National strategy on integrated coastal zone management for 02 Assessment of the existing state

21 National strategy on integrated coastal zone management for Montenegro

2.1 Natural and cultural heritage important for biodiversity preservation. On the sand 4 / Dr Danka Petrović: Detailed habitats dunes of Velika beach, unique halophytic vegetation mapping by applying GIS on 4 ecological Diversity of geologic base, landscape, climate and priority sites, CAMP MNE (2012). is found. Salinas and salt works are local- land, as well as geographic position of Montenegro ities of great importance with halophytic vegetation in the Balkan peninsula provided for development of on muddy-clay grounds. This type of vegetation has high-value biological diversity. This categorises Mon- almost disappeared from the eastern coast of the Adri- tenegro into biological “hot-spot” locations of impor- atic, and in Montenegro it can only be found on said tance both in Europe and worldwide. The coastal zone localities. Specific fauna, particularly rich birdlife, is of Montenegro is also characterised by a high degree also typical for this vegetation. of diversity and specific habitats and species. In addition to algae flora, seaweed meadows of Po- Due to favourable geomorphologic and geographical sidonia oceanica and Cymodocea nodosa can be characteristics, human presence at the found in the marine ecosystem. A substantial number coast dates back to younger stone age. Millennia-long of animal species is linked to their life cycle. The Adri- presence of human communities, coupled with spec-

SOURCE: National Tourism Organisation atic Sea fauna has still not been completely explored, ificities of the natural position and influences of dif- however recent data has shown that more than 40 spe- ferent cultures have been turned into a rich cultural heritage of the Montenegrin coastal zone. cies of sponge, 150 crustacean species, 340 molluscs, over 400 fish species, three sea turtle species, and four 2.1.1 Biodiversity and specific ecosystems dolphin species live in the Montenegrin part of the Adriatic. Typical coastal and seaside habitats are found on the rocky coast (cliffs), numerous natural sand beaches, as In the land part of the coastal zone there are locations well as on (eight) small isles. On the southern slopes with vulnerable biodiversity which should be protect- of coastal mountains, typical Mediterranean vegeta- ed from negative impacts, particularly by preserving tion of macchia and garrigue has developed, and on their completeness, and these are: , Boka Ko- lower terrains and the coast itself – halophyte vegeta- torska Bay, Vrmac, , Rumija, Šasko jezero, Ve- tion, as well as cultivated terrains with olive and fruit lika beach, as well as parts of natural preserved coast. groves. Coastal mountains Orjen, Lovćen and Rumija Based on a detailed mapping of terrestrial habitats, (with the surrounding hills and mountainous areas) by applying multi-criteria approach, the habitats on are considered diversity centres of vascular flora. Velika beach, Tivat Salinas, Buljarica and Platamuni4 have been assessed as particularly valuable. Zones of Coastal zone sites where greatest number of habitats high vulnerability are shown on map 2-1. In the ma- of international importance occurs (including marshy rine part of the coastal zone, habitats of Posedonia habitats) are: Ulcinj region including its hinterland, oceanica, as well as underwater caves have been as- in particular Velika beach and Ada ; Buljarica; sessed as vulnerable. and certain still preserved parts of the Boka Kotorska Bay. Confluences of rivers (Bojana, and other Zones of vulnerable or valuable biodiversity to a sig- small water flows) also make a part of coastal habitats nificant extent coincide with the network of the exist-

Our Lady of the Rocks (Gospa od Škrpjela) and Sveti Đorđe Island (Sv. Đorđe) 23 National strategy on integrated coastal zone management for Montenegro National strategy on integrated coastal zone management for Montenegro

