**3. Case study: MCE method in the SEA for the power plants in the Strategy**

The results presented in this part of the chapter have been taken from the SEA for the Strategy [34] (case study), conducted by the authors of this chapter. The mentioned methodological approach was used in drawing up the mentioned document, while only the results that are in the context of the theme of this research and that were partially slightly modified to adapt them to the format of this chapter are elaborated herein.

## **3.1. Subject of the Strategy and SEA**

The approach of integrated and continuous planning was used in creating the Strategy and carrying out the SEA with a focus on finding the measures for sustainability through integrating the realistic goals and the potentials in the field of energy, on the one hand, and the goals of and needs for environmental protection, quality of life of population and socio-economic development, on the other hand. The Strategy will be a framework for the development of the energy system of the Republic of Serbia with all possible (positive and negative) implications for the environmental quality. The purpose of carrying out the SEA for the Strategy is to consider possible negative effects on/trends of environmental quality, as well as to develop the guidelines for their reduction, namely bringing them within acceptable limits without creating the conflicts in space and taking into account the environmental capacity in the considered area.

The SEA is not focused only on the analysis of strategic commitments that can imply negative impacts and trends but also on the strategic commitments that can contribute to environmental protection and quality of life of population. In this context, the potential environmental impacts of planned activities were analysed in the SEA and were evaluated relative to the objectives and indicators.

The chapter of the Strategy related to the priorities of the energy sector development mentions the power plants as one of the keys and essential potentials for development, but also as a possible cause of significant problems in the environment. For this reason, the chapter emphasizes that there is the need to introduce the latest technologies in energy generation, both in the thermal power plants and in the field of renewable energy sources (RES) for which there are significant potentials, but they have not been sufficiently used in the Republic of Serbia.

Although other important strategic priorities in the field of energy are also dealt with in the Strategy, due to the fact that power plants have significant environmental impacts on the space in which they are built, the SEA gives special attention to this aspect, and exactly this aspect is elaborated further herein.

## **3.2. Evaluation of power plant impacts using the MCE method**

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

The results presented in this part of the chapter have been taken from the SEA for the Strategy [34] (case study), conducted by the authors of this chapter. The mentioned methodological approach was used in drawing up the mentioned document, while only the results that are in the context of the theme of this research and that were partially slightly modified to adapt

The approach of integrated and continuous planning was used in creating the Strategy and carrying out the SEA with a focus on finding the measures for sustainability through integrating the realistic goals and the potentials in the field of energy, on the one hand, and the goals of and needs for environmental protection, quality of life of population and socio-economic development, on the other hand. The Strategy will be a framework for the development of the energy system of the Republic of Serbia with all possible (positive and negative) implications for the environmental quality. The purpose of carrying out the SEA for the Strategy is to consider possible negative effects on/trends of environmental quality, as well as to develop the guidelines for their reduction, namely bringing them within acceptable limits without creating the conflicts in space and taking into account the environmental capacity in the

The SEA is not focused only on the analysis of strategic commitments that can imply negative impacts and trends but also on the strategic commitments that can contribute to environmental protection and quality of life of population. In this context, the potential environmental impacts of planned activities were analysed in the SEA and were evaluated relative to the

The chapter of the Strategy related to the priorities of the energy sector development mentions the power plants as one of the keys and essential potentials for development, but also as a possible cause of significant problems in the environment. For this reason, the chapter emphasizes that there is the need to introduce the latest technologies in energy generation, both in the thermal power plants and in the field of renewable energy sources (RES) for which there are significant potentials, but they have not been sufficiently used in the Republic of Serbia.

Although other important strategic priorities in the field of energy are also dealt with in the Strategy, due to the fact that power plants have significant environmental impacts on the space in which they are built, the SEA gives special attention to this aspect, and exactly this aspect is

**3. Case study: MCE method in the SEA for the power plants in the** 

them to the format of this chapter are elaborated herein.

130 Recent Improvements of Power Plants Management and Technology

**3.1. Subject of the Strategy and SEA**

in the text that follows.

**Strategy**

considered area.

objectives and indicators.

elaborated further herein.

The SEA for the Strategy singles out the total of 29 planned activities/strategic priorities that was included in the multi-criteria evaluation process. Nine out of 29 strategic priorities relate to the projects of power plants (**Table 4**). However, save for the locations defined by the document entitled 'Cadaster for Small Hydro Power Plants in Serbia' [55], the Strategy does not determine micro-locations for the majority of power plants (this particularly refers to the power plants using RES), so the evaluation could be based on predictions and on keeping pace with trends in space on the basis of micro-location determination and knowledge of general regularities and potential environmental impacts that certain types of power plants imply.

