Skip to main content

Context and Systems: Thinking More Broadly About Effectiveness in Strategic Environmental Assessment in China

Environmental Management volume 42, pages 717–733 (2008)Cite this article

Abstract

China is an illustrative—and extreme—case of the difficulties of balancing the pursuit of economic, social, and environmental objectives. In 2003 it adopted a form of Strategic Environmental Assessment (SEA) for its plans and programs (referred to here as PEIA) with the aim of moving towards greater environmental sustainability. The literature has explored primarily the issue of methods and legal procedures. This research contributes to the analysis of PEIA through a different set of interpretative lens. Drawing on recent developments in the theory and practice of SEA, I propose a conceptualization of SEA effectiveness that combines direct and incremental impacts, and a need for context-specific systems as a way to focus on the relationship between assessment, planning, and their context, and thus maximize effectiveness. This framework underpins the analysis of China’s experience, which I explore with the help of interview material and the literature. The result is an evaluation of the strengths and weaknesses of PEIA in terms of its purpose, assessment concept, process, and methods. The detailed analysis of six aspects of the context helps explain the origin of such shortcomings, and identify opportunities for its improvement. I conclude defining elements of a context-specific system for SEA that seeks to maximize the opportunity for incremental, as well as direct, effectiveness in China.

This is a preview of subscription content, access via your institution.

Access options

Buy single article

Instant access to the full article PDF.

USD 39.95

Price excludes VAT (USA)
Tax calculation will be finalised during checkout.

Fig. 1
Fig. 2

References

  • Audouin M, Lochner P (2000) SEA in South Africa—Guideline Document. A report prepared for the Department of Environmental Affairs and Tourism (DEAT), Pretoria

    Google Scholar 

  • Bao C-K, Lu Y-S, Shang J-C (2004) Framework and operational procedure for implementing strategic environmental assessment in China. Environmental Impact Assessment Review 24:27–46

    Article  Google Scholar 

  • Bina O (2007) A critical review of the dominant lines of argumentation on the need for Strategic Environmental Assessment. Environmental Impact Assessment Review 27:585–606

    Article  Google Scholar 

  • Brown A, Thérivel R (2000) Principles to guide the development of strategic environmental assessment methodology. Impact Assessment and Project Appraisal 18:183–189

    Article  Google Scholar 

  • Cannibal GL, Winnard GM (2001) Managing the tragedy: an inter-disciplinary model for managing the environment as inter-acting chaotic hierarchy. Futures 33:147–160

    Article  Google Scholar 

  • Caratti P, Dalkmann H, Jiliberto R (2004) Analytical strategic environmental assessment: towards better decision-making. Edward Elgar Publishing Ltd, Cheltenham

    Google Scholar 

  • CCICED (2005) General Report—Task Force on Economic Growth and Environment. 25 October 2005, Secretariat CCICED

  • Cheng JYS (2007) Challenges and policy programmes of China’s New Leadership. City University of Hong Kong Press, Hong Kong

    Google Scholar 

  • Child J, Lu Y, Tsai S-HT (2007) Institutional entrepreneurship in building an environmental protection system for the People’s Republic of China. Organisation Studies (in press)

  • China Daily (2007) Ecology vital for scientific outlook of development. China Daily http://www.china.org.cn/english/environment/231667.htm (accessed: 14/11/07)

  • Clark R (2000) 15–28 in Partidario MP, Clark R, Perspectives on strategic environmental assessment. Lewis Publishers, London

  • Crawford A, Brown O, Yang V (2006) Growing into risk emerging environment and security issues in China. International Institute for Sustainable Development, Winnipeg, Manitoba (also available at: http://www.iisd.org/publications/pub.aspx?pno = 774 (accessed 15/3/07))

  • Dalal-Clayton B, Sadler B (2005) Strategic environmental assessment: a sourcebook and reference guide to international experience. Earthscan, London

    Google Scholar 

  • Day KA (2005) China’s environment and the challenge of sustainable development. Armonk, New York

    Google Scholar 

  • Dryzek JS (1987) Rational ecology: environment and political economy. Basil Blackwell, New York, NY