5 / A review of potentially protected natural areas is proposed in the NS ICZM MNE on the basis of previous valuation of natural habitats and ecosystems of the coastal zone.. 6 / Potential sites are: 1) Luštica (from Mamula to Mačak cape); 2) zone from Trašta cape to Platamun (with a narrow zone of strict protection from Žukovac cape to Kostovica cape); 3) wider zone of Katič isle; 4) zone from Volujica cape to Dobre vode; 5) zone from Komina cape to cape by Stari Ulcinj isle; 6) cove zone to Velika cove; and 7) Seka Đerane with the southern part of the zone in front of Velika beach to Bojana river mouth. 7 / In accordance with the provisions of Pećin − sea cave Posidonia Oceanica the Law on nature protection. 8 / Under the Decision on protection Figure 2-2: Marine habitats (Source: MPA Katič Project) of natural objects (Official Gazette of Montenegro no. 76/06) several species of Evergreen oak, holm oak – Quercus ilex Oriental Hornbeam – Carpinus orientalis oak trees located at different sites have been protected, as well as the old olive ing and planned protected natural assets. The existing as well as the area of - Bay with the town of tree on Mirovica in Bar. spatial planning documentation contains proposals Kotor (which is protected under a municipal regula- 9 / Within the Assessment of general for placing under protection new protected natural tion and is on the UNESCO list of natural and cultural vulnerability of the coastal zone of MNE, CAMP MNE (2012) and the Vulnerability assets in the terrestrial part of the coastal zone as fol- heritage). Due to their importance for coastal zone bio- assessment of the narrow coastal zone, lows: national park Orjen, regional parks Rumija and diversity, several individual dendrologic objects have CAMP MNE (2013). Vrmac, monuments of nature (terrestrial) Ulcinj salt also been protected8. In a situation where boundaries works, Šasko Lake and Ada Bojana5. of the existing protected natural assets are not defined precisely and where the zones of potential protected There were no new designations of protected areas at natural assets (which have been recognised as valu- the coast over the last couple of decades (with the ex- able in the valid spatial planning documentation) emption of Tivat Salinas). Even though strategic and have been approximately defined, the available data planning documents envisage proclamation of marine 9 protected, they have not been established yet, whereas has been analysed by using GIS . Based on the results basic surveys have been carried out for a significant obtained, it has been established that the share of ter- number of marine sites6. restrial protected natural assets in the overall surface of six coastal amounts to 8.6% (including The existing protected natural assets7 include parts of land part of UNESCO’s protected area of the Kotor-Ri- Olive – Olea europae Pistacia lenthiscus the national parks Skadar Lake and Lovćen, special san Bay), while the share of potential protected nat- nature reserve (Tivat Salinas), several monuments of ural assets amounts to 18.8%. Zones of the potential Figure 2-1: Examples of vascular flora nature (including around 20 beaches and other sites), marine protected areas have also been approximately Source: Institute for Nature Protection of Montenegro) several landscapes with special natural characteristics, defined, taking into account sites recognised by the

24 25 National strategy on integrated coastal zone management for Montenegro

SP MNE and SPSP for the public maritime domain, as habitats. Bird fauna linked to these habitats is en- 10 / Rare and endangered psammo- 11 phytes and halophytes at this location are: well as sites identified through implemented research dangered due to hunting . Cakile maritima, Xantium italicu, Salsola projects. The overall surface of these areas amounts to kali, Euphorbia peplis, Euphorbia paralias, 9,000 ha (including marine areas and corresponding −− Even though accurate data is missing, it is obvi- Polygonum maritimum, Atriplex hastate, ous that an important part of the existing pro- Echinophora spinosa, sea holly Eryngium coastal belts). The zones of the existing and planned maritimum, Agropyrum junceum, Medi- protected natural assets are shown on map 2-2. tected natural assets has lost a part of or all the cago marina, Inula crithmoides, Lagurus characteristics due to which they were placed un- ovatus, Cuscuta sp. The existing system of protected natural assets man- der protection in the first place. Such examples 11 / National Biodiversity Strategy with agement has shown numerous deficiencies and does include parts of Bečići and Slovenska beaches, the Action Plan 2010-2015 12 / According to the provisions of not provide for preservation of completeness and hills Spas, beach Pržno and other locations. Articles 30 – 34 of the Law on nature integrity of coastal ecosystems (on land and at sea). protection Results of the analysis of drivers, pressures, state and −− Identification and establishment of the national 13 / Emerald sites in the coastal zone are: 12 impacts, and of the key problems and weaknesses are Ecologic Network has not been finalised. The 1) Kotor-Risan Bay; 2) Platamuni; 3) isles network should include all the areas with specif- Katič, Donkova and Velja Seka; 4) Tivat described in chapter 3, section 3.1. Regarding the ex- Salinas; 5) Buljarica; 6) hill Spas; 7) beach isting state, the following assessments can be singled ic coastal habitats whose protection is mandato- Pećin; 8) Orjen; 9) Lovćen; 10) Rumija; out due by their importance: ry in line with the ICZM Protocol requirements. 11) Velika beech and Ulcinj saltworks; 12) The list of Emerald sites was defined in 2008 and Šasko Lake, river Bojana, Knete, Ada; 13) −− Managers of protected natural assets in the coast- verified by the Standing Committee of the Bern the Skadar Lake. 14 / This refers to the following zones: al zone have not been established in the period Convention in 2012, and it encompasses 13 areas Vrbanja; Kruševice (south from the settle- 1968 – 2014, nor were measures of active care- in the coastal zone13. ment) and Mokrine – Kameno; Prijevor – taking implemented. The national parks repre- Mojdež and Ratiševina – Trebišinj; Žlijebi and - Šašovići – Kudi; Kuti; Bijelske sent an exception, and the same applies to Tivat −− Development and spatial plans envisage a num- Kruševice; Biljela – Jošice and Đurići; Salinas since 2014 when its manager has been ber of interventions the implementation of which Pobori i Ostrog; Prijevor; Kuljače; Buljarica; designated. Amendments to the Law on nature could endanger natural values of particular sites, Velika beach. protection from 2013 place responsibility for whereas stability and resilience of important management of other protected natural assets in coastal ecosystems would become uncertain. The the public maritime domain zone on the Public Assessment of general vulnerability of the coastal Enterprise for Public Maritime Domain Manage- zone identified geographic areas14 in which, due ment. to high value of biodiversity, conflicts in the exist- ing use of space should be eliminated or mitigat- −− Protection measures for valuable ecosystems out- ed (through land use optimisation). side nature protected areas are rarely planned and implemented, which results in frequent ex- amples of degradation of specific coastal habitats and species. Sand dunes on Velika beach10 with remaining fragments of the Skadar oak Quercus robur scutariensis forests in its hinterland have been recognised as the most endangered coastal

