SEA of hydropower on mainstream Mekong River 1 - ICEM · ICEM and MRC - SEA of hydropower on...

1. PURPOSE OF THE SEA

2. WHAT IS AN SEA?

3. SEA SYSTEMS IN THE REGION

4. THE “PLAN” THE SEA IS ASSESSING

5. THE SEA APPROACH

6. INITIAL REVIEW OF KEY ISSUES

MRC SEA of hydropower on mainstream Mekong

ICEM and MRC - SEA of hydropower on mainstream Mekong River 1

Jeremy Carew-Reid, Team Leader

SEA purpose, objectives and outputs

Aims of the SEA2

ICEM and MRC - SEA of hydropower on mainstream Mekong

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Purpose of the SEA


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Identify the potential opportunities and risks as well

as contribution of hydropower to regional

development by assessing:

mainstream Mekong hydropower development

strategies,

the regional distribution of costs and benefits with

respect to economic development, social equity and

environmental protection.

Objectives of the SEA


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Hydropower focus:

1. Provide an understanding of the implications of mainstream hydropower development

2. Provide specific policy-level recommendations to support decisions on whether and how those hydropower projects should best be pursued;

3. Provide an initial baseline and assessment framework for individual mainstream project EIAs, thereby supporting the Procedures for Notification, Prior Consultation and Agreement

SEA as a tool in development planning:

1. Serve as a methodological framework for sub-basin hydropower SEAs in the LMB, which will be carried out as input to MRC’s Basin Development Plan; and

2. Include capacity building to strengthen the respective analytical SEA capabilities in the concerned line agencies of the MRC Member States.

SEA expected outputs


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A comprehensive SEA of mainstream hydropower development in the LMB including:

1. Specific recommendations supporting decisions relating to mainstream development plans

2. Environmental safeguards and mitigation measures linked to hydropower planning in the LMB

3. Recommendations for institutional and policy reform

4. Recommendation for improving the guidelines for SEA in the hydropower sector

5. A set of tools and a database for future SEAs in the hydropower sector

6. Enhanced capacity for conducting SEAs

The main characteristics of strategic

environmental assessment as a development

planning tool

What is an SEA?6


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Limitation of EIA as a development planning

tool


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Come late in the planning process

Site specific

Project specific (often “sub-project” specific) dealing separately with, eg: Dam and reservoir

Transmission lines

Roads

Resettlement areas

Limited consideration of economic and social issues

Limited consideration of alternatives (eg sites)

Limited consideration of cumulative impacts with other sectors

No long term analysis of impacts (forecasting)

What is an SEA?


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Can follow similar steps to EIA but have much larger boundaries in terms of time, space and subject coverage

Identify and assess the strategic trade offs between sectors and areas (eg between provinces or countries)

Act to integrate environmental, social and economic dimensions of sustainability

Include assessment of cumulative impacts of many projects within a plan

Define approaches for managing the strategic trade offs and issues relating to development options

Serve as an umbrella level of analysis that shapes more specific SEAs and EIAs and improves their quality

SEA is...


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An analytical and participatory approach

that aims to integrate environmental considerationsinto policies and plans

and evaluate inter linkages with economic and social considerations.

SEA can…


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Evaluate

(i) an existing plan (to improve environmental performance in on-going implementation) or

(ii) an existing plan which is to be revised

or

(iii) Contribute to preparing a new plan (so that it addresses environmental concerns as the plan takes shape).

SEA of plans


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Sector or

spatial policies

and planning

levels

Basin , national or

sector

policies and plans

Project proposals Project level CIA of

cascades

SEA provides common

baseline for CIAs and

EIAs

EIAs of

projects

SEA may have different forms


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It may:

focus (i) only on environmental impacts or (ii)

integrate environmental, social and economic

dimensions of sustainability;

engage (i) a broad range of stakeholders or (ii) be

limited to expert evaluation;

be conducted (i) in a short time frame or (ii) over a

long period;

SEA is best….


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carried out as part of “the plan” formulation

based on quick appraisal techniques

It is much less effective as:

a “stand alone” procedure

a “mega-EIA”

SEA systems in the region14


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SEA in China


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SEA to be applied to

land use plans and plans for regions, river basins and sea areas plans prepared by ten main development sectors -industry, agriculture, animal husbandry, forestry, energy, water, conservation, transportation, urban construction, tourism and natural resources development.

A draft plan without an SEA cannot be approved and implemented.

