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CW 5 2014 Governance Report HERRING C O A S T L I N E 2 0 1 4 - 0 5 W E B HERRING Governance Report Herring network institutions and governance H. V. Strehlow, D. Fey, A. Lejk, F. Lempe, H. Nilsson, I. Psuty & L. Szymanek T h e C o a s t a l U n i o n G e r m a n y EUCC-D D i e K ü s t e n U n i o n D e u t s c h l a n d Coastline Web 05 (2014) HERRING Governance Report Herring network institutions and governance Authors: H. V. Strehlow, D. Fey, A. Lejk, F. Lempe, H. Nilsson I. Psuty & L. Szymanek Rostock, Gdynia, Malmö 2014 ISSN 2193-4177 ISBN 978-3-939206-13-2 This report was developed in the project HERRING - Joint cross-border actions for the sustainable management of natural resource (2012-2014). The international project HERRING seeks to improve the sustainable and holistic management of herring fish in the South Baltic region, a major ecosystem resource, and with it both the reproductive capacity of the species and the success of future sustainable herring fisheries. More information about HERRING can be found on the project website: www.baltic-herring.eu. Partners: EUCC – The Coastal Union Germany Thünen-Institute of Baltic Sea Fisheries, Germany National Marine Fisheries Research Institute, Poland World Maritime University, Sweden and further 8 associated partners (from Germany, Poland, Sweden and Lithuania) Funding: EU South Baltic Cross-border Co-Operation Programme 2007-2013 Imprint Cover picture: Greifswald Bay (Picture: Franziska Stoll) Coastline Web is published by: EUCC – Die Küsten Union Deutschland e.V. Seestr. 15, 18119 Rostock, Germany [email protected] Coastline Web is available online under http://www.eucc-d.de/. The responsibility for the content of this report lies solely with the authors. EUCC – Die Küsten Union Deutschland e.V. Coastline Web 05 (2014) Selected Monographs in Marine and Coastal Science ISSN 2193-4177, ISBN 978-3-939206-13-2 - HERRING - Joint cross-border actions for the sustainable management of natural resource Governance Report Herring network institutions and governance Content Coastal Case Study Report: The Greifswald Bay, Germany 1. Introduction to the Case Study………………………………………………………… 3 2. Institutional framework and organizational settings…………………………………... 3 3. Data collection and methodology………………………………………………….….. 15 4. Research design for the German Coastal Case Study ‘Greifswald Bay’………….…... 18 5. Conclusion………………………………………………………………………..…… 33 6. References…………………………………………………………………….….…… 34 Coastal Case Study Report: The Vistula Lagoon 1. Introduction to the Case Study and general approach….……………………………… 37 2. Data collection and methodology ……………………………………………………... 45 3. Institutional framework and organizational settings………………………………….. 48 4. Coastal resource management discourse……………………………….…………….. 73 5. Conclusion…………………………………………………………………………… 89 6. References……………………………………………………………………………. 90 Annex 1………………………………………………………………………………… 92 Annex 2…………………………………………………………………………………. 96 Coastal Case Study Report: Hanö Bay and Blekinge Archipelago 1. Introduction…………………………………………………………………………… 99 2. Data collection and methodology……………………………………………………... 101 3. Institutional framework and organizational settings………………………………….. 101 4. Coastal resource management discourse……………………………………………… 107 5. Conclusion……………………………………………………………………………. 119 6. References……………………………………………………………………………... 120 Coastline Web 05 (2014) 3 Coastal Case Study Report: The Greifswald Bay, Germany 1. Introduction to the Case Study The German case study area of Greifswald Bay (GWB) is a semi-enclosed inner coastal water, formed by the mainland of Mecklenburg-Western Pomerania and the island of Rügen. GWB covers an area of approximately 514 km² and is characterized by a mean depth of 5.8 m with a maximum depth of 13.6 m. GWB is considered the main spawning area of western Baltic spring spawning herring (WBSS), which is also an important target species of the commercial fisheries in this region. In recent years, catches and spawning stock biomass of WBSS herring have declined. Moreover, despite a sufficient number of spawners, recruitment has declined considerably within the last decade, while reasons for this alarming decrease remain unknown. At the same time, human use and spatial demands in GWB are increasing. Consequently, anthropogenic impacts are changing the physical and biological environment, which may have negative effects on the spawning habitat and thus the success of egg and larvae development. During the spawning season from March through May herring migrates into the coastal waters to attach its eggs to underwater plants in the shallow littoral zone. It is assumed that there is natal homing in population of WBSS herring, highlighting the importance of individual and small-scale spawning sites for the overall