Map 2-1: Biodiversity vulnerabilities 27 SOURCE: CAMP

Map 2-2: The existing and planned protected natural assets Valdanos National strategy on integrated coastal zone management for Montenegro

2.1.2 Cultural heritage municipalities there are in total 735 immovable cul- tural assets; distribution by municipalities is the fol- Cultural heritage of the Montenegrin coast is charac- lowing: Ulcinj 15, Bar 57, 51, Tivat 26, Kotor terised by a high degree of diversity considering both 459, and 127. For another 290 assets it style and chronological characteristics and cultural has been determined they possess potential cultural and historic values, and its basic functions. values, and these are distributed by municipalities as follows: Ulcinj 27, Bar 62, Budva 27, Kotor 62, Tivat 41 According to data of the Administration for the Pro- and Herceg Novi 71. As for submerged archaeological tection of Cultural Heritage, within the area of coastal sites, 28 cultural assets have been registered.A com-

Figure 2-3: Cultural heritage (old towns, fortifications, sacral objects) Source: Special purpose spatial plan for the coastal zone of Montenegro (SPSPCZ MNE, Planplus d.o.o., December 2013)

Map 2-3: Immovable cultural assets 30 National strategy on integrated coastal zone management for Montenegro National strategy on integrated coastal zone management for Montenegro

15 / http://whc.unesco.org/en/deci- prehensive strategy of Montenegrin cultural heritage re-assessment project aiming to confirm the value of sions/6016 protection is still missing. Management plan for natu- movable and immovable cultural assets in Montene- 16 / http://whc.unesco.org/en/list/125/ documents/ ral and cultural-historic area of Kotor was adopted in gro, and define measures to improve the state of the 17 / Official Gazette of Montenegro, 2011. This document, as well as decisions of the UNE- cultural assets whose value is endangered, is in its fi- no. 56/13 SCO World Heritage Committee15 and other relevant nal stages. reports16 identified problems and recommendations of importance for protection of natural, cultural and 2.1.3 Landscape values of the coastal zone historic Kotor area as UNESCO world heritage. A spe- Landscape diversity of the coastal zone represents cial Law on protection of natural, cultural and historic natural wealth and a significant resource which con- area of Kotor has also been adopted17. tributes to tourist recognisability and attractiveness. Irrespective of the fact that its protection has been Cultural patterns as an element of cultural identity regulated by legal norms, submerged cultural heri- and heritage have been created through the influence tage has not been protected in a physical sense. This of human activities on landscapes. Based on valu- part of cultural heritage is not adequately mapped ation of types of landscape character in the coastal even though it has been identified and its specific zone, three categories of exceptionally valuable land- locations have been registered in individual studies. scapes important for preservation of authenticity and beauty of the coastal zone of Montenegro stand out: The value of cultural assets has been gravely dimin- ished by years-long neglect of the cultural heritage −− Natural and semi-natural landscapes: marine in development plans, low priority of maintenance, water area; coast (low and steep – reef and rocky conservation and remediation measures, at times un- coast); forests, brushwood and forest land (natu- controlled construction and lack of compliance with ral forests, brushwood, meadows and pastures); regulations. Beside urban units, rural and old settle- water surfaces (water flows/standing water, tor- ments located along the coast have been affected by rent flows, wetlands and salinas). negative impacts of construction. Problems are par- −− Cultural landscapes: ambience units and archi- ticularly pronounced with archaeological sites which tectural heritage – old towns, sacral objects, for- are threatened by unplanned construction, while as tifications etc., landscaping objects. submerged archaeological sites, particularly those containing amphorae, have been exposed to devasta- −− Special agricultural landscapes: flattened fields tion due to illegal trade. of alluvial and alluvial-colluvial soil; terraces and plateaus on flysch and karst terrain; special Protection of cultural assets is implemented on the agricultural areas, important for preservation of basis of annual and long-term plans and programmes cultural heritage and landscape characteristics, which, with the exception of solutions for conserva- developed as a result of application of tradition- tion and restoration works, envisage interdisciplin- al procedures in cultivation and maintenance of ary research. A certain degree of protection is also agricultural soil (arranged olive groves, terraced performed through spatial planning documents. A areas, etc.).

