Jos Arts

THE EFFECTIVENESS OF EIA AS AN INSTRUMENT FOR ENVIRONMENTAL GOVERNANCE: REFLECTING ON 25 YEARS OF EIA PRACTICE IN THE NETHERLANDS AND THE UK

The European Union (EU) Environmental Impact Assessment (EIA) Directive which was introduced some 25 years ago has had a major impact on decision-making practices in EU member states. In the professional literature, this impact has mostly been discussed under the heading of effectiveness, with an emphasis being given in particular to procedural elements. The extent to which EIA has contributed to objectives, such as raising environmental awareness and leading to an incorporation of environmental values in decision-making has only been rarely investigated. This paper reflects on these latter two aspects of EIA effectiveness in two EU member states; the Netherlands and the United Kingdom. Empirical evidence was compiled mainly on the basis of a comprehensive literature review and online surveys with EIA professionals in both countries. Our results indicate that overall the instrument is about equally effective in both countries with regards to the incorporation of environmental concerns in decision-making. As both countries have different governance mechanisms, further research is needed on why perceived effectiveness does not differ more.

Before EIA; defining the scope of infrastructure projects in the Netherlands

This article discusses recent developments in integrated planning for the national road infrastructure in the Netherlands. It lays emphasis on project definition as a missing link between strategic planning and operational planning.Road development projects may have considerable negative impacts. Projects, however, are often too narrowly focused on road (re)construction alternatives and pay too less attention to the relationships with other spatial developments. As a consequence, the scope of project Environmental Impact Assessments (EIAs) is too narrow and opportunities are missed to enhance the spatial and environmental quality of the regions concerned. These problems are best tackled early in the planning process when the degrees of freedom in shaping the project are relatively large.Using the case of the A27 motorway a new guideline for explorative studies is introduced. The instrument described (called reconnaissance study) aims to connect the planning arenas of Strategic Environmental Assessment and EIA, thus achieving more sustainable planning. It focuses on the early stage of project development in which the scope of projects is defined by zooming in from the national to a regional setting and translation of abstract policy goals to a real world situation. Key elements are a transparent process in which problem analysis and development of solutions are seperated, involvement of external parties and a broad study scope.

The importance of cultural aspects in impact assessment and project: developmentreflections from a case study of a hydroelectric dam in Brazil

Abstract Failure to consider the cultural and social factors of projects can lead to situations where mitigation does not effectively address the impacts they were intended to alleviate, and can even create other impacts. We critically analyse the processes of designing and implementing a social and environmental compensation program for the Lajeado Hydroelectric Dam in the Amazon region of central-northern Brazil. This mitigation program caused a wide range of social and environmental impacts on the Xerente Indigenous people, such as intra-group conflict, and changes in agricultural practices and food regime. Based on qualitative fieldwork and an extensive document analysis, we present a contextualization of the region, the project, the Xerente people, and their cosmological understandings. We consider the perspectives of a broad range of stakeholders about the compensation program and its outcomes, and demonstrate how traditional cultural practices and values played a role in the unfolding of the program. Better comprehension of sociocultural aspects through the use of ethnography, ongoing consultation, and meaningful community participation in the planning and implementation of mitigation measures are recommended.

Extending the Scope of Highway Planning: Accessibility, Negative Externalities and the Residential Context

The objectives of this review-based paper were twofold. Firstly, we aimed to explore the need and possibilities for broadening the scope of highway planning by taking account of the residential context, including residential satisfaction. Satisfaction appears to be an interesting, and in our opinion, valuable mediating planning concept between road infrastructure planning and the accompanying external effects on the one hand and household coping strategies on the other. Households living near highway infrastructure are influenced by both positive (i.e. accessibility gains) and negative road-related factors (e.g. noise nuisance and air pollution). Changes in these factors may trigger people to accept the new situation, adjust preferences, try to influence plans and/or even relocate. The second aim was to gain a greater understanding of the influence of both accessibility characteristics and negative externalities on the residential context of households. With respect to context, we make a distinction between residential satisfaction, housing prices and residential relocation. We see changes in residential satisfaction as a potential early predictor of opposition to plans, not only from active opposers but also from the more ‘silent majority’, and as a predictor of housing price changes and residential migration. Insights into residential satisfaction around highways may help transportation planners to relieve locational stress and may also prevent protests and relocations. Our literature review indicated that households prefer to live close to highways to benefit from high regional accessibility, but do not want to contend with the nuisances. This is also reflected in property values. However, the literature appears to put more emphasis on studying the impact of (regional) accessibility and externalities on location behaviour than on residential satisfaction. Because of the added value that the concept of residential satisfaction may provide in road planning, and the limited scientific insights, it is important to gain greater insight into how residential satisfaction is influenced by negative and positive externalities and into how residential satisfaction changes over time—from the stage when new road projects are discussed through to concrete planning, realization and the period after completion. Moreover, it would be worthwhile to gain a deeper understanding of the extent to which house prices, location behaviour and residential satisfaction near highways interrelate.

Do We Need to Rethink Our Waterways? Values of Ageing Waterways in Current and Future Society

In the past canals were developed, and some rivers were heavily altered, driven by the need for good transportation infrastructure. Major investments were made in navigation locks, weirs and artificial embankments, and many of these assets are now reaching the end of their technical lifetime. Since then the concept of integrated water resource management (IWRM) emerged as a concept to manage and develop water-bodies in general. Two pressing problems arise from these developments: (1) major reinvestment is needed in order to maintain the transportation function of these waterways, and (2), it is not clear how the implementation of the concept of IWRM can be brought into harmony with such reinvestment. This paper aims to illustrate the problems in capital-intensive parts of waterway systems, and argues for exploring value-driven solutions that rely on the inclusion of multiple values, thus solving both funding problems and stakeholder conflicts. The focus on value in cooperative strategies is key to defining viable implementation strategies for waterway projects.