population. Herring is one of the target species of the German fishery securing income opportunities early in the year in particular for the small-scale coastal fishery. The HERRING project is based on the idea that the coastal spawning grounds are key for a more sustainable management of the natural resource herring. Hence, the aim of the project is to develop more holistic management plans and strategy options for these areas that can be recommended to regional and international stakeholders. The three case studies in Poland, Germany and Sweden not only focus on the ecological parameters determining the quality of spawning areas and how they are affected by the various human activities, but also analyze the existing coastal and fishery management legislations regulating use and protection of coastal areas. 2. Institutional framework and organizational settings The successful implementation of marine ecosystem-based management requires an improved understanding of existing governance structures, including gaps and overlaps resulting from fragmented management (Ekstrom, Young, Gaines, Gordon, & McCay, 2009). Challenges rise when coordinating policies the way that they do not adversely constrain other policies. The increasing complexity of management systems and institutional arrangements aggravates the policy-making process. During the last decades a myriad of diverging claims on maritime and coastal areas have emerged that are still challenging the context for joint coordination and problem-solving on different political scales. The traditional usages like shipping, fishery, tourism and nature protection are complemented by the establishment of special protected areas, wind farms and disputes about fracking or the construction of a new gas and stream power plant. The number of stakeholders pursuing any kind of interest in this area or those that are provided with a formal political mandate in regard to the protection or the use of the Greifswald Bay (Greifswalder Bodden, GWB) has steadily increased. Consequently, tensions between different stakeholder interests and pressure on scarce natural resources are rising. The formal political system comprises institutional settings for fishery, nature conservation, spatial planning, mining and shipping that are subject to different jurisdictional 4 Strehlow et al. provisions. In the following chapters only those institutions and jurisdictions that have a relevance regarding the use and the protection of coastal zones are described, starting with the institutional framework for fishery. 2.1 Institutional framework of fishery Table 1: Fishing authorities on different political levels in Mecklenburg-Western Pomerania/ Germany Political Level Administrative bodies Laws and formal competencies EU-Level Directorate-General for Maritime Common Fishery Policy Affaires (DG MARE) Integrated Maritime Policy Federal government Federal Ministry of Food and of Germany Agriculture (BMEL) Federal Institute of Agriculture and Nutrition State/ Land State Ministry of Agriculture, State Fishery Law Nature Conservation and Consumer Protection [Highest regional fishing authority] State Research Institute for Fishery State Office for Agriculture, Food Coastal Fishery Law Safety and Fishery [High fishing authority] Region Fisheries supervisory authority Freshwater Fishing Law Community level Elected head of the administration Fishing Licence Law of the Landkreis (Landrat/Landrätin) and community mayors [Lower nature conservation authority] 2.1.1 Fisheries management on EU level Within the European Union, the Directorate-General for Maritime Affaires (DG MARE) is responsible for the implementation of the Common Fishery Policy (CFP) and the Integrated Maritime Policy. It is commissioned among others with conservation, control, market measures, structural actions and international relations relating to fisheries (EC 2013). There is a range of different EU-regulations in place for the management of commercial fish stocks e.g. herring, cod, sprat, salmon and plaice. Herring stocks are managed primarily by setting fishing quotas and total allowable catches (TACs). A specific management plan is still not implemented. While TACs are in place to manage the adult spawning stock biomass that has shown a slight increase since it was at its lowest level in 2011, the recruitment has strikingly decreased during the last years (ICES 2013). The precise reasons for the downward trend are still not known, but may be found in the complexity of the interplay between different ecosystem parameters. Changes in the physical and biological conditions of spawning areas are often subject to direct or indirect anthropogenic impacts. The preservation and improvement of spawning and nursery grounds combined with an adequate management concept is one
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