Figure 2-4: Selected types of landscape characters (Source: CAMP, 2013-2014) 32 33 National strategy on integrated coastal zone management for Montenegro

Landscapes are exposed to the impacts of accelerated −− human resources – knowledge and abilities. 18 / Article 14 of the Law on the sea (Official Gazette of Montenegro no. transformations that often lead to negative changes. 17/07 dated 31.12.2007, 06/08 dated Processes that have the most significant impact on 2.2.1 The sea 25.01.2008, 40/11 dated 08.08.2011), ter- landscape include urbanisation and infrastructure ritorial sea of Montenegro is defined as 12 Montenegrin sea consists of two substantially differ- nautical miles wide marine belt, counting development that undermine the system of linkages ent areas judging by their geographic, hydrographic from the basic line towards the sea. and lead to landscape fragmentation. Inadequate sit- and oceanographic characteristics: the Boka Kotorska ing of tourist and recreational attractions in the most Bay and the open sea extending from the coastal valuable parts of the coastal zone leads to disappear- line18. The total surface of the marine water area is ance of natural habitats and homogenisation of land- 6,347 km2, and of the territorial sea around 2,100 scapes. Depopulation of rural areas and abandon- km2 (of which 89 km2 in the Boka Kotorska Bay). ment of the traditional way of land cultivation lead to Maximum registered amplitude of change in the sea changes in and disappearance of landscape character level due to tide is 131 cm. as a basis of cultural identity of the coastal zone. The sea is one of the most important resources and 2.2 Coastal zone resources basis of development of economic activities such as bathing and nautical tourism, maritime transport, Intensified and often uncoordinated use of coastal ship building, fishery and aquaculture. Other than and marine resources which we are seeing both in these, the sea offers possibilities for economic activi- Montenegro and internationally has resulted in com- ties which are currently not developed in Montenegro petition between different (often conflicting) uses of – biotechnology, exploitation of living and inanimate the sea and the coast, and unsustainable use of coast- components of marine environment for pharmaceu- al zone resources. Beside intensification of resources tical purposes, exploitation of minerals, oil and gas, use, the effects of anthropogenic and natural hazards energy, and other. Marine ecosystems provide a series create additional pressure on coastal and marine re- of services (production, cultural, and other) which sources. In order to provide for sustainable growth are of utmost importance for economy and wellbeing and preservation of natural, landscape and cultural of people. The overall value of benefits from services values, it is necessary to ensure sustainable, integral provided by marine ecosystems in the Mediterranean and coherent management of Montenegrin coastal basin in 2005 was, for example, estimated to over 26

SOURCE: National Tourism Organisation zone resources including: billion € (Blue Plan, 2010).

−− natural – the sea, water, land, and space; Montenegrin marine resources are exposed to nu- merous and diverse pressures which primarily in- −− economic – primarily in agriculture, fishery and clude impacts of pollution from untreated communal aquaculture sectors, maritime transport and ship waste water, solid waste, ship building/ repair, from building; ports and marinas (which as a rule are not adequately equipped to accept waste from vessels and minimise −− social capital – interconnections and cooperation negative impacts on the marine environment), as well between social actors; and as from vessels and industry. Vulnerability Assess-

Queen’s Beach (Kraljičina plaža) – Čanj 35 Map 2-4: Cumulative vulnerability of the sea (average value) Map 2-5: Total pollution/ the extent to which the sea is endangered (maximum value) National strategy on integrated coastal zone management for Montenegro

