmental assessment, and should be seen as a complementary process and one of the integral parts of a comprehensive environmental assessment tool box. In the Gabcikovo-Nagymaros Case it had been alleged that an adequate EIA had not been carried out before proceeding with a hydro-electric project. The Court’s view was that EIA is a continuum which will operate throughout the life of a project. Thus, whereas EIA concerns itself with the biophysical impacts of proposals only (e.g. effects on air, water, flora and fauna, noise levels, climate etc), SEA and integrated impact assessment analyze a range of impact types including social, health and economic aspects.
Need for Strategic Environmental Assessment
SEA is believed to provide the potential to incorporate new objectives and constraints in policy formulation, the substitution of alternative objectives, policy instruments and implementation strategies, and the identification, clarification and resolution of conflicts, compromises and interlinkages. Further, it provides an opportunity to internalize externalities often not adequately considered in much sectoral policy formulation and decision-making. Thus, the intention of SEA is moving policy (and PPP generally) towards sustainable outcomes. Overall, it is arguable that the main rationale for applying SEA is to help create a better environment through informed and sustainable decision making. Further, SEA helps to ensure that many of the environmental issues of global importance are considered in policies, plans and programmes at different administrative levels (i.e. national, regional, local).
While strategic environmental assessment can be a powerful tool for fostering progress towards sustainability, effective implementation involves confronting a set of substantial challenges. It has been observed that an important reason for applying SEA is the expectation that if socioeconomic and environmental effects are properly considered on top of the decision making hierarchy in a publicly accountable fashion, there should be less friction and fewer problems at decision making levels further down the decision making hierarchy. There is a need to ensure that SEA is not just an option in development policies, plans and programmes but is mandatory. Capturing SEA requirements and clearly defining what it entails, as demonstrated in both international and national frameworks discussed in the previous section will ensure that the public does not get shortchanged or they are not placed in harm’s way by the relevant authorities through negligence.
*This is article is an extract from an article by Dr. Kariuki Muigua, PhD, Kenya’s ADR Practitioner of the Year 2021 (Nairobi Legal Awards) and Lifetime Achievement Award 2021 (CIArb Kenya): Muigua, K., Legal Aspects of Strategic Environmental Assessment and Environmental Management, Available at: http://kmco.co.ke/wp-content/uploads/ 2018/08/Legal-Aspects-of-SEA-and-Environmental-Management-3RD-December-2016. pdf. Dr. Kariuki Muigua is Kenya’s foremost Environmental Law and Natural Resources Lawyer and Scholar, Sustainable Development Advocate and Conflict Management Expert. Dr. Kariuki Muigua is a Senior Lecturer of Environmental Law and Dispute resolution at the University of Nairobi School of Law and The Center for Advanced Studies in Environmental Law and Policy (CASELAP). He has published numerous books and articles on Environmental Law, Environmental Justice Conflict Management, Alternative Dispute Resolution and Sustainable Development. Dr. Muigua is also a Chartered Arbitrator, an Accredited Mediator, the Africa Trustee of the Chartered Institute of Arbitrators and the Managing Partner of Kariuki Muigua & Co. Advocates. Dr. Muigua is recognized as one of the leading lawyers and dispute resolution experts by the Chambers Global Guide 2021.
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