**1. Introduction**

The strategic environmental assessment (SEA) can be considered as the most important, the most general and the most comprehensive instrument for directing the strategic planning process towards the principles and objectives of environmental protection, as well as for making optimum decisions on future sustainable spatial development [1] can be considered one.

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Since the very beginning of the last decade of the twentieth century until now, many authors [2–7] have written about the importance of the implementation of SEA in the process of making optimum decisions on sustainable spatial development and on the concept of development policy in different fields of social activities (energy, water resource management, infrastructure, tourism, etc.). The issue is therefore quite interesting, from both scientific and professional aspects, and is of great importance in creating any environmental policy.

The European Strategic Environmental Assessment Directive 2001/42/EC [8] prescribes the obligation to undertake SEA for plans, programmes and framework documents in different fields, thus also in the field of energy sector. By using the SEA, it is possible to consider the positive and negative implications of the proposed changes in the earliest stages of creating a development policy and accordingly direct the planning process in a way to increase positive impacts and minimize negative implications. The SEA process unavoidably implies the participation of the public in all stages of the planning process, thus emphasizing the contribution in decision-making, in this case in the field of the energy sector development [9–13]. Compared to other methods that contribute to decision-making, such as the traditional 'life cycle assessment' (LCA) [14–17] which is mainly used for the analysis of impacts in smaller territorial units, the SEA contributes to integrating the impacts at the strategic level of power plants planning (national, regional and, if necessary, international level). Given that the strategic level of planning requires a multi-dimensional consideration of phenomena and processes and that making appropriate decisions on spatial impacts and spatial development is a complex process, it is necessary to have an appropriate problem and methodological approach to making appropriate decisions on sustainability of offered concepts of development. This is particularly necessary in conceiving an energy sector policy, where the development tendencies can have significant implications for space and the environment. Multi-criteria analysis has been strongly advised by various authors with expertise in the energy sector [18, 19].

The chapter will present the possibility and importance of using the SEA for analysing spatial impact of power plants, regardless of whether it comes to fossil fuel power plants or power plants using renewable energy sources (RESs) because both can have strategically significant impacts (positive and negative) on the space where they are built. The chapter will examine the multi-criteria evaluation (MCE) method for carrying out an SEA for the case study– Energy Sector Development Strategy of the Republic of Serbia by 2025 with projections until 2030 [20] (herein after referred to as the 'Strategy').

## **2. Methodological framework**

The concept of the SEA methodologies, unlike the diverse, precise and highly operable tools used in environmental engineering or other science-based areas, is rather fuzzy [21]. Some authors [22–24] believe that there is no uniform methodological approach to the SEA process because its use in very thematically different planning processes is not appropriate, but it is the most appropriate to use different methodological approaches or their combination that would be aligned with specific conditions in which the planning process is carried out [22, 25]. In accordance with the above-mentioned, it can be concluded that the SEA process should be based on an interdisciplinary approach and open to the use of different methodological approaches. Such flexibility in the approach to the SEA process leaves the possibility of finding the best solutions in accordance with specific approaches to the planning process. Generally speaking, the SEA techniques and methodologies derive from the traditional Environmental Impact Assessment (EIA) and policy appraisal/plan evaluation studies [25, 26], ensuring that methodologies would not become a barrier for institutional promotion of the SEA [27]. A variety of possible techniques for conducting the different steps of SEA have been further analysed and discussed by others [1, 25, 27–29]. In addition, Marsden [30] pointed out that, in terms of methodologies, the SEA process is dominantly based on the qualitative or semi-quantitative approach which to a great extent depends on the skills and knowledge of experts involved in the evaluation process. Such an approach also implies a certain degree of subjectivity that should be minimized by using different software packages (like geographic information system [GIS]) in combination with their adequate use experiences accumulated through comparative studies of past schemes and applications [21].

Since the very beginning of the last decade of the twentieth century until now, many authors [2–7] have written about the importance of the implementation of SEA in the process of making optimum decisions on sustainable spatial development and on the concept of development policy in different fields of social activities (energy, water resource management, infrastructure, tourism, etc.). The issue is therefore quite interesting, from both scientific and professional aspects, and is of great importance in creating any environmental

