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Substantive freedom is the core concept of the theory of Development as Freedom by Amartya Sen. In view of the instrumental role of substantive freedom, development of the civil political freedom is an effective way to solve the serious government failure in environment management; development of substantive freedom involving civil economic conditions and social opportunities will not only improve the civil environmental awareness and civil ability for environmental protection, but also be available to control population growth and reduce environmental pressure. The top-to-bottom environmental protection campaign developed in China requires a broad and firm social foundation, where a necessary way for it is to expand various civil substantive freedoms.