19 / The most important springs are: ment (based on data from the Monitoring programme tion are under way. The aim is to increase the level of , Bunar, Kajnak, , Čanj, , Škurta, Črvanj, Bijela skala, Salč, on the state of Montenegrin coastal sea ecosystems connection of population to sewage systems to 85% Gač, Klezna I and II, Lisna-Bori, Mide I which was carried out in the period 2008-2011) has by 2020, and to build first phase treatment systems in and II, Reževića river spring, Podgorska shown a high vulnerability of the sea in Boka Ko- all municipalities. vrela, Sjenokos, Zagradac, Merkur, Plavda, Topliš, Škurda, spring in the Vrmac tunnel, torska, at certain locations in Budva, Petrovac, Suto- springs Opačica and Sutorinsko polje. more, Bar, and Ulcinj, as well as at the open sea (map 2.2.2 Waters Regional water supply system for the 2-3). The following were singled out as exceptionally Montenegrin coastal zone uses spring Montenegrin coastal zone as well as the southern vulnerable: narrow part of the Boka Kotorska Bay, part Bolje sestre from Skadar Lake (minimum Adriatic marine water area are characterised by a flow of about 2.5m3/s). between Bijela shipyard Porto Montenegro port, the high level of precipitation (with unfavourable season- Bay of and the narrow shallow belt from Val- al oscillations), but also a high runoff. Due to relative- danos to the Bojana river mouth. The narrow coastal ly fast infiltration through the porous surface, water belt of the open sea and the Boka Kotorska Bay are balance is unfavourable, and there is a lack of water also very vulnerable to pollution from possible acci- in critical periods (vegetative and tourist season pe- dents at the sea. riods). Except for the river Bojana, all rivers have fast The map on total level of marine pollution (map 2-4) and short courses with major fluctuations in the flow, shows a high degree of vulnerability of the Boka Ko- and are often of torrential character. Hydrologic ob- torska Bay and the Bay of Tivat, ports in Budva and servations and continuous measurements over a lon- Bar, and stretches from Ulcinj to Port Milena. Water ger period of time (around 20 years) exist only for the and sediment pollution is particularly pronounced in rivers Bojana, Željeznica and Sutorina, as well as for the immediate vicinity of Bijela shipyard and within the Reževića river (for the latter the latest observation a short reach from the site of former ship overhaul in- of water level has been carried out only over a period stitute “Arsenal” where high concentrations of heavy of 16 years). As for standing waters, there is only Šas- metals and organic pollutants have been registered. ko lake in this area. Skadar Lake does not physically The level of pollution at the open sea is lower due to belong to the coastal zone, but it is important because relatively big depth and good mixing of waters. of its influence on the upper flow of the Bojana river.

Communal waste water is the main source of sea pol- Groundwater sources occur in the form of karst and lution in the entire coastal zone. Efforts to improve condensed aquifers and aquifers which are formed in waste water collection, treatment and discharge sys- specific conditions of the three main hydro-geologic tem are on-going, whereas a significant improvement units in the coastal zone (coastal belt, Cukali zone has been achieved due to enhancement of sewage net- and high karst). Even though drinking water reserves work (connections with main collectors and expan- of karst aquifers are significant, they are insufficient sions). A treatment plant with the capacity of 110,000 for water supply, mostly due to unfavourable precip- PE (with two small plants in Jaz settlement) has been itation pattern and a steep increase in water demand constructed in Budva. Other five municipalities do during the summer period. Salt water intrusion also contributes to problems with using local groundwa- not have waste water treatment plants, but activities 19 to develop project documentation for their construc- ter springs for water supply . Mineral waters occur in

Map 2-6: Vulnerability of surface waters 38 National strategy on integrated coastal zone management for Montenegro

