Coastal Management and Local and Regional Authority Policy in Europe - CG (11) 28 Part II

Rapporteur:
Giovanni Macchiavello, Italy,
Chamber of Regions
Political Group: EPP/CD

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EXPLANATORY MEMORANDUM

I - Background

The Isle of Wight Centre for the Coastal Environment, UK, has been appointed by the Congress of Local and Regional Authorities in Europe to undertake a survey on progress in the field of coastal management within Local and Regional Government. The questionnaire is attached as Appendix 1.

Sixty-eight completed questionnaires were received, from across the Council of Europe Member States (Figure 1).

Figure 1

This study is well timed in view of the European Union Recommendations on implementing Integrated Coastal Zone Management in Europe. At present, a European Coastal Management Directive does not exist. However, in May 2002 the EU issued a ‘Recommendation’, which member states have three years to respond to. This requires each member state to carry out an "overall stocktaking to analyse which major actors, laws and institutions influence the management of their coastal zone". Member states are also required to develop strategies that will encourage ‘bottom-up’ approaches to coastal management. Member states must report back on how they have implemented Integrated Coastal Zone Management (ICZM) within the required timescale and the Commission will then consider whether any further legislation is required within ten months. The analysis of this questionnaire into coastal management and local and regional policy provides an excellent opportunity to evaluate Integrated Coastal Zone Management initiatives at a European level.

II - Analysis of the Questionnaire

The first group of questions aimed to measure current understanding of coastal zone management at the policy and European level. In particular, the questions were designed to review the level of awareness regarding the EU Demonstration Programme on the Integrated Management of Coastal Zones (1996 – 1999). The survey revealed that less than half (44%) were aware of the Demonstration Programme on the Integrated Management of Coastal Zones. Of those aware of the EU Demonstration Programme, 57% had seen the publications ‘Lessons Learnt from the EU Demonstration Programme’ or ‘Better management of coastal resources’ and 83% were aware of the EU ‘Recommendation on the integrated management of coastal zones’.

As well as demonstrating the overall level of awareness of the EU Demonstration Programme on the Integrated Management of Coastal Zones, an analysis was made of the geographical extent of this awareness. The survey indicated that certain countries in Europe are more advanced in their knowledge and understanding of the EU Demonstration Programme and Recommendation on the Integrated Management of Coastal Zones.

The level of awareness varies significantly between countries. For example, the UK and France, though comparable in terms of the number of responses received (eighteen and seventeen respectively), were disparate in terms of the level of awareness of the Demonstration Programme. In the UK 61% of responses indicated an awareness of the Programme, whereas in France only a 6% level of awareness was recorded. Other countries in Europe that were advanced in their level of awareness of the EU Demonstration Programme on the Integrated Management of Coastal Zones included Sweden, Belgium and Ireland. It was not feasible to analyse the responses from countries for which a small number of responses to the survey were received, such as Albania, Croatia and Holland, because they do not necessarily provide a fair representation.

The second set of questions explored current actions being undertaken by coastal authorities throughout Europe. The objective of these questions was to assess the level of involvement local authorities have in the preparation of coastal strategies and to evaluate to what extent the principles of Integrated Coastal Zone Management are already in place. A summary of the activities involving local and regional authorities is listed below:

The responses to this question demonstrate that local and regional authorities in Europe are generally involved in a variety of functions relating to the coast. The functions involving authorities range from strategic coastal planning and development control to environmental health and coastal tourism, with the results indicating that the majority of authorities are involved in most of the functions listed above. The broad range of functions that fall under the responsibility of local and regional authorities demonstrates the importance and value of adopting an integrated approach to coastal zone management.

One question in the survey aimed to evaluate which services were considered to be the most important in terms of coastal zone management. Many authorities found it difficult to identify which functions they consider to be the most important because there tends to be a great deal of overlap between them. However, the most commonly considered priority services were; protection against coastal erosion, the management of beaches and seafronts and the management of environmentally sensitive areas. Some functions, such as flood prevention and oil spill prevention, were not considered by the majority to be priority functions of their authority. The reason for this may be that these services often fall outside the responsibility of local and regional authorities. For example, in England and Wales the Environment Agency and Defra are principally responsible for flood defence.