Projects under plans cannot proceed without an SEA of the plan

China, 37 SEAs have been conducted at national level and more than 100 at local government level.

SEA in Vietnam


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Strong legal basis for SEA of strategies and plans (not policies)

Shifts responsibility to plan “owners”

An open process with stakeholder involvement

Extensive program of piloting SEAs – 6 at national level and some 20 at local level.

Vietnam’s SEA – similar to “sustainability analysis” – it covers environmental, social and economic affects

Hydropower the focus of three most comprehensive SEAs under the new legal framework

Vietnam


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SEA for 6 categories of strategies and plans:

1. National socio-economic development

2. Sector development (each central govt. agency)

3. Provinces and cities

4. Inter-provincial (regional) – land use, forest protection and development, natural resource development

5. Key economic regions

6. River basins

SEA in other LMB countries


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Thailand: SEA guidelines and policy commitment –moving to legislation. Piloting SEA.

Cambodia: No formal requirement for SEA.

Pilot SEA of the national tourism development strategy

Laos: No formal requirement for SEA.

SEA of the national hydropower plan in Lao PDR, with a focus on the Nam Thuen II Hydropower Project.

The project EIA was a cumulative, area-wide assessment on a regional scale but could not address many of the wider strategic concerns associated with the project.

Mekong regional SEAs


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Only three at regional level (on-going):

I. the GMS NSEC SAP and

II. the MRC hydro on mainstream Mekong

III. The MRC three “Ss” cumulative assessment

ADB GMS Power Trade RETA to recommend two

pilot SEAs for two river basins in the region

ADB EOC to conduct SEA of EWEC

MRC BDB scenario assessment – similar to an SEA?

All SEAs are linked to a “plan” or policy

The “plan” the SEA is assessing20


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Mekong region development planning

“system”21

GMS economic sector planning (3 year cycle)

Project planning

BDP integrated spatial planning

National planning

Local government planning

Some “regional planning”

Key characteristics of planning system

Project and investment driven

Far reaching multiplier and cumulative

effects

Piecemeal environmental assessment

Little spatial or integrated planning

Not transparent or inclusive

Candidate “plans” as the SEA focus


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1. GMS energy road map

2. Basin Development Plan

3. The 4 national power development plans

4. The 8 & 11 existing and planned

mainstream projects in Yunnan

Province, Lao PDR and Cambodia

Dams on the

mainstream Mekong

Upper Mekong – 8

existing or planned

Lower Mekong – 11

planned

Dams on Mekong

Tributaries

Existing and planned –

94 (only hydro dams –

does not include

irrigation dams

ICEM and MRC - SEA of hydropower on mainstream Mekong River

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DevelopersDam Developer Country