the coastal zone of Njivice and Ulcinj. Beside miner- roundings of mineral springs, zones with peloid de- 20 / Areas that have been assessed as the ones exhibiting very high vulnerability al waters, there are also mud deposits significant for posits as well as zones around springs, water occur- are those where changes of surface water balneological purposes. rences and water objects have been also singled out regimes are unacceptable. exceptionally vulnerable. 21 / Assessment of general vulnerability The existing state of exploitable reserves in the of the coastal zone of MNE (2012). groundwater deposits during dry period as well as a Pollution above the allowable limits (in reference to the 22 / The river Bojana receives pollution from the entire catchment area (waste poor state of hydro-technical infrastructure point to prescribed quality classes) has been registered in Boja- water of the town of Skadar has a direct the need to optimise use of the existing deposits, dis- na and Sutorina rivers. Pollution load in Bojana river impact, as do settlements along the cover new ones and level the annual flow of the most is already high at the very source22, but due to a large banks on both Montenegrin and Albanian side; agriculture and catering and significant karst springs. Systematic observations of amount of water its quality parameters remain with- tourism activities at the very confluence changes in the abundance of either permanent or in the prescribed limits (class A2,C,II) until the low- also have direct impacts – the latter er part of its flow where (at station) excess are situated on the right river branch occasional springs in their outflow zones, changes in which belongs to Montenegro; industrial chemical traits, salt water intrusion and other import- concentrations of some pollutants have been recorded. sources and communal waste water from ant parameters do not exist. Another point of concern Slowed flow and closing up of the riverbed profile at the wider catchment area of the river the very mouth of the river (due to sediment deposits on Montenegrin territory have indirect is that protection zones have not been defined for all impacts). Due to pollution, the river the springs used to supply the coastal region with wa- and relatively shallow depth) amplify pollution effects. Bojana’s water occasionally exceeds the ter. prescribed quality class for suspended As for the Sutorina river water, majority of measured matter, nitrites, ammonium, COD, Fe, Mn, Hg, and mineral oils. parameters exceeds the prescribed quality class Permanent and significant intermittent water flows 23 / Significant pollution sources include 20 23 are characterised by a very high vulnerability . Šasko (A1,S,I). Pollution of the river Sutorina has a special agriculture, slaughterhouse at Debeli Lake is extraordinarily valuable and it is also charac- weight due to the fact that peloid deposits accumulat- brijeg, petrol stations, car servicing shops, ed at its mouth are used for health purposes. and household waste water. The major- terised by a high vulnerability; Skadar Lake is high- ity of measured parameters, except for ly vulnerable too. Zones of smaller torrential flows organic contaminants and some metals, across the entire coastal region can be categorised as There is no water quality data for intermittent surface exceed the prescribed quality class; devia- tions are especially high for the following medium vulnerable. Areas already exposed to excep- watercourses, but the nature of numerous pollution sources to which they are exposed has been identified. parameters: colour, turbidity, COD, BOD5, tionally high and diverse impacts given the extent to oxygen saturation, NO2, NH4, Hg. Small quantity of water in river beds for major part of which they are developed and numerous pollution the year exacerbates their susceptibility to pollution. sources have relatively low vulnerability. Surface wa- Data on groundwater pollution is incomplete, but the ters vulnerability21 is shown on map 2-6. Vulnerability available ones allow for conclusion that groundwater related to the impacts of flooding will be discussed in sources are in principle not endangered by the exist- more detail in the section on natural hazards. ing waste disposal sites (with the exception of Pode As for groundwater, the areas of highest vulnerability near Herceg Novi which can have an impacts on Mo- (map 2-7) are the zones of carbonate rocks of cavern- rinjski springs). ous-cracked porosity and good karstification. Zones of sanitary protection of springs, sanitary protection 2.2.3 Soil belt around the Montenegrin coast Regional water Highly diversified and complex petrographic and supply system pipeline, zones in the immediate sur- lithologic composition of the coastal belt made occur-

Map 2-7: Groundwater vulnerability 41 National strategy on integrated coastal zone management for Montenegro

24 / Proposal of Montenegro’s Action rence of different types of soil in the coastal zone pos- conversion of agricultural land into construction ar- Plan to Combat Soil Degradation and 24 Mitigate Consequences of Droughts sible . Terra rossa and chernozem dominate on karst eas (discussed also in section 2.3 on spatial planning), from 2014 soil, and to a lesser degree calcic cambisol. On flysch pollution and erosion (elaborated in section 2.4 on and other silicate bases there are eutric and distric natural hazards). Improper waste disposal stands out cambisol, and in the coastal fields and coves alluvial as one of the main pressures on soil. As far as possible – colluvial soil. Coastal zone soil is an important re- soil contamination due to improper waste disposal source in economic and ecological sense – as a basis and conversion of agricultural into construction land for development of agriculture and an element that are concerned, the most vulnerable are areas in Su- allows for preservation of ecosystems stability and kobinsko, Grbaljsko Barsko, Grahovsko, Ulcinjsko and numerous services they provide (including erosion Anamalsko fields, as well as areas in Kaliman and Štoj prevention). and arable areas in Luštica. The coastal soils (includ- ing beaches) are particularly sensitive to any kind of The largest areas highly suitable for agriculture (map pollution from land or the sea. 2-12) are found in the of Ulcinj. These are flat alluvial and colluvial soils – Ulcinjsko field, Locations polluted by harmful and hazardous inor- Štoj, Šasko and Anamalsko fields. In the municipal- ganic and organic matter that have a negative impact ity of Bar, in addition to smaller complexes at the on the sea (due to pollution wash off ) include land northern part of the municipality, Barsko field is parts of Bijela shipyard and location of the old waste particularly suitable. However, the field has already disposal site Kruče near Ucinj. Other than these, soil been urbanised to a large extent and intersected with pollution hot-spot sites also include old waste dispos- infrastructure. In other municipalities, areas of high al sites (that have not been remediated) for the towns suitability are smaller but still important (Sutorinsko, of Herceg Novi, Bar, Kotor and Ulcinj. Map 2-8 shows Kutsko, Tivatsko, Mrkovsko and Mrčevo fields stand total pollution/ the extent to which land is endan- out). gered and it covers air and noise in addition to soil pollution. Smaller complexes of agricultural land where conver- sion and pollution i.e. degradation of soil would have Pressures generated by improper waste disposal have unacceptable impacts and where future interventions been significantly reduced since the start of operation should be avoided to the greatest possible extent are of the sanitary landfill Možura that currently accepts also of major significance. It is important to mention around 62,000 tons of communal waste from Bar, that various documents present substantially differ- Ulcinj, Kotor, Budva, and Tivat on an annual basis. ent assessments of the existing areas of agricultural The municipality of Herceg Novi disposes of 14,500 land that should be preserved, and also that there is t of communal waste at the temporary disposal site no unique map with quality classes of agricultural Tisove grede (while construction of a sanitary landfill land. Duboki do is planned). Around 16,000 t of construc- tion waste and 45,000 t of biodegradable waste are Processes and phenomena that have the biggest im- generated in the coastal zone annually. pact on the loss of important soil characteristics are

