The Wadden Sea Forum: the Relevance of Stakeholder Participation for Sustainable Planning
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Sustainable Development and Planning II, Vol. 2 1291 The Wadden Sea Forum: the relevance of stakeholder participation for sustainable planning F. De Jong Common Wadden Sea Secretariat, Germany Abstract The Wadden Sea is Europe’s largest marine wetland area, bordering the North Sea coasts of the Netherlands, Germany and Denmark. Because of the international importance of the Wadden Sea as a nature area, large parts are protected under national and international laws and associated management schemes. Since 1978 the trilateral cooperation between Denmark, Germany and The Netherlands on the protection of the Wadden Sea has been dealing with the joint protection of the Wadden Sea ecosystem. In the course of the 25 years of cooperation several central elements of integrated management have been agreed upon. It concerns common objectives, a common delimitation and a common management plan for the area. What was still lacking was a structure for public participation. It was felt by the commercial sectors in the area that there was an imbalance between nature protection and social and economic development of the region and that nature protection rules and regulations would hamper socio-economic developments. With the installation in 2002 of an independent platform, the Wadden Sea Region stakeholders were given a better opportunity to present their views on the future of the Region, taking account of ecological, social and economic aspects, in other words, a sustainable development perspective for the Wadden Sea Region. In a three-year period of intensive discussions and negotiations a common approach to sustainable development of the Wadden Sea Region, focusing on the period 2005–2020, has been developed. Keywords: stakeholder participation, ICZM, Wadden Sea, sustainable development, nature conservation, trilateral Wadden Sea cooperation, Wadden Sea Forum, socio-economic perspectives, conflict management. WIT Transactions on Ecology and the Environment, Vol 84, © 2005 WIT Press www.witpress.com, ISSN 1743-3541 (on-line) 1292 Sustainable Development and Planning II, Vol. 2 1 Introduction The concept of sustainability entered into political parlance when the Brundtland Report was launched in 1987. It defined sustainability as development that meets the needs of the present without compromising the ability of future generations to meet their own needs. The content of the concept has changed over the last decade parallel to attempts by many organisations and countries to operationalise and implement the concept. It used to be associated with environmental protection but, nowadays, represents an attempt to balance and integrate economic, social, and environmental concerns. It was primarily a substantial concept, which stated a desired destination (something achieved) but is increasingly seen as a procedural concept: a learning process and rules for how we make decisions (COWI [1]). The concepts of integrated ecosystem management and integrated coastal zone management (ICZM), which emerged in the 1990s, aim at achieving sustainable development perspectives for the ecosystem under consideration and may thus provide guidance for sustainable planning (Christensen et al. [2], Grumbine [3]). This is particularly the case for the recommendation of the EU Council and Parliament on ICZM, in which EU member states are requested to prepare national strategies for ICZM, and to report progress to the Council by 2006 (EC [4]). The ICZM Recommendation provides more clarity about the contents and aims of ICZM and by this, the way to achieve sustainable development. The following principles should be part of ICZM: 1. A broad, holistic approach and strategic planning; 2. A long-term perspective; 3. A long-term process; 4. Reflecting local/regional conditions; 5. Work with natural processes; 6. Participative planning; 7. Involvement of all layers of government; 8. Use a combination of instruments: coherence. Also with regard to the national strategies to be formulated the ICZM Recommendation provides guidance. National strategies must address, amongst others: • National strategic plans for the coast to promote integrated management; • Contractual or voluntary agreements with coastal zone users, including environmental agreements with industry; • Particularly, identify measures to promote bottom-up initiatives and public participation; • Sources of durable financing for integrated coastal zone management initiatives; • Identify mechanisms to ensure full and coordinated implementation and application of Community legislation; • Adequate systems for monitoring and dissemination. WIT Transactions on Ecology and the Environment, Vol 84, © 2005 WIT Press www.witpress.com, ISSN 