    Google Scholar 

  • EC (2005) A sourcebook on strategic environmental assessment of transport infrastructure plans and programmes. A report prepared by BEACON for DG TREN, European Commission, Brussels

  • Economy EC (2004) The river runs black—the environmental challenge to china’s future. a council on foreign relations book. Cornell University Press, Ithaca and London

    Google Scholar 

  • ERM (1998) Handbook on environmental assessment of regional plans and eu structural funds programmes. a report by environmental resources management, prepared for DG environment. European Commission, Brussels (also available at http://europa.eu.int/comm/environment/eia/sea-support.htm)

  • GOV.cn (2006) China to seek public opinion on environmental affairs. Chinese Government’s Official Web Portal http://english.gov.cn/2006-02/22/content_208022.htm (accessed: 22/2/06)

  • Gu L, Sheate W (2005) Institutional challenges for EIA implementation in China: a case study of development versus environmental protection. Environmental Management 36:125–142

    Article  Google Scholar 

  • Hertin J, Turnpenny J, Jordan A, Nilsson M, Russel D, Nykvist B (2007) Rationalising the Policy Mess? Ex ante policy assessment and the utilisation of knowledge in the policy process. FFU report 03/2007, Berlin, available at: http://web.fu-berlin.de/ffu/download/rep_2007_03.pdf.pdf (accessed 5/12/07)

  • Hildén M, Furman E, Kaljonen M (2004) Views on planning and expectations of SEA: the case of transport planning. Environmental Impact Assessment Review 24:519–536

    Article  Google Scholar 

  • Hilding-Rydevik T, Bjarnadóttir H (2007) Implementation context and implications for formulating the aim and effectiveness of SEA. Environmental Impact Assessment Review 27:666–684

    Article  Google Scholar 

  • Hu Jintao (2007) Hold high the great banner of socialism with Chinese characteristics and strive for new victories in building a moderately prosperous society in all respects. China Daily http://www.chinadaily.com.cn/china/2007-10/25/content_6204663.htm (accessed: 25/1/0/07)

  • Hua J (2007) Development Along A Scientific, Harmonious and peaceful path-at the world economic forum annual meeting 2007. http://www.fmprc.gov.cn/eng/zxxx/t292625.htm (accessed: 30/1/07)

  • IAIA (2002) Strategic environmental assessment—Performance Criteria

  • James E, McColl V, Tomlinson P, Fry C (2003) Literature review/scoping study on cumulative effects assessment and the strategic environmental assessment directive. version: final. Centre for Sustainability at TRL Limited, Report prepared for the Environment Agency, Centre for Risk and Forecasting, www.environment-agency.gov.uk/ commondata/103599/cea_final_report_937259.doc (accessed 20/12/06)

  • Jasanoff S, Wynne B (1998) 1–87 in Rayner S, Malone EL, Human choice and climate change: volume one the societal framework. Batelle Press, Columbus, Ohio

  • Jordan A, Greenaway J (1998) Shifting agendas, changing regulatory structures and the “new” politics of environmental pollution: British coastal water policy, 1955–1995. Public Administration 76:669–694

    Article  Google Scholar 

  • Jordan A, Lenschow A (2008) Innovation in environmental policy? Integrating environment for sustainability. Edward Elgar Publishing Ltd, Cheltenham

    Google Scholar 

  • Lindhjem H, Hu T, Ma Z, Skjelvik JM, Song G, Vennemo H, Wu J, Zhang S (2007) Environmental economic impact assessment in China: Problems and prospects. Environmental Impact Assessment Review 27:1–25

    Article  Google Scholar 

  • Liou M-L, Yeh S-C, Yu Y-H (2006) Reconstruction and systematization of the methodologies for strategic environmental assessment in Taiwan. Environmental Impact Assessment Review 26:170–184

    Article  Google Scholar 

  • Liu G (2007) 245–272 in Cheng JYS, Challenges and Policy Programmes of China’s New Leadership. City University of Hong Kong Press, Hong Kong

  • Liu J, Diamond J (2005) China’s environment in a globalizing world. Nature 435:1179–1186