Revisiting a programmatic planning approach: managing linkages between transport and land use planning

The body of knowledge on transport and land use planning shows considerable overlap with management theories and practices. Notable examples can be found in project management and strategic management. Recently, in the field of management theory, the idea of programme management has gained prominence in response to the need to coordinate on a tactical level. Programme management links to both strategic management and project management, as it focuses on the coordinated management of related projects in order to realize strategic objectives. In line with the tradition to integrate management theories into spatial planning, the aim of this paper is to explore the power of a programme management approach in a transport and land use planning context. We investigate whether and how a programme management approach when applied in transport and land use planning can deal with three important interrelated challenges that emerge between the strategic and operational level in transport and land use planning: (1) linking strategic goals to operational projects, (2) developing the accompanying joint organizational structures, and (3) moulding fixed and separate procedures into more adaptive joint decision-making processes. To do so, we conducted an in-depth case study of two recent programme management approaches in Dutch transport and land use planning. We show that both programmes function as platforms where different parties come together and where a wide range of management and monitoring tools are used to guide the programme in a specific direction.

Getting EA research out of the comfort zone : Critical reflections from the Netherlands

This paper is a statement for the March special issue of JEAPM on Impact Assessment Research: Achievements, Gaps and Future Directions.

Public–Private Plan Development: Can Early Private Involvement Strengthen Infrastructure Planning?

Private parties, who are usually involved in later stages of design, construction and maintenance, can potentially strengthen the early plan-making stages of infrastructure planning. They can bring in knowledge, expertise and experience to help address complexity in planning. Such early private involvement can be accommodated through several models for which experiences in Dutch infrastructure planning practice differ. In this article, we assess the potential of early private involvement for strengthening infrastructure plan development by examining evaluative studies and conducting interviews with public and private actors involved in four early private involvement models in Dutch infrastructure planning: market consultation, early design contest, market reconnaissance and unsolicited proposal. We conclude that in order to unlock the potential of early private involvement government needs to incorporate incentives for creativity, reward private involvement and strike a balance in the setup of the investigated models between conceptual freedom for private solutions and transparent public guidance in preconditions and regulations. Early private involvement could, thus, provide opportunities for conceptual creativity and innovation and opportunities for public–private collaboration, which can strengthen plan development.

Bridging gaps: governing conflicts between transport and environmental policies

Developing new road infrastructure can be problematic in the face of environmental quality ambitions. These conflicts can even undermine the development of such new infrastructure, as occurred, for example, in the Netherlands in the mid-2000s as a result of European Union air quality standards. To govern the conflict between transport policies and air quality regulations, a National Cooperation Programme on Air Quality (NSL) was developed in The Netherlands. This programme relies on a collaborative governance approach between various government agencies on national, regional, and local levels. As such, it involves a relative shift away from central government coordination towards a reliance on more decentralized governance networks. Within these networks, coordination is expected to result from bottom-up self-governance processes by interacting actors that emerge from either competition and market processes or active actor participation. Theory shows two important risks of such a shift: (i) actors might behave opportunistically, and (ii) in case of problems, assigning problem ownership and responsibility to specific actors may be difficult. This paper aims to gain insight into the NSLs response to these risks. We monitored the NSL from 2009 to 2012, mainly through a series of interviews and expert workshops. Our research shows that the NSL contains the kind of ‘checks and balances’ that allows it to respond to the first risk. However, we will show that these mechanisms are merely expressions of intent. Furthermore, the NSL proves to be prone to the second identified risk, in that it is unclear who is responsible for the follow-up on these intentions, while rewards or sanctions are nonexistent. As it is, the NSL teaches us that, in order for more collaborative and decentralized forms of governance to function, involved actors on both central and lower levels of government paradoxically require coordinative instruments to enable coordination, to hold each other accountable for their performance, and to establish rules and sanctions.

Dealing with interrelatedness and fragmentation in road infrastructure planning: an analysis of integrated approaches throughout the planning process in the Netherlands

Abstract Planning approaches that integrate road infrastructure and other land uses are being increasingly applied. Dealing with functional interrelatedness and stakeholder fragmentation are the main reasons for this. This article conceptualizes and analyses why and how such integrated approaches can be applied effectively throughout consecutive stages of infrastructure planning. The two case studies illustrate that the concept of integration is applied for strategic as well as operational reasons, and they reveal that these reasons may alternate throughout the planning process. Effective integration is therefore dynamic: it appropriately focuses on strengthening the socio-economic perspectives of a region for the longer term, as well as on the relations between different land uses that are physically adjacent and competing for space within a smaller area. Due to fragmented institutional contexts, successfully dealing with interrelatedness requires an intense level of interaction amongst involved actors. Such “co-production” of visions and plans has two important characteristics: negotiation, and learning about each other’s goals. Ultimately the case studies also show that planning at the infrastructure–land use interface needs institutional mechanisms to guide the alterations between strategically and operationally inspired integration. Contracts with private parties, public participation, and positive conditions for learning about each other’s referential frames are examples of the institutional mechanisms encountered in this study.