A significant finding from the survey concerns the level of participation in networks and interest groups relating to the coast (Figure 2). Results demonstrate that 53% participate in local/regional scale coastal defence groups or coastal networks and 38% are involved in national or European groups or networks. A large number of responses (68%) claim that meetings are most commonly organised in an ad-hoc approach. Results suggest that these figures are fairly consistent between countries, with no individual countries having an especially high or low level of participation in these groups.

Figure 2
As part of the investigation into coastal management and local and regional authority policy, a review was made of the utilisation of coastal centres of excellence. A coastal centre of excellence may be a local university or a dedicated coastal observatory, which plays an active role in coastal-related research. Such centres of expertise vary in terms of the services they provide, but activities may include funding or participating in research programmes, acing as a point-of-contact for anyone with an interest in the coastal zone, providing an educational resource and acting as a repository for coastal data.

The survey revealed that of the local and regional authorities that completed a questionnaire, 60% have a coastal centre of expertise in their local area (Figure 3). The most common focal point for coastal expertise is within a local university, for example, the Tuarno Marine Laboratory in the University of Gothenburg. However, there were also a number of coastal observatory’s, such as the Umea Marine Science Centre in Sweden and the Channel Coast Observatory in Southampton, UK.

Figure 3

The final collection of questions aimed to determine opinions and visions by providing the opportunity to express views on the importance of coastal issues in the relevant local and regional authorities in Europe. The questions focused on the worth of legislation and guidance as well as possible grounds for requiring special assistance with implementing coastal zone management. A summary of some of the reactions to these questions is provided.

In general, legislation and guidance relating to environmental conservation, for example in the Nature Conservation Regulations in Denmark and the Environmental Code in Sweden, were believed to be helpful in terms of implementing effective coastal zone management. In was also stated by many that national level legislation and guidance relating to planning policy was valuable within the remit of coastal zone management. At the European level, the majority of responses related to the Habitats Directive and the Birds Directive as useful legislations. The EU Recommendation on the Integrated Management of Coastal Zones prompted a mixed response, with some viewing it as a useful piece of guidance and others regarding it as a hindrance. There was a common opinion that there is a considerable amount of legislation and guidance in relation to the management of the coastal zone but that there is not enough coordination between these regulations.

Member states were asked to consider reasons for requiring special assistance with implementing coastal zone management. A great deal of interesting points were raised by this question, demonstrating the long-term visions and aspirations held by local and regional authorities in Europe with regard to coastal zone management. Many of the responses relate to the need for a long-term strategy for the effective management of the coastal zone and the need for a clear ‘vision’. It is hoped that the EU Recommendation may fulfil this role in the future.

It was noted that the utilisation of the coast is extremely diverse, and often conflicting. There is a need to ensure that all activities are working in partnership and collectively making real improvements to the economic, environmental and social sustainability of the coast. An integrated approach to coastal zone management would result in a sustainable use of resources and a better managed European coastline.

Another important point that was introduced by numerous member states was the management of coastal zones in a changing climate. The predicted consequences of climate change include rising sea levels, increased storminess, wetter winters and drier summers and a possible change in wave regimes. All of these will have a significant impact on the management of the coastal zone and the associated financial implications will be great.

III - Conclusion

The analysis of the questionnaire generally indicates a good level of understanding of the principles of Integrated Coastal Zone Management and the fundamental concept of sustainability. However, there was evidence of regional disparities in the level of awareness of European Union initiatives such as the ‘Demonstration Programme on the Integrated Management of Coastal Zones’ and the ‘Recommendation on the Integrated Management of Coastal Zones’.

Coastal groups provide a unique opportunity for coastal authorities to disseminate research findings, exchange coastal data and discuss topical issues at a local, regional, national or European scale. These groups also play an important role in developing a more co-ordinated approach to ICZM. Considering the value of coastal networks and groups it is regretful that the proportion of authorities participating in networks and interest groups is not higher.