    Article  CAS  Google Scholar 

  • Michalak K (2005) 487–533 in OECD, Governance in China. OECD, Paris

  • NPC (2002) Environmental impact assessment Law of the People’s Republic of China. Adopted at the 30th Meeting of the standing committee of the ninth national people’s congress on October 28, 2002; promulgated by Order No. 77 of the President of the People’s Republic of China. English version provided by ACEE/SEPA (18/10/05),

  • Nykvist B, Nilsson M (submitted) Are Impact Assessment procedures actually promoting sustainable development? Institutional perspectives on barriers and opportunities found in the Swedish committee system. Environmental Impact Assessment Review

  • OECD (2007) Environmental performance review of China. Organisation for Economic Co-operation and Development, Paris

    Google Scholar 

  • OECD, UNDP (2002) Sustainable development strategies—a resource book. Earthscan Publications Ltd, London

    Google Scholar 

  • Owens S, Rayner T, Bina O (2004) New Agendas for Appraisal: reflections on theory, practice and research. Environment and Planning A 36:1943–1959

    Article  Google Scholar 

  • Paavola J (2007) Institutions and environmental governance: a reconceptualization. Ecological Economics 63:93–103

    Article  Google Scholar 

  • Pan Y (2007) Green China and young China (part one) Chinadialogue http://www.chinadialogue.net/article/show/single/en/1167-Green-China-and-young-China-part-one- (accessed: 20/7/07)

  • Pan Y, Zhou J (2006) The rich consume and the poor suffer the pollution. Chinadialogue http://www.chinadialogue.net/article/show/single/en/493–The-rich-consume-and-the-poor-suffer-the-pollution- (accessed 3/11/06)

  • Partidario M (2000) Elements of an SEA framework—improving the added-value of SEA. Environmental Impact Assessment Review 20:647–663

    Article  Google Scholar 

  • Pei M (2006) China’s Trapped Transition—The limits of developmental autocracy. Harvard University Press, Cambridge, Massachusetts

    Google Scholar 

  • People’s Daily (2004) Premier Wen highlights scientific development concept. People’s Daily http://english.people.com.cn/200402/22/eng20040222_135467.shtml (accessed: 22/2/04)

  • Petts J (1999) Handbook of environmental impact assessment. Blackwell Science, Oxford

    Google Scholar 

  • Reuters (2007) China environment official wants action by citizens. Reuters http://www.alertnet.org/thenews/newsdesk/PEK256406.htm (accessed: 30/4/07)

  • Runhaar H, Driessen P (2007) What makes strategic environmental assessment successful environmental assessment? The role of context in the contribution of SEA to decision-making. Impact Assessment and Project Appraisal 25:2–14

    Article  Google Scholar 

  • Sadler B (1996) International study of the effectiveness of environmental assessment. Canadian Environmental Agency/IAIA, Minister of Supply and Services Canada, cat. No.: EN106-37/1996E

  • Sadler B, Verheem R (1996) strategic environmental assessment—status, challenges and future directions. The Hague, ministry of Housing, Spatial Planning and the Environment of The Netherlands

    Google Scholar 

  • Sadler B, Aschermann R, Dusík J, Fischer TB, Partidario M, Verheem R (2008) Handbook of strategic environmental assessment. Earthscan, London

    Google Scholar 

  • SEPA (2003) Technical guidance for environmental impact assessment for plans & programs (Interim). SEPA (English verision, 11 August 2003), Beijing. Available in Chinese at: http://www.sepa.gov.cn/info/gw/huangfa/200308/t20030801_86602.htm

  • Sheate W, Dagg S, Richardson J, Aschermann R, Palerm J, Steen U (2001) SEA and integration of the environment into strategic decision-making. Volume 1 (Main Report). Final Report to the European Commission, 1 May 2001. Published on the web [http://europa.eu.int/comm/environment/eia/sea-support.htm (07/09/01)]

  • Sheate W, Partidario M, Byron H, Bina O, Dagg S (2007) Sustainability assessment of future scenarios: methodology and application to mountain areas of Europe. Environmental Management, available online

  • Tao T, Tan Z, He X (2007) Integrating environment into land-use planning through strategic environmental assessment in China: Towards legal frameworks and operational procedures. Environmental Impact Assessment Review 27:243–265