Map 2-8: Total pollution of the land: grades 3 (high impact), 4 (very high impact) and 5 42 (inadmissible/ unacceptable impact) National strategy on integrated coastal zone management for Montenegro National strategy on integrated coastal zone management for Montenegro

25 / Definition from the Law on spatial 2.2.4 Spatial development of Italy, France, and Spain, it can be seen that these quences such as soil erosion, environmental pollution, The third indicator of sustainability of spatial develop- planning and construction of objects (Of- states, with substantially higher population density deterioration of cultural heritage, etc. ment is quality and the extent to which the built space is ficial Gazette of Montenegro, no. 51/08, Spatial development refers to man-induced changes 40/10, 34/11, 47/11, 35/13, 39/13). than the one in the Montenegrin coastal zone have a arranged. It refers to functional and physiognomic-mor- in space aiming at protection, improvement, use, and 26 / Application of selected indicators for lower share of planned construction areas (on aver- The second indicator of sustainability of spatial de- phologic characteristics of the built environment and the management of space25. Coastal zone area represents monitoring and evaluating sustainability age around 30%, as compared to 46%). The surface of velopment is the existence of conflicts between the level to which it is equipped with communal infrastruc- of spatial development of the coastal zone a key development resource of Montenegro. However, impacts of urbanisation processes on the space and its of Montenegro, CAMP MNE (2013). planned construction areas which has not been built ture. Physiognomic-morphologic characteristics refer even a superficial assessment reveals that pressures yet (19,042 ha) is sufficient to accommodate housing vulnerability. Out of the total surface of undeveloped to the quality of design, morphology and composition from unsustainable urbanisation, especially linked to capacities where additional 600,000–800,000 inhab- construction areas, 80% is on locations of high or very values of the matrix of settlements, respect of the orig- real estate business, have resulted in numerous exam- itants could live (in line with the existing construction high vulnerability. Comparative analysis of the areas inal landscape values and of valuable elements of local ples of endangering the environment and the natural, density) and tourist capacities for at least 270,000 of high vulnerability, planned construction areas and traditional typology of settlements. Beside communal landscape, and cultural values of the coastal zone. new beds. These facts clearly indicate the scale of the extent to which the space has been built so far has infrastructure, an important element of settlements’ oversizing the construction areas. revealed 35 zones where there are conflicts between functionality, which is often missing in the coastal region Use of indicators of spatial development’s sustain- non-built construction areas (with surfaces of more settlements, is the system of public surfaces and public ability is of exceptional importance for enabling effi- Planning of construction areas several times larger than 50 ha) and areas assessed as the most vulnerable amenities. Green areas, in particular public ones, are also cient monitoring of the transformation of space in the than necessary represents an unsound use of valuable ones. These conflict areas are shown on map 2-8. An an important element of functional arrangement, good coastal zone. The first indicator of intensity of urban- and non-renewable spatial resources, but also has nu- additional risk with hypertrophic construction areas is design and environmental protection of settlements. isation pressures has been developed by analysing merous additional negative consequences such as: initiation of numerous dispersed, small and non-har- Architectural shaping of certain buildings and their im- valid spatial planning documents and the real level of monised interventions outside the settlements that mediate surroundings is important for the assessment development based on orthophoto images from 2011. −− dispersed construction with significantly higher irrevocably devastate the space and diminish develop- of quality of built environment too. In the coastal zone The analysis26 has shown that construction areas in costs of communal arrangements; ment potential of the coastal zone. there are numerous examples of construction that does the coastal zone are largely oversized in relation to not contribute to preservation and increase in the quali- the number of inhabitants and tourist capacities. −− unnecessary consumption of other valuable re- In addition to conflicting land uses on land, there are ty of built environment. Some of them are shown in fig- The share of construction areas in the total surface sources, especially agricultural and forest land conflicts in the use of marine areas too. Use of the sea ure 2-5. of six coastal municipalities in Montenegro is 15.5%, and areas with valuable biodiversity; generates impacts on the marine environment, while whereas only 18.5% have been actually built. The re- the characteristics of marine environment enable (al- Even though it is not easy to give an objective assess- maining 81.5% or 19,042 ha comprise non-developed −− higher energy supply costs and higher consump- leviate or aggravate) the use of sea resources. Different ment of the quality of built space, a simple field visit construction areas. The same indicators for the 1 km tion of fuel; activities taking place in the sea make an impact on provides an insight on the state in space and proportions wide belt from the coastline shows that as much as the state of the environment, giving occasionally rise of the existing problems along the Montenegrin coast. −− higher environmental pressures; as well as 46% of the territory is planned for construction, out to pollution levels that lead to degradation of marine Quality, authenticity and identity of the built environ- environment. When characteristics of the degraded ment should be particularly important for destinations of which less than a third (30%) has been developed. −− loss of the traditional physiognomy of settle- For the sake of comparison, share of construction ar- environment cease to meet the needs for development that have potential and ambition to develop high quali- ments and diminished original landscape values. of an activity, the latter cannot function or it functions eas in the overall territory of Croatian coastal coun- ty tourism, such as the coastal zone of Montenegro. Al- with decreased efficiency. Very often, the activity itself ties (which have population density similar to that of though the main attraction factors of the coastal tourism In economic sense and with long-term perspective, adversely affects the state of the environment, and once the Montenegrin coast) amounts to 5-7%, while the in Montenegro are nature, sea, attractive landscapes and such a trend leads to decreased attractiveness of the the state of the environment deteriorates, the activity same indicator for the coastal self-government units tourist area, downgrading of destination rating, and cultural heritage, for an overall positive experience it is becomes a “victim” of such a state. Fishery represents a necessary to ensure that urbanised areas and accom- is 8-10%. If the share of planned construction areas in ultimately to a decrease of income earned by tourism. good example, as well as uncontrolled development of the coastal belt extending for 1 km from the coastline Conversion of agricultural land does not inflict damage modation compounds through which the visitors move tourism which is not accompanied with development and in which they stay are comfortable to the maximum is compared with the situation in the coastal zones only to agriculture; it generates other negative conse- of quality communal infrastructure. possible extent, creatively designed, integrated into the