**Table 4** shows the strategic priorities in the Strategy, which directly relate to the projects of power plants and which were also included in the multi-criteria evaluation presented further herein. In addition to these priorities, the Strategy also formulates priorities that directly relate to power plants because they are actually in their function. This includes, for example, the extension of coal open-pit-mining areas and opening of new coal open-pit mines which supply thermal power plants with coal. These strategic priorities were also elaborated in the SEA for the Strategy, but are not presented herein.

Each individual strategic priority in the Strategy relating to the projects of power plants (**Table 4**) was included in the multi-criteria evaluation process by forming matrices (**Table 5**) in which the mentioned priorities relating to power plants 'intersect' with the SEA objectives and indicators (**Table 1**). They were evaluated according to the adopted groups of criteria (**Table 2**).

The matrices were formed for the first two groups of criteria (impact magnitude and impact significance) because it is possible to identify the impacts of strategic importance already based on these two groups of criteria, namely the impacts where evaluation is within the values adopted and presented in **Table 3**.

The evaluation of strategic priorities was semi-quantitative, qualitative and aligned with the level of detail/generality that characterizes the strategic documents such as the Strategy. It was based on the planning approach through which the spatial (territorial) impacts were considered, as well as on possible conflicts in space that can occur in the interaction between the existing and the planned activities in a specific space without going into the technical and technological aspects of potential impacts that are not possible to be identified at this level of planning.

Each individual strategic priority was then also presented in the form of graph (**Figure 2**) and in a way comprehensible to the general public and decision-makers, this being in accordance with the Arhus Convention principles.

The evaluation of strategic priorities in the Strategy that relate to power plants, and which were elaborated in the SEA, is presented further herein.

A table was formed based on the adopted criteria for determining the strategically significant impacts (**Table 3**) and results of the multi-criteria evaluation presented in the form of matrices


**Table 4.** Strategic priorities in the strategy included in the SEA relating to the projects of power plants [34].

(**Table 5**). The table identifies the strategic priorities that imply strategically significant impacts (positive and negative) on the environmental quality and elements of sustainable development, namely on the SEA goals, and determine the rank of impacts identified in such a way (**Table 6**).


\* Criteria according to **Table 2**.

**Table 5.** Matrices of spatial impacts of power plants on the environment and sustainable development [34].

**Figure 2.** Examples of the presentation of obtained results in the form of graph [34].

## **3.3. Summary of significant strategic impacts**

(**Table 5**). The table identifies the strategic priorities that imply strategically significant impacts (positive and negative) on the environmental quality and elements of sustainable development, namely on the SEA goals, and determine the rank of impacts identified in such a way

**Table 4.** Strategic priorities in the strategy included in the SEA relating to the projects of power plants [34].

132 Recent Improvements of Power Plants Management and Technology

**Table 5.** Matrices of spatial impacts of power plants on the environment and sustainable development [34].

(**Table 6**).

\*

Criteria according to **Table 2**.

On the basis of the evaluation of impact significance shown in **Table 6**, it can be concluded that the Strategy produces significant number of strategically important, both positive and negative, environmental impacts. This is not at all surprising considering that the main idea of the Strategy was to create a concept of development of an energy sector which would rely in all of its segments on the principles of the prevention and active protection of the environment, its main factors, thus also on the improvement of human health by primarily permanently reducing the exposure to air pollution resulting from the operation of thermal power plants operating with inadequate technologies.

The identified negative impacts of the Strategy are the result of development in the energy sector which, in the Republic of Serbia like in other countries, dominantly relies on the existing energy potentials. The most important negative impacts are the result of thermal power plant operations, namely the result of the surface coal exploitation necessary for their operation. In this context, the impacts of the main environmental factors (air, water, soil and biodiversity), as well as impacts on landscape, stand out by their importance. The impacts on social factors as the result of extension of open-pit mines, due to which parts or even entire settlements are moved to completely new location, are of special importance.

Most of the mentioned impacts are not significantly spatially dispersed, but, nevertheless, they were assessed as being of strategic importance due to the assessed impact intensity, as shown in **Table 6**.


**Table 6.** Identification and evaluation of strategically significant impacts with explanations [34].

Certain negative implications are also expected due to the construction of the 'Bistrica' HPP and/ or construction of the 'Djerdap 3' reversible HPP, which would have negative effects on hydrological regime of watercourses on which their construction is planned, as well as on biodiversity and ichthyofauna, and will cause possible changes in the use of agricultural and forest lands.

By accepting the provisions of the Espoo Convention [56] and Kiev Protocol [57], the Republic of Serbia is obligated to notify the neighbouring countries on the projects that could have transboundary impacts. According to the Espoo Convention on Environmental Impact Assessment in a Transboundary Context (Espoo Convention), the transboundary impacts are defined as all impacts (positive and negative) of a certain activity or a project that affect the environment under the jurisdiction of another country. The implementation of the Espoo Convention provisions implies that the relevant institutions of the neighbouring countries should provide information on the planned activities and their environmental impacts so that the affected country could participate in making optimum decisions on planning and future realization of such activities.