Pak Beng Datang International Power Generation China

Louangprabang Petrovietnam Power Corporation Vietnam

Xayabouly SEAN & Ch. Karnchang Public Co Ltd Thailand

Pak Lay CEIEC and Sino-Hydro China

Sanakham Datang International Power Generation China

Pakchom N/a

Ban Koum Italian Thai Asia Corp. Holdings Thailand

Latsua Charoen Energy and Water Asia Co Ltd Thailand

Don Sahong Mega First Malaysia

Stung Treng Open Joint Stock Co. Bureyagessttroy Russian

Sambor China Southern Power Grid China

Status

Dam Status Environmental study status Commission date

Pak Beng MoU, feasibility IEE submitted 2016

Louangprabang MoU, feasibility Feasibility study, 2016

Xayabouly MoU, feasibility Feasibility and full ESIA submitted 2016

Pak Lay MoU, feasibility IEE submitted 2016

Sangkham MoU, feasibility Not yet 2016

Pakchom Master Plan Not yet 2017

Ban Koum MoU, feasibility Not yet 2017

Latsua MoU, pre-feasibility Pre-feasibility study submitted 2018

Don Sahong MoU, detailed planning

Full EIA submitted, Additional studies requested

2013

Stung Treng MoU, pre-feasibility Not yet N/a

Sambor MoU, pre-feasibility Pre-feasibility submitted 2020

Statistics about the dams

Project Name

Rated

Head

m

Plant

Design

Dischar

ge

m3/s

Installed

Capacity

MW

Peaking

Capability

MW

Mean

Annual

Energy

GWh

Firm

Annual

Energy

GWh

Pakbeng 31 7,250 1,230 1,230 5,517 4,073

Luangprabang 40 3,812 1,410 1,412 5,437 4,205

Xayabuly 24 6,018 1,260 1,260 6,035 5,139

Paklay 26 4,500 1,320 1,320 6,460 4,252

Sanakham 25 5,918 1,200 1,200 5,015 3,978

Pakchom 22 5,720 1,079 1,079 5,318 5,052

Ban Kum 19 11,700 1,872 1,872 8,434 8,012

Latsua 10 9,600 800 800 3,504 2,452

Don Sahong 17 2,400 360 360 2,375 1,989

Stung Treng 15 18,493 980 591 4,870 2,937

Sambor 33 17,668 2,600 2,030 11,740 9,150

TOTAL 14,111 64,706 51,239

Statistics about the dams

Project Name Full

Supply

Levelmamsl

Low

Supply

Levelmamsl

Live

Storage

mcm

Reservoir areasq km

Pakbeng 345 339 442 87

Luangprabang 310 300 734 90

Xayabuly 275 270 225 49

Paklay 250 247 384 108

Sanakham 215 210 106 81

Pakchom 192 190 12 68

Ban Kum 115 115 0 40

Latsua 100 100 0 13

Don Sahong 75 72 115 290 ha

Stung Treng 55 50 70 211

Sambor 40 39 465 620

TOTAL 1367

Dimensions (these details are changing as design proceeds)

Dam Length of dam (m) Height (m) Reservoir area

(sq.km)

Pak Beng 943 76 87

Louang Prabang 1,106 68 90

Xayabouly 810 32 49

Pak Lay 630 35 108

Sanakham 1,144 38 81

Pakchom 1,200 55 68

Ban Koum 780 53 40

Latsua n/a na 13

Don Sahong 1820-720-2730 10.6-8.2-8.3 290 ha

Stung Treng 10,884 22 211

Sambor 18,002 56 620

Dam Revised estimates

Pak Beng 6,694

Louangprabang 17,700

Xayabouly 2,151

Pak Lay 18,000

Sanakham 12,950

Pakchom N/a

Ban Koum 2,570

Latsua N/a

Don Sahong 66

Stung Treng 9,160

Sambor 19,034

TOTAL 88,325

People to be resettled

No estimates yet of

downstream affected

people

Pak Beng

Proposed dam at

Pak Beng

FSL = 345 masl

MDL = 339 masl

Area = 86.51

Length = 130 –

145 km


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Luangprabang

Xayaboury

Proposed dam at

Xayaboury

FSL = 275 masl

MDL = 270 masl

Area = 49 sq.km

Extends 150km to

Louangprabang


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Pakchom

Sankham

Paklay

Cambodia

1. Stung Treng

2. Sambor

Flatter topography

Reservoirs extend beyond the river channel

Characteristics and opportunities for

the SEA to held shape development35

The SEA is not being conducted as a formal requirement within a legal framework -- but it is supported by the MRC member countries

It is not addressing an existing plan or one in preparation but a group of “feasible” project proposals for the same river

The projects are all in the planning stages so, in principle remain open to influence

Most of the projects have not been subject to EIAs or any form of cumulative impact assessment so those more specific studies are open to influence

A broad development plan for the LMB (the BDP) is under preparation so is open to influence

National power development plans are under review and preparation therefore open to influence

The GMS energy road map and strategy is regularly reviewed and therefore open to influence

The main steps in the SEA of mainstream

hydropower

SEA approach36


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Steps in the SEA


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1. Scoping

1. Identification of key issues for development of the river basin

2. Scoping of key issues to define the strategic issues of concern

3. Defining the sustainability objectives for the SEA

2. Baseline assessment and trend analysis

1. Gathering of the “evidence base” in each country

2. Analysis of past trends and current situation in the key development issues

Steps in the SEA


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3. Risk (impact) assessment

1. Defining the scenarios to be assessed

Without hydropower development

With hydropower development

2. Defining future trends in the key issues under each scenario

3. Assessing the combined/cumulative effects of future trends in the key issues under each scenario

4. Valuation of risks and development options

4. Avoidance, enhancement and mitigation

1. Identifying avoidance, enhancement and mitigation measures

1. SEA scoping phase


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The SEA scoping phase is to establish:

Temporal and spatial boundaries

Institutional and planning context

Issue coverage

The nature and extent of stakeholder

participation

Identification of a limited number of key

strategic issues

2. Baseline

Assessment

3. Impact

Assessment

1.

