SEA IN THE CONTEXT OF LANDTUSE PLANNING

5.8 Discussion - the introduction of SEA in relation to the national planningsystemThe introduction of SEA has clear linkages to the existing planning system; both land-usestatutory plans as well as sector plans and sector programmes, e.g. the municipal developmentplan, national transport programme and the national soil protection programme. Thisemphasis of applying SEA to a broad scope of plans goes hand in hand with the discussionthat has taken place in Iceland in recent years, i.e. the recognition of the need for strategicwork within more sectors and the need for developing planning at the national level(Thorgeirsson 2003, Thors 2004). The government as well as the governmental authoritieshave a clear role in this context which is reflected that much of of the research andevaluations in the field have taken place under the auspices of the Planning Agency (in itsown accord and in cooperation with other countries or organisations, e.g. the Nordic researchcooperation), preparing guidelines, represented in the committee preparing the legislation,providing guidance and reviewing the plans. At the same time, most of the SEAs, both inconnection to municipal comprehensive plans, regional plans as well as the nationalguidelines have been prepared by external consultants.The way that Iceland’s institutional framework influences the planning system, as well asthe introduction of SEA and its potential effect deserves some considerations. According toKristinsson 2000, the Icelandic government structure is influenced by three main factors, i.e.the relative recent independence of Iceland as an independent state, the small size of thecountry and low number of inhabitants and the numerous local governments and their smallsize. The municipal levels is currently the only governmental level with legally binding plansbut at the same time small authorities with limited capacity in the field of planning, whichoften is solved by using consultants for the plan preparation. The same is the case for SEA,which often is carried out by separate consultants focusing on environmental assessments.This arrangement is a way dealing with the smallness of the country and the limited numberof professionals and the small size of the numerous local authorities. However, the long-termeffect of this in terms of the ‘rooting’ and institutional learning from the process can bequestioned.As regards the objectives of introducing SEA to the existing planning system, the mainfocus is on the on the integration of environmental considerations in decision making, andthe emphasis on the fulfilling the objective of reducing negative environmental impacts is lessexplicit and the focus on sustainable development is also implicit. This focus is reflected inboth the guidelines, the new act and the findings form the parliamentarian environmentalcommittee which clearly see the SEA tool as a largely ‘aid to decision making’. Althoughsustainable development (SD) is among the three objectives of the SEA Act, there are verylimited linkages to sustainable development in the act, the discussions around the bill and thepractice until now. The main objective can be argued to be procedural and secondlyenvironmental protection and sustainable development is an all-embracing statement withoutmuch substance. This goes hand in hand with the limited initiatives in the field of SD at thenational level, where most of the sustainable work (apart from the strategy prepared for theJohannesburg summit) has been carried out at the municipal level within the framework ofLA21. This point was raised by members of the opposition when the bill was first presented,who had noted the lack of commitment to SD, and hoped that there would be a stronger linkby the new legislation.The central role of the Planning Agency is another characteristic of the introduction ofSEA in Iceland. This ought to contribute to making the integration straightforward sincethere is the same body who writes the guidelines for SEA and land-use planning, gives adviceon both parts, as well as it reviews the municipal and regional plans, including the SEA. The77