In addition to the projects defined by the Strategy that could have transboundary impacts, such as the RHPP 'Bistrica' and/or RHPP 'Djerdap 3' projects, the transboundary environmental impacts can also occur as the result of the realization of the following projects:


Other planed activities that can imply the transboundary impacts of strategic importance have not been identified.

In addition to the adverse impacts, by using the MCE method in carrying out the SEA for the Strategy, a whole series of strategically significant positive impacts were also identified:


Certain negative implications are also expected due to the construction of the 'Bistrica' HPP and/ or construction of the 'Djerdap 3' reversible HPP, which would have negative effects on hydrological regime of watercourses on which their construction is planned, as well as on biodiversity and ichthyofauna, and will cause possible changes in the use of agricultural and forest lands.

**Table 6.** Identification and evaluation of strategically significant impacts with explanations [34].

134 Recent Improvements of Power Plants Management and Technology

scientific research sector for the transfer of leading edge technologies in the field of energy; strict implementation of energy-efficiency measures in final energy consumption; labour market mobility; as well as overall energy sector development, will represent a long-term contribution to sustainable economic development and rational use of non-renewable energy sources, that is, increasing the share of energy from RES.

## **4. Discussion and conclusions**

The Strategy represents a strategic framework for implementing the policies and measures in the field of energy, also including the aspect of using the energy potentials by planning and building new power plants or by modernizing the existing ones. The possible implications for the environment as a result of the realization of such projects, as well as the significant public participation (NGO, population, expert groups, relevant institutions, investors and public companies in the field of energy) in the decision-making processes, undoubtedly indicate the need to consider this aspect in creating the policies in the field of energy, either at the national, regional or at the local level. The reason for the interest of the public in power plants, and energy sector in general, lies in the nature of their operation and possible significant spatial/territorial impacts. In this context, besides different studies on environmental protection carried out at the level of specific investment projects for individual power plants (e.g. EIA or LCA), it is of particular importance to carry out an environmental impact assessment at the strategic level of planning which should direct a strategic-planning document to the goals of sustainability and prevent potential conflicts in space in the earliest stage of creating an energy policy. The SEA is exactly the instrument that meets these specific requirements. This has been much written about in scientific literature, which is briefly summarized in the 'Introduction' section of this chapter.

The Energy Strategy [20] is a specific document due to the fact that it establishes a completely new and altered concept of energy sector development relative to the existing one that has been, at least in the Republic of Serbia, assessed as unsustainable and ecologically unacceptable. In addition, the Strategy gives a special attention to power plants (the existing and the planned ones) that are particularly significant for analysis from the aspect of environmental protection. This conditioned the specificity of the subject SEA within which it was necessary to make a symbiosis of all existing phenomena and the processes in space and predictions about potential impacts of power plants on the environment. This served for defining the SEA objectives and corresponding indicators, but also the criteria, based on which the strategic priorities related to power plants were assessed. By using the multicriteria evaluation and semi-quantitative methods according to three groups of criteria, as well as by presenting the results using the matrices and graphs, the results were shown in a clear and unambiguous way for each of the strategic priorities. Different aspects of impacts (significance, spatial extent and probability) were encompassed. The results of the used MCE method were taken as a basis for defining the appropriate measures/guidelines for the environmental protection and monitoring which should be used in implementing the Strategy, namely in determining the micro-locations for new power plants and in preparing the investment projects. These measures/guidelines defined the SEA by each type of power plant, particularly taking into account new power plant projects and instructions for their realization in a way that provides the preventive protection of space and the environment, thus enabling all actors in the process of creating and adopting the Strategy to make conclusions on positive and negative implications of all identified impacts in a simple way, while the SEA in this process also serves as a regulatory and control tool for all future investments in the energy sector.

scientific research sector for the transfer of leading edge technologies in the field of energy; strict implementation of energy-efficiency measures in final energy consumption; labour market mobility; as well as overall energy sector development, will represent a long-term contribution to sustainable economic development and rational use of non-renewable

The Strategy represents a strategic framework for implementing the policies and measures in the field of energy, also including the aspect of using the energy potentials by planning and building new power plants or by modernizing the existing ones. The possible implications for the environment as a result of the realization of such projects, as well as the significant public participation (NGO, population, expert groups, relevant institutions, investors and public companies in the field of energy) in the decision-making processes, undoubtedly indicate the need to consider this aspect in creating the policies in the field of energy, either at the national, regional or at the local level. The reason for the interest of the public in power plants, and energy sector in general, lies in the nature of their operation and possible significant spatial/territorial impacts. In this context, besides different studies on environmental protection carried out at the level of specific investment projects for individual power plants (e.g. EIA or LCA), it is of particular importance to carry out an environmental impact assessment at the strategic level of planning which should direct a strategic-planning document to the goals of sustainability and prevent potential conflicts in space in the earliest stage of creating an energy policy. The SEA is exactly the instrument that meets these specific requirements. This has been much written about in scientific literature, which is briefly summarized in the