Sco

pin

g

Regional baseline assessment workshop


40

The SEA process for mainstream developments

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Scoping (May to July):SEA objectives, baseline assessment ,

sustainability objectives, key issues

definition & Additional studies

Baseline Assessment &

Trend Analysis (July to

Sept): Analysis of past trends and

current situation in the key

development issues

Opportunities and Risk

Assessment (Oct to Dec): future trend analysis (with & without

Hydropower), Assessing the combined

effects on future trends in the key

issues, Valuation of risks and

development options

Avoidance, enhancement

and mitigation (Dec to

March) Identifying avoidance,

enhancement and mitigation measures

SEA STAGES

Communications & Consultation Plans

National Scoping Workshops &

Capacity Building Sessions

CONSULATION

Regional Scoping Workshop

Regional Baseline Assessment

Workshop & Cambodian Field

Mission

Regional Impacts Assessment

Workshop & Thailand Field Mission

Regional Multi-stakeholder

Workshop

Regional Mitigation Workshop &

Vietnam Field Mission

Inception

Report

Trend

analysis

and

additional

study

reports

Initial Draft

SEA

Final Draft

SEA

Final SEA Report

MOUs

IEE process

Feasibility

studies

EIA process

Project

development

agreement s

(PDA and

PPA)

Prefeasibility

studies

DEVELOPMENT

PLANNING STEPS

DATE MEETING LOCATION SEA STAGE

NATIONAL CONSULTATIONS Viet Nam Scoping Phase JUNE – JULY

SCOPING

JUNE 29-01 July

VN Government line agency meetings Ha Noi

JULY 02 VN National Workshop Ha Noi Lao PDR

JULY 06-07

LAO Government line agency meetings Vientiane

08-09 LAO National Workshop

09 LAO Civil Society meeting

10-11 LAO Field Mission: Xayabouly, Luang Prabang

Cambodia

JULY 14-15

KH Government line agency meetings Phnom Penh

16-17 KH National Workshop

17 KH Civil Society meeting

18-19 KH Field Mission Stung Treng, Sambor

Thailand

AUG 4-5 THAI Government line agency meetings Bangkok

6-7 THAI National Workshop

REGIONAL CONSULTATIONS

Cambodia Baseline Assessment Phase AUG – OCT BASELINE

ASSESSMENT

SEPT 14-15 Cambodian Government Department Meetings Phnom Penh

17-18 Regional Baseline Assessment Workshop

Thailand Impacts Assessment Phase OCT – DEC

IMPACT

ASSESSMENT

DEC 3-4 Thai Government Department Meetings Bangkok

5-6 Thai Field Mission: Ban Koum Ban Koum

7-8 Regional Impacts Assessment Workshop Bangkok

Lao PDR

DEC 15 Regional Multistakeholder Workshop Vientiane

16-17 Lao Regional Field Mission: Luong Prabang

Viet Nam Avoidance, Enhancement & Mitigation Assessment Phase JAN - MAR

MITIGATION

JAN 4 Vietnamese Government Department Meetings

5-6 Regional Mitigation Workshop Can Tho

7-8 Viet Nam Field Mission Mekong Delta


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MRC SEA on Mekong mainstream hydropower

Initial review of issues43


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Initial scoping phase activities


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In April to May initial scoping involved:

1. Initial consultations on scope and key strategic issues

2. Surveying baseline data availability and gap analysis on legal and policy framework

3. Scoping MRC inputs to the SEA

4. Proposing approaches to communication and stakeholder involvement

5. Preparing an issues background paper

MRC Mandate


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Development on the Mekong mainstream is the sovereign decision of the individual governments within the framework of the Mekong Agreement (1995)

National decisions are subject to

National planning & regulatory processes

All riparian nations require EIAs of projects

Vietnam requires SEAs of plans

Some decisions require prior notification under the MRC Prior Notification, Prior Consultation Agreement (PNPCA)

MRC has a role in initiating and facilitating discussions among Member Countries

Regional Issues


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1. Transboundary decision making processes

2. Existing national capacities to manage the projects

3. Cumulative effects of many projects

4. River’s ecology and resource values

5. Uncertainty of power demand

6. Alternative generation sources

1. Decision making processes


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1. New tools are needed to deal with transboundary

impacts:

What is the role & scope of MRC processes

What is the extent of transboundary influence over national

decision making

2. Mainstream dams present a significant test to the

effectiveness of:

MRC process of prior notification

MRC influence on decision-making systems

2. Existing national capacities


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1. National capacity and regulatory framework for managing complex hydro projects needs to be stronger, eg

implementation of social and environmental assessment and mitigation

Coordination and integration of multiple dam operations

2. In this context, particularly important that SEA :

Supports national planning processes,

Effectively involves regulatory authorities

3. Cumulative effects


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1. All countries concerned about cumulative effects of

several dams in cascades

2. Present process of feasibility studies & impact

assessment does not account for cumulative impacts

This view was shared by some of the regulatory authorities

3. Need for the SEA to provide a clear, transparent

evidence-based assessment of these potential

cumulative impacts

4. River’s ecology and resource

values


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1. Acknowledged by all as important, especially:

fish habitats, stocks and migration

livelihoods of fish-dependent communities

2. Some worried that the focus on fisheries could

result in other important social & environmental

issues being neglected, eg:

Nutrient & sediment flows

Terrestrial ecosystems including agriculture

River bank and bed erosion

5. Power demand


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1. Area of great uncertainty in the short-medium

term

2. Important consideration for financial viability of

dams and investment returns

3. Need a comprehensive & credible future regional

power demand projection for the SEA

6. Alternative generation sources


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1. Alternative power generation needs

comprehensive assessment

consensus on this point amongst government & civil-

society

2. No consensus on whether or not alternative sources

could replace mainstream power

Can the SEA provide some clarity on this issue?

Is it within the scope of the assessment ?

Regional summary (1)


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Hydropower is a complex development with a wide range of issues considered to be strategically significant for the LMB

1. Mainstream Mekong dam construction is the:

i. most significant issue facing the river basin in contemporary times

ii. most challenging issue that MRC needs to address for the foreseeable future

need to „get it right’ because of the irreversible nature of dam impacts

2. Wide range of issues are considered to be of strategic significance

Regional summary (2)


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1. Strong emphasis given by all countries on:

impacts on affected livelihoods

likely ecosystems changes

2. The need for better analysis

acceptance of the need for a process like the SEA

3. Need to effectively integrate social &

environmental concerns into hydropower planning

National issues


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Cambodia

Lao PDR

Thailand

Viet Nam

CAMBODIA: National context


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Both a potential beneficiary and where impacts are

likely to be significant

key issues are seen as complex trade-offs

Wide-scale interest in the SEA

need broad stakeholder participation throughout the

SEA

Government in principle favours the dams in

Cambodian territory provided adequate

safeguards

CAMBODIA: National concerns


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1. Fisheries

2. River flows

3. Sedimentation & erosion

4. Impacts on the Tonle Sap system especially

reversal of flow and

fisheries

5. Impacts on livelihoods of riverine communities

LAO PDR: National concerns


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1. National development & foreign exchange earnings, with few other national alternatives Questions how reliable hydro foreign exchange earnings will be

in the long run

2. Internal market and electrification of Lao not a driver of mainstream hydropower

3. Regulatory capacity (e.g. ability to implement ESIA regulation and manage projects)

4. Social & environmental impacts, but a general feeling that these could be adequately mitigated

if a dams are financially feasible

THAILAND: National concerns


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1. Dominant issue: possible impacts on riverine communities: Accelerated erosion

Changes to sedimentation regime

Habitat changes/loss

Diminished ecological resource availability

Changes to water quality & availability

2. Thai government & civil-society groups: strong concerns for wider environmental impacts, including upstream/downstream of Thailand

3. Thai national power demand & future energy security seen as of “little relevance” because:

i. Future power demands have been significantly over-estimated, and

ii. Mainstream dams will only play a minor role in meeting demand projections

VIETNAM: National context


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Government and civil society - Very strong concerns

over mainstream dam development

General feeling that Vietnam will not benefit and

may suffer the costs of mainstream dams

Overwhelmingly emphasise basin-wide

environmental and resource impacts of mainstream

dam development

VIETNAM: National concerns


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Mekong delta already experiencing multiple stresses, concerns related to:

1. flow regime

2. sediment & nutrient flows

3. Fish migration patterns

4. Biodiversity

5. Extent & severity of saline intrusion (surface & groundwater)

6. Increasing uncertainty of climate change impacts

7. Potential neglect of the Delta

8. Want specific & detailed analysis of the impacts of mainstream dams on the delta

9. Transboundary decision making process considered a key strategic issue

SEA of hydropower on mainstream Mekong River 1 - ICEM · ICEM and MRC - SEA of hydropower on...

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