    Article  Google Scholar 

  • Torres RT, Preskill H (2001) Evaluation and organisational learning: past, present, and future. American Journal of Evaluation 22:387–395

    Google Scholar 

  • Thérivel R, Wilson E, Thompson S, Heany D, Pritchard D (1992) Strategic environmental assessment. Earthscan Publications Ltd, London

    Google Scholar 

  • UNCED (1992) Agenda 21. United Nations General Assembly [http://wwwunorg/esa/sustdev/agenda21texthtm 13/12/02], New York

  • Vicente G, Partidario M (2006) SEA—enhancing communication for better environmental decisions. Environmental Impact Assessment Review 26:696–706

    Article  Google Scholar 

  • Wallington T, Bina O, Thissen W (2007) theorising strategic environmental assessment: fresh perspectives and future challenges. Environmental Impact Assessment Review 27:569–584

    Article  Google Scholar 

  • Wang Y, Morgan RK, Cashmore M (2003) Environmental impact assessment of projects in the People’s Republic of China: new law, old problems. Environmental Impact Assessment Review 23:543–579

    Article  Google Scholar 

  • WCED (1987) Our common future. Oxford University Press

  • World Bank (1997) Clear water, Blue skies: China’s environment in the new century. Background paper for china 2020 Study. World Bank, Washington, DC

    Google Scholar 

  • World Bank (2005) Integratingenvironmental considerations in policy formulation—lessons from policy-based SEA experience. Environment Department, World Bank, Washington, DC

    Google Scholar 

  • Worldwatch Institute (2006) State of the World 2006: special focus: China and India. The Worldwatch Institute, Washington DC

    Google Scholar 

  • Xie C (2007) Calls for public to help stop pollution. China Daily http://www.chinadaily.com.cn/china/2007-04/02/content_841159.htm (accessed: 18/4/07)

  • Xinhua (2006) Efficiency overtakes speed as primary goal. Xinhua Online http://news.xinhuanet.com/english/2006-12/03/content_5428169.htm (accessed: 14/01/07)

  • Xinhua (2006) China drafts law on circular economy. People’s Daily http://english.people.com.cn/200611/16/eng20061116_321892.html (accessed: 6/11/06)

  • Xiuzhen C, Jincheng S, Jinhu W (2002) Strategic environmental assessment and its development in China. Environmental Impact Assessment Review 22:101–109

    Article  Google Scholar 

  • Zhu D, Ru J (2007) Strategic environmental assessment in China: Motivations, politics, and effectiveness. Journal of Environmental Management, online version

Download references

Acknowledgments

I gratefully acknowledge the support of the Portuguese Fundação para a Ciência e a Tecnologia and the Chinese University of Hong Kong for Visiting Scholar status in 2007. I would like to thank Andrea Ricci for his insightful comments, as well as the three anonymous reviewers for their many useful suggestions. Any shortcomings remain my own responsibility.

Author information

Authors and Affiliations

  1. Centro de Filosofia, Faculdade de Letras, Universidade de Lisboa, Alameda da Universidade, 1600-214, Lisboa, Portugal

    Olivia Bina

  2. Centre of Urban and Regional Systems, Instituto Superior Técnico, Lisboa, Portugal

    Olivia Bina

  3. Geography and Resource Management, The Chinese University of Hong Kong, Shatin, Hong Kong, SAR, People’s Republic of China

    Olivia Bina

Authors
  1. Olivia Bina
    View author publications

    You can also search for this author in PubMed Google Scholar

Corresponding author

Correspondence to Olivia Bina.

Rights and permissions

Reprints and Permissions

About this article

Cite this article

Bina, O. Context and Systems: Thinking More Broadly About Effectiveness in Strategic Environmental Assessment in China. Environmental Management 42, 717–733 (2008). https://doi.org/10.1007/s00267-008-9123-5

Download citation

  • Received:

  • Revised:

  • Accepted:

  • Published:

  • Issue Date:

  • DOI: https://doi.org/10.1007/s00267-008-9123-5

Keywords

  • Strategic Environmental Assessment
  • Effectiveness
  • System
  • Context
  • Purpose
  • Strategy
  • China