STRATEGIC ENVIRONMENTAL ASSESSMENT AS A TOOL FOR SUSTAINABLE DEVELOPMENT IN HONG KONG

Abstract

Hong Kong is one of the first few countries to implement strategic environmental assessment (SEA) to major plans and proposals and the conduct of SUSDEV 21 clearly demonstrates the government's commitment towards environmental protection and achieving the goal of sustainable development. SEA has provided decision-makers with information of environment impacts resulting from proposed plans or programs and has resulted in greater accountability and transparency in the decision-making process. SEA has also helped to increase environmental awareness of various governmental departments. SEA models for assessing developmental impacts on air, noise and water quality have been developed to aid in SEA application. Public participation takes place at various stages of the SEA process and has helped to increase public environmental awareness and involvement. However, application of SEA in Hong Kong has notable limitations and difficulties. Generally, Hong Kong lacks a comprehensive overall strategic planning policy for the environment. Different departments often have conflicting interests when facing development decisions. SEA in Hong Kong is primarily used as a planning tool to evaluate the environmental implications of development plans or strategies, but is seldom applied to major policies and programs. Hence, most SEA studies are development led and mainly look for new development areas instead of placing conservation value on important habitats and natural resources. Another limitation is that current land use plans and transportation strategies already in force will largely determine the pattern of development in the near future. The lack of knowledge of Hong Kong's own environmental resource base has resulted in projects with adverse impacts on high ecological value areas being implemented without knowledge of the impacts. Furthermore, the intrinsic value of the natural environment and cultural heritage is subjective and is often underestimated or neglected. The indirect impacts caused by proposed developments may be unforeseeable during the time of assessment. Rapid population growth, rapid urbanisation, increasing unemployment rates coupled with a historic lack of planning controls, low public awareness, inherent conflicts between different government departments, and vested interests in economic development have been major obstacles to achieving environmental and social sustainability. There is a need for a comprehensive overall strategic planning for the environment Environmental objectives should be clearly stated in all development proposals. Effective SEA can take place, either through enforcement by a legal system or management of the process by an competent official body with sufficient power. There should be close interaction between relevant planning authorities, the environmental protection department and other relevant parties. Guidelines developed by the International Association for Impact Assessment (IAIA) should be closely followed to maintaiin a high standard of SEA processs.The public participation element of the process should also be strengthened and early publi iwolvement is encouraged. There should be a review of the need to conduct an SEA whenever there is a material change in a development strategy. SEA application should move beyond sectoral approach, to look at ways in which development decisions can not only prevent environmental damage, but positively enhance natural resources. A comprehensive database for territory-wide evaluatiorcf conservation value should be developed. Environmental baseline conditions should be established and the carrying capacity of natural ecosystems shouild be quantified. The stage of recovery of habitat compensation and restoration projects shouild be assessed in the environrrrtal monitoring and audit (EM&A) programs. Outputs from EM&A programs and baseline ennnmental condition studies should serve as input for future environmental assessment proceses for continuous improvements. A valuation system to place a monetary value to the natur environment and cultural heritage should be developed. External costs of pollution to the society should be internalised. A precautionary approach should be adopted, especially when there are threats of serious or irreversible damage to the environment. Sustainable development involves environmental, social an economic sustainability and values of these elements should be balanced and none should be sacrificed for another. SEA is not a means to obstruct development, but should be used integraid with the decision-making process. Nevertheless, the obvious economic gains of development proposals often mask the intrinsic value of the natural environment and cultural heritage, and lis is particularly true for Hong Kong. The government has the ultimate power to weigh the relativ importance of the three elements of sustainability, and may oir may not arrive at a decision tht is the best option for sustainable development. It is admirable that the government has taken positive steps in this direction, and it is hoped that the government will have the foresight and tnacity to create a more sustainable development framework for Hong Kong into the future.