1743-3541 (on-line) Sustainable Development and Planning II, Vol. 2 1293 It is obvious that long-term strategic planning, the development of long-term perspectives and the involvement of stakeholders are central elements of ICZM. 2 The trilateral Wadden Sea cooperation Although most national states have no official ICZM strategy, there exist many examples of practices reflecting one or more of the above principles. It is in this respect important to realize that ICZM is a process. This is illustrated very well by the Dutch-German-Danish political cooperation on the protection of the Wadden Sea, in short the trilateral cooperation, which has, since 1978, developed an incorporated several ICZM elements and principles. During the last 25 years the three Wadden Sea countries have been working on the joint protection of the Wadden Sea ecosystem, which is, with some 14,000 km2, Europe's largest coastal marine wetland. The area which is subject to the trilateral cooperation has been defined the "Wadden Sea Area" (see Figure 1). The Wadden Sea Area is characterised by tidal mud flats and shoals, open sea areas, channels and estuaries, barrier islands, dunes and salt marshes and fertile marshlands, the latter mostly lying behind the dykes. It provides a multitude of transitional zones to the land, the sea and the freshwater environment, which is the basis for exceptional species richness. It is a very important breeding area for many species of coastal and meadow birds. With an average of 10 million birds passing through this area, the Wadden Sea Area is one of the world's most important wetlands for migratory waterbirds. The trilateral cooperation on the protection of this ecosystem has been shaped by nine governmental conferences, the first of which was held in 1978 in The Hague, The Netherlands. By 2000 the following ICZM principles and strategy elements were part of the trilateral cooperation: • A common secretariat, facilitating the political cooperation between the Wadden Sea nations; • Coordinated implementation of EU legal and management instruments; • Common objectives and management principles for ecosystem conservation; • A common delimitation of the area (see figure 1: Wadden Sea Area); • Common targets for the ecosystem, the landscape and cultural history; • A common management plan; • A Common monitoring programme. To be added to this list is the fact that the trilateral cooperation has cooperated closely with regional governments, who participate as observer in the trilateral working group (TWG), the body responsible for the implementation of trilateral decisions and the preparation of governmental conferences. Since 2000 also non- governmental organisations have participated as observer in the TWG. There can be no doubt that the trilateral Wadden Sea cooperation has made considerable progress into the direction of a genuine ICZM strategy. From the perspective of the EU principles there are, however, some deficiencies. WIT Transactions on Ecology and the Environment, Vol 84, © 2005 WIT Press www.witpress.com, ISSN 1743-3541 (on-line) 1294 Sustainable Development and Planning II, Vol. 2 Figure 1: The Wadden Sea Region. First, the emphasis of the trilateral activities is on the Wadden Sea itself, i.e. the tidal area, the islands and the adjacent offshore North Sea (see figure 1: Wadden Sea Area). The integration with the mainland is largely lacking, which can be explained by the fact that the historical roots of the cooperation are about nature conservation of the Wadden Sea ecosystem. Exceptions are the Danish marsh areas on the mainland, which are part of the Wadden Sea Area, as well as the trilateral activities in the field of landscape, and cultural history, which cover substantial parts of the adjacent mainland. A second deficiency is participatory planning. Although, as stated above, non-governmental stakeholders participate as observers, user groups in the area are not involved in the planning and implementation of nature conservation activities that might have an impact on their activities. Already in 1994, at the 7th governmental Wadden Sea Conference, the importance of public awareness and participation was underlined and it was agreed to involve individuals, groups and authorities concerned in decision- making processes. Three years later, at the 8th Wadden Sea Conference, a common management plan for the conservation of the Wadden Sea ecosystem (the Wadden Sea Plan: WSP) was adopted and the inhabitants of the region invited to contribute to the implementation of this plan. At the 9th governmental WIT Transactions on Ecology and the Environment, Vol 84, © 2005 WIT Press www.witpress.com, ISSN 1743-3541 (on-line) Sustainable Development and Planning II, Vol. 2 1295 conference in 2001 this request was substantiated through the decision to install a trilateral platform