Post on 06-May-2018
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
River
Purpose of the SEA
ICEM and MRC - SEA of hydropower on mainstream Mekong
River
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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
ICEM and MRC - SEA of hydropower on mainstream Mekong
River
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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
ICEM and MRC - SEA of hydropower on mainstream Mekong
River
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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
ICEM and MRC - SEA of hydropower on mainstream Mekong
River
Limitation of EIA as a development planning
tool
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River
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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?
ICEM and MRC - SEA of hydropower on mainstream Mekong
River
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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...
ICEM and MRC - SEA of hydropower on mainstream Mekong
River
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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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River
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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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River
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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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River
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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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River
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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 in China
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River
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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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River
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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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River
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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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River
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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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River
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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
ICEM and MRC - SEA of hydropower on mainstream Mekong
River
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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River
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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
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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
Xayaboury
Proposed dam at
Xayaboury
FSL = 275 masl
MDL = 270 masl
Area = 49 sq.km
Extends 150km to
Louangprabang
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
ICEM and MRC - SEA of hydropower on mainstream Mekong
River
Steps in the SEA
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River
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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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River
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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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River
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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
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The SEA process for mainstream developments
41
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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River42
MRC SEA on Mekong mainstream hydropower
Initial review of issues43
ICEM and MRC - SEA of hydropower on mainstream Mekong
River
Initial scoping phase activities
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River
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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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River
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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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River
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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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River
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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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River
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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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River
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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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River
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Cambodia
Lao PDR
Thailand
Viet Nam
CAMBODIA: National context
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River
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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