An encouraging number of local and regional authorities in Europe are linked to coastal departments in local universities or coastal observatories. These centres of expertise provide an opportunity not only to undertake coastal research but also to act as a focal point for activities and information management within the coastal zone. The management and effective dissemination of coastal information and data is central to an integrated and sustainable approach to coastal zone management. Techniques that maximise the use and exchange of data therefore make good environmental as well as commercial sense. The unique position of coastal centres of expertise should be promoted and endorsed as a means of advancing ICZM in Europe.

There is much existing legislation and guidance in terms of managing the coastal zone, but currently little coordination between the diverse range of Directives, recommendations and guidelines. An integrated approach to coastal zone management is needed to ensure a sustainable use of resources in the coastal zone. Presently, the requirement for ICZM in non-statutory, which leads to an ad-hoc approach to individual issues. Consequently, the implementation of a statutory requirement for ICZM would be endorsed by many of those responding.

In terms of visions for the future, member states are keen to develop a long-term strategy for the management of the coast, taking account of climate change. Although the exact implications of climate change may be uncertain, what is known is that the climate has changed appreciably in recent decades and is likely to continue along this trend. It is, therefore, essential that local and regional authorities have sufficient assistance and financial aid to implement effective coastal zone management in a changing climate.

Appendix 1

Elements for Recommendation Containing Requests to National Governments

On 30 May 2002, the European Union adopted a Recommendation on implementing Integrated Coastal Zone Management (ICZM) in Europe. The objective of ICZM is to “establish sustainable levels of economic and social activity in our coastal areas while protecting the coastal environment” (Defra, 2003). A complete version of the Recommendation can be viewed on the following web site: www.europa.eu.int/comm/environment/iczm/home.htm

The Recommendation requests that all Member States conduct an overall stocktaking to analyse which major actors, laws and institutions influence the management of their coastal zone. Based on the results of this stocktaking exercise, each Member State must then develop a national strategy to implement the principles of ICZM. The Recommendation states that Member States have forty-five months in which to report back to the Commission and to provide a summary of actions taken, or to be taken, to implement the national strategy.

The present phase in the implementation of ICZM in Europe, i.e. eighteen months on from the adoption of the Recommendation, presents an ideal opportunity to review Coastal Management and Local and Regional Authority Policy in Europe. The Isle of Wight Centre for the Coastal Environment, UK, was appointed by the Congress of Local and Regional Authorities in Europe to undertake a survey on progress in the field of coastal management within Local and Regional Government.

Member States were asked to complete a survey, which was designed to examine Coastal Management and Local and Regional Authority Policy. Results from the survey allowed an assessment to be made of the level of current understanding and implementation of the principles of ICZM at a regional and national level. It was clear from the survey that there exist regional disparities in the level of awareness and current actions being implemented in terms of adopting an integrated approach to coastal zone management. Certain countries in Europe appear more advanced in their knowledge and understanding of the EU Demonstration Programme and Recommendation on the Integrated Management of Coastal Zones.

National governments in Europe are at varying stages in their implementation of the Recommendation on ICZM and in their development of a national strategy. However, it is anticipated that during the past eighteen months, Member States have been working towards the process of a national stocktaking exercise and have made at least some advancement into the development and implementation of a national strategy/strategies.

The national stocktaking should provide the Commission with an analysis of the interactions between different organisations, at varying administrative levels, with an interest in the coastal zone. When undertaking the national stocktaking process, national governments should consider making an assessment of the integration of these organisations and the identification of any gaps or overlaps. They should also aim to identify any inter-regional organisations and networks and to assess the role of such structures within the context of ICZM. One of the anticipated outcomes of the implementation of the Recommendation is an improved coordination between the major actors involved in the management of the coastal zone.