The European Strategic Environmental Assessment Directive 2001/42/EC [8] prescribes the obligation to undertake SEA for plans, programmes and framework documents in different fields, thus also in the field of energy sector. By using the SEA, it is possible to consider the positive and negative implications of the proposed changes in the earliest stages of creating a development policy and accordingly direct the planning process in a way to increase positive impacts and minimize negative implications. The SEA process unavoidably implies the participation of the public in all stages of the planning process, thus emphasizing the contribution in decision-making, in this case in the field of the energy sector development [9–13]. Compared to other methods that contribute to decision-making, such as the traditional 'life cycle assessment' (LCA) [14–17] which is mainly used for the analysis of impacts in smaller territorial units, the SEA contributes to integrating the impacts at the strategic level of power plants planning (national, regional and, if necessary, international level). Given that the strategic level of planning requires a multi-dimensional consideration of phenomena and processes and that making appropriate decisions on spatial impacts and spatial development is a complex process, it is necessary to have an appropriate problem and methodological approach to making appropriate decisions on sustainability of offered concepts of development. This is particularly necessary in conceiving an energy sector policy, where the development tendencies can have significant implications for space and the environment. Multi-criteria analysis has been strongly advised by various authors with expertise in the

The chapter will present the possibility and importance of using the SEA for analysing spatial impact of power plants, regardless of whether it comes to fossil fuel power plants or power plants using renewable energy sources (RESs) because both can have strategically significant impacts (positive and negative) on the space where they are built. The chapter will examine the multi-criteria evaluation (MCE) method for carrying out an SEA for the case study– Energy Sector Development Strategy of the Republic of Serbia by 2025 with projections until

The concept of the SEA methodologies, unlike the diverse, precise and highly operable tools used in environmental engineering or other science-based areas, is rather fuzzy [21]. Some authors [22–24] believe that there is no uniform methodological approach to the SEA process because its use in very thematically different planning processes is not appropriate, but

policy.

energy sector [18, 19].

2030 [20] (herein after referred to as the 'Strategy').

124 Recent Improvements of Power Plants Management and Technology

**2. Methodological framework**

The procedural and methodological framework for SEA is shown in **Figure 1**. The SEA process begins with decision-making on undertaking the SEA, as well as on its scope and contents. This stage involves the defining of framework for investigations to be carried out in the SEA process along with the unavoidable participation of the public, relevant institutions and non-governmental organizations (NGOs). The next stage includes the analytical part of the SEA process implying the analysis of the state of the environment in the area under investigation using the GIS technologies [31–33]; analysis of the strategic concept of development (in this case in the energy sector); comparative analysis of the planning and strategic documents relating to the space that is subject of investigation and to the specific field of investigation; other investigations and analyses of importance for the specific field of investigation. The next stage included the setting of the SEA objectives, relevant indicators (**Table 1**) and evaluation criteria (**Tables 2** and **3**), followed by an impact assessment procedure in which the first stage included the evaluation of alternative scenarios and the selection of the most suitable alternative. Then, the process of multi-criteria evaluation (a semi-quantitative method) followed, representing the focal point of this chapter (presented in point 3 herein). The role of multi-criteria evaluation is to identify the influence of the activities planned in the space in which they are being undertaken (the prediction of spatial influences) according to the SEA objectives. When the impacts of the Strategy are identified in such a way, then it is possible to elaborate and present them in a simple and unambiguous way and in a way that is clear to all actors in the SEA process, namely the actors included in the decision-making process.

The specific SEA objectives (**Table 1**) were set in certain fields of environmental protection. The specific SEA objectives are the concrete, partially qualified statements in a form of guidelines and actions (measures, works and activities) for the implementation of these changes. The

**Figure 1.** Procedure and methodological framework for the SEA [11].

specific SEA objectives are primarily a methodological measure through which the effects of power plants (and energy sector in general) on the environment are identified and checked. The multi-criteria evaluation of the planning solutions is carried out in relation to these objectives to obtain a clear idea about possible effects of the planning process and make optimum decisions on future sustainable spatial development accordingly.


**Table 1.** SEA objectives and indicators for the Strategy [34].

specific SEA objectives are primarily a methodological measure through which the effects of power plants (and energy sector in general) on the environment are identified and checked. The multi-criteria evaluation of the planning solutions is carried out in relation to these objectives to obtain a clear idea about possible effects of the planning process and make optimum decisions

on future sustainable spatial development accordingly.

**Figure 1.** Procedure and methodological framework for the SEA [11].

126 Recent Improvements of Power Plants Management and Technology

The sustainable development indicators (**Table 1**) are needed to identify trends of moving towards or away from sustainability, as well as to set goals for improving general well-


**Table 2.** SEA evaluation criteria for the Strategy [34].

being. In 2008, the Republic of Serbia adopted the National Energy Sector Development Strategy [35] which contains principles and priorities in sustainable development, as well as 76 indicators for tracking the progress of Serbia towards sustainable development. These indicators have been selected from the set of UN indicators, but not all of indicators are used in Serbia. The indicators are specified in the Law on Spatial Plan of the Republic of Serbia [36]. The Regulation on the National List of Environmental Indicators [37] prescribes the list of environmental indicators, which have been used herein. The SEA indicators have been selected in accordance with the above-mentioned SEA objectives. This set of indicators is based on the 'cause-effect-response' concept. The indicators of cause denote human activities, processes and relationships affecting the environment, the indicators of effect denote the state of the environment, while the indicators of response define strategic options and other responses aimed at changing 'consequences' for the environment.