The Energy Strategy [20] is a specific document due to the fact that it establishes a completely new and altered concept of energy sector development relative to the existing one that has been, at least in the Republic of Serbia, assessed as unsustainable and ecologically unacceptable. In addition, the Strategy gives a special attention to power plants (the existing and the planned ones) that are particularly significant for analysis from the aspect of environmental protection. This conditioned the specificity of the subject SEA within which it was necessary to make a symbiosis of all existing phenomena and the processes in space and predictions about potential impacts of power plants on the environment. This served for defining the SEA objectives and corresponding indicators, but also the criteria, based on which the strategic priorities related to power plants were assessed. By using the multicriteria evaluation and semi-quantitative methods according to three groups of criteria, as well as by presenting the results using the matrices and graphs, the results were shown in a clear and unambiguous way for each of the strategic priorities. Different aspects of impacts (significance, spatial extent and probability) were encompassed. The results of the used MCE method were taken as a basis for defining the appropriate measures/guidelines for the environmental protection and monitoring which should be used in implementing the Strategy, namely in determining the micro-locations for new power plants and in preparing

energy sources, that is, increasing the share of energy from RES.

**4. Discussion and conclusions**

136 Recent Improvements of Power Plants Management and Technology

'Introduction' section of this chapter.

Unlike some SEA that are oriented towards identifying 'for and against' alternatives, in the SEA for the Strategy it was relatively simple to propose to actors to make decisions on which solution is the most suitable for the implementation of the Strategy because positive changes brought by its implementation are many times greater relative to the possible negative implications. This was affected by the methodological approach that is conceptually conceivable; clear way of presenting the obtained results which enables great public participation in critical stages of the SEA (identification of possible positive and negative impacts of the planning concepts); the use of semi-quantitative methods in assessing the impacts and defining the appropriate guidelines for the environmental protection and monitoring.

The specificity of the presented approach is reflected in the identification of the objectives and indicators of the SEA that is based on the analysis of a complex symbiosis of environmental quality, strategic frameworks defined in different strategic and planning documents and the Strategy. The objectives and indicators obtained through this procedure are a good basis for assessing the complex implications of the planned activities for the space and possible mutual interactions between different sectorial determinations regarding the elements of sustainable development. A clear presentation of obtained results of multi-criteria evaluation in the form of matrices, and particularly in the form of graphs, is particularly important in the SEA stages involving public participation. However, the use of semi-quantitative method of expert decision-making brings a certain dose of subjectivity, which can be tentatively regarded as a lack of such an approach. On the other hand, the use of different mathematical methods like ARAS (additive ratio assessment) [58] or AHP (analytical hierarchy process) [59] at the level of strategic planning and management is not necessary, and often impossible because of a lack of appropriate inputs. In this case, for example, there was no determination of micro-locations for the planned power plants that will use renewable energy sources, so the prediction of impacts could be only made based on the knowledge on energy potentials, for example, the energy to be obtained from renewable sources at the micro-location level, the state of the environment on these micro-locations and potential capacities (installed power) in these potentially suitable micro-locations. Such obtained results of the assessment of spatial/territorial impacts of strategic priorities represent exactly a good basis for establishing adequate guidelines and for the use of the above-mentioned mathematical methods at a lower level of impact assessment, namely in carrying out the EIA, which is actually also an obligation in carrying out the SEA. In this context, this lack should be understood tentatively, but should in no way be ignored in the process of carrying out the SEA and in making appropriate decisions.

The guidelines for environmental protection were established based on the results of multicriteria evaluation of strategic priorities that relate to the planning, building or modernization of power plants. The guidelines were given for the most significant facilities/projects envisaged in the Strategy, namely for the energy facilities/projects which can be significant polluters by nature of their operation.

A special contribution of the SEA process was laid in the identification of possible transboundary impacts and in the establishment of the transborder cooperation with the neighbouring countries. In this context, the cooperation has been established with the Republic of Croatia, Romania and Republic of Bulgaria, which have showed their interest including themselves into the SEA process and in officially submitting their views regarding the identified possible transboundary impacts. Their views were adequately taken into account in the preparation of the SEA Final Report.

Performing the SEA for the needs of the Strategy resulted in making appropriate decisions in the process of establishing sustainable energy sector development, while the implementation of documentation in practice should contribute to the applicability of results and to the possible monitoring of SEA contribution in the process of planning both power plants and all other plans in the energy sector.