The Recommendation states, “integrated management of the coastal zone requires strategic, coordinated and concerted action at the local and regional level, guided and supported by an appropriate framework at the national level”. The fore mentioned ‘framework’ would consist of a national strategy, or where appropriate several strategies, for each Member State. The Recommendation outlines a number of proposals to be incorporated into the national strategy. However, at this stage Member States should be using this opportunity to develop a strategy within the current guidelines and to assess the usefulness and possible gaps within the current Recommendation. This is important, as it will ensure that future Recommendations or legislations are fully informed and accepted.

The Commission is keen to observe a bottom-up approach to managing the coast and its resources. The Recommendation promotes sustainable coastal management, which considers not only environmental and economic factors but which also respects local culture and traditions. National governments should therefore be encouraged to instigate bottom-up initiatives involving diverse stakeholders and public participation.

When developing national strategies it is crucial that Member States take a long-term perspective to coastal zone management to ensure the sustainable management of coastal resources. National Governments are requested to appreciate the increasing threat to coastal zones posed by climate change. Though there will indisputably be geographical disparities, there now exists overwhelming scientific evidence to confirm that global climates are changing and that sea levels are rising. When developing national strategies for the integrated management of the coastal zone, the possible impacts of future climate change should be recognised. National Governments should endeavour to provide sufficient assistance and financial aid to operating authorities in order to implement effective coastal zone management in a changing climate.

Appendix 2

Elements for Resolution Containing Indications to Local and Regional Authorities

Though the EU Recommendation on the Integrated Management of Coastal Zones outlines the development of national strategies, the Recommendation also has significant implications for local and regional authorities in Europe. The role and responsibilities of local and regional authorities should be adequately recognised in the national strategy and should also represent an integral element of the stocktaking analysis.

At all administrative levels the management of the coast is still predominantly segmented. However, since 1996 the European Commission has been working to promote and implement the principles of Integrated Coastal Zone Management. Progress has been made in the last five years but this has been largely driven from a national outlook. However national perspectives are often different from that perceived by local and regional authorities. The participation of local and regional authorities in implementing the Recommendation is therefore significant and should be encouraged.

Although different administrative levels have sectoral policies for the coast, there is little coordination in the implementation of ICZM. This approach has resulted in a policy vacuum that leaves local and regional authorities with little effective guidance on how to deal with many complex issues in an integrated manner. The basis of the Recommendation is to improve efficiency, consistency and accountability in the decision-making process. The adoption of the EU Recommendation on ICZM in 2002 instigated some progress in the level of integration between the different administrative levels and further progress is expected within the timescale of the EU Recommendation.

The EU Recommendation on ICZM requires Member States to undertake an overall stocktaking to analyse which major actors, laws and institutions influence the management of their coastal zone. In the majority of Member States the national government will assume responsibility for this exercise. However, local and regional authorities should not be excluded from this process. The Recommendation states that the stocktaking should “cover all administrative levels” and “identify relevant inter-regional organisations and cooperation structures”. The implication of the Recommendation is that the Commission expects that national government should recognise and framework the importance of local and regional authorities in the implementation of ICZM.

Many coastal issues have a strong local and regional component that cannot be adequately reflected in a single national approach. Local and regional policies should be complimentary to the national coastal strategy whilst enabling local and regional initiatives to work towards a common national aim. The local and regional policies should provide the interface between local coastal initiatives and national and European policy.

Coastal Issues requiring a local or regional perspective include, for example:

Local and regional authorities are often largely responsible for implementing effective coastal zone management and therefore make an important contribution towards national and European policy. Local and regional policy should facilitate the development of co-operation on issues of trans-national and inter-regional importance. This may include co-operation with neighbouring regions or with neighbouring regions in other countries.

One of the foremost consequences of the Recommendation on implementing Integrated Coastal Zone Management in Europe is anticipated to be the establishment of mechanisms for better coordination of responses to cross-border issues. This refers to both trans-regional and trans-national issues. Clearly, local and regional authority involvement is essential in order to deliver this objective.

Appendix 3

COASTAL MANAGEMENT AND LOCAL AND REGIONAL AUTHORITY POLICY IN EUROPE

QUESTIONNAIRE

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