Based on an analysis of the possibility of primarily considering the spatial aspect, as well as the problematic aspect of potential impacts, three sets of criteria with a total of 14 individual criteria were defined. The criteria used in the MCE of the planning solutions were related to the magnitude (intensity) of the impact, the spatial dimension of the impact and the impact probability (**Table 2**).

The importance of identified impacts for achieving the SEA objectives is evaluated. The impacts of importance for the subject Strategy are those which have stronger or greater effects on the international (transboundary), national or regional level, according to the criteria shown in **Table 3**.

The methodological framework for the SEA presented in this chapter is centred on a plan-based approach to and the use of MCE method for the planned activities and strategic determinants in


**Table 3.** SEA criteria for evaluating strategically significant impacts of the Strategy [34].

being. In 2008, the Republic of Serbia adopted the National Energy Sector Development Strategy [35] which contains principles and priorities in sustainable development, as well as 76 indicators for tracking the progress of Serbia towards sustainable development. These indicators have been selected from the set of UN indicators, but not all of indicators are used in Serbia. The indicators are specified in the Law on Spatial Plan of the Republic of Serbia [36]. The Regulation on the National List of Environmental Indicators [37] prescribes the list of environmental indicators, which have been used herein. The SEA indicators have been selected in accordance with the above-mentioned SEA objectives. This set of indicators is based on the 'cause-effect-response' concept. The indicators of cause denote human activities, processes and relationships affecting the environment, the indicators of effect denote the state of the environment, while the indicators of response define strategic options and other responses aimed at changing 'consequences' for the

Based on an analysis of the possibility of primarily considering the spatial aspect, as well as the problematic aspect of potential impacts, three sets of criteria with a total of 14 individual criteria were defined. The criteria used in the MCE of the planning solutions were related to the magnitude (intensity) of the impact, the spatial dimension of the impact and the impact

The importance of identified impacts for achieving the SEA objectives is evaluated. The impacts of importance for the subject Strategy are those which have stronger or greater effects on the international (transboundary), national or regional level, according to the criteria

The methodological framework for the SEA presented in this chapter is centred on a plan-based approach to and the use of MCE method for the planned activities and strategic determinants in

environment.

probability (**Table 2**).

**Table 2.** SEA evaluation criteria for the Strategy [34].

128 Recent Improvements of Power Plants Management and Technology

shown in **Table 3**.

relation to the capacity of space as a basis for the valorization of space earmarked for sustainable development [38].

The development of the MCE method is linked to the early 1970s of the twentieth century when many authors [39–41] began to develop such an approach. When first developed, the MCE was characterized by the methodological principle of multi-criteria decision-making (MCDM) with little or no participatory mechanisms included [42, 43]. The initial idea was to elicit clear preferences from a decision-maker and then solve a well-structured problem by means of mathematical algorithms (e.g. to design an engine by taking into account its power, weight and efficiency). Over time, this ambitious idea has been directed towards a more rational approach [44] and to a constructive or a creative approach [45], which has led to an approach based on the development of the multi-criteria decision aid (MCDA) that is characterized by placing in focus the process of decision-making on specific development processes, namely the raising of the level and quality of this process along with permanently including the public into all stages of creating the future development [46–48]. This approach has resulted in the emergence of the participatory multi-criteria evaluation (PMCE) [46, 49] and social multi-criteria evaluation (SMCE) [50]. Nowadays, the MCE method is often recommended as a convenient support in the decision-making process because of its capacity to point out in many ways multiple alternatives of development on the basis of assessing criteria related to the environment and socio-economic aspects of sustainable development [51–54].

The MCE method presented and elaborated in this chapter was originally defined in a scientific research project entitled 'Method for Strategic Environmental Assessment in Planning' (2005–2007). The method was later developed and upgraded through several domestic and international scientific projects, in which the Institute of Architecture and Urban & Spatial Planning of Serbia (IAUS) also participated. The results of the research and method development have found their applicability in the drawing up of a number of strategic documents at national and regional levels, in the fields of energy, water resource management, waste management, tourism and so on. An example of the application of the MCE method is shown in the text that follows.