44 45 National strategy on integrated coastal zone management for Montenegro

Figure 2-5: Negative examples of the quality of built environment in valuable coastal areas Map 2-9: Areas of conflict between non-built construction areas and areas of the highest vulnerability 47 National strategy on integrated coastal zone management for Montenegro National strategy on integrated coastal zone management for Montenegro

27 / In the framework of the Assessment environment and respectful to it. This is understandable has turned significant surfaces into barren areas with coastal zone indicate an increase in air temperature, but has been warmer than the climatological average. 30 / Projections from AdriCosmStar of general vulnerability of the coastal zone project. of MNE, CAMP MNE (2012) and Vulnerabil- since the desirable tourist emitting markets are devel- scarce and thinned vegetation cover. In the zone of also in the number of very warm days and nights, while Results of vulnerability assessment of the Montenegrin 31 / Compared to average observed ity assessment of the narrow coastal zone, oped countries of the European Union with high stan- flysch and other classtic sediments, surface and deep the number of cold days and nights has decreased. On flow of 646.78 m3/s, the projected one is CAMP MNE (2013), vulnerability of the dard of living and developed environmental and spatial erosion was at work as manifested through furrows, average, heat waves are more common and they last coast to “meteorological” hazards (i.e. weather-related 482.30 m3/s. coastal zone to certain types of coastal erosion, seismic hazard and climate planning criteria. gullies, ravines, torrents, landslips and landslides. longer. On the other side, extreme precipitation indica- hazards) are as follows: total impacts of drought, forest 32 / A typical example is the big flood change has been assessed; projection of Beside soil’s vulnerability to the activity of torrents tors (e.g. the number of days with heavy precipitation, fires, heavy rains and stormy winds (in comparison to that struck Montenegro in the period sea level rise has been made too. from the end of December 2009 to the 2.2.5 Natural and anthropogenic hazards which regularly occur after precipitation of strong in- maximum number of dry days and share of extreme climatological average 1961-1990) confirm that vulner- beginning of January 2010, when stormy 28 / Unit of gravitational acceleration: 1 tensity and longer duration, a typical form of water precipitation in the overall annual precipitation volume) ability is within the domain of medium to very high val- wind accompanied by strong rains, high g = 9.81 m/s2 One of the objectives of the ICZM Protocol refers to erosion is abrasion that occurs under the influence of have statistically insignificant trends, but pronounced ues (map 2-10). Available data on winds show that the temperatures and high water level of 29 / Bečićka river, Bojana, Bratićki mitigation of effects of natural hazards. Although the river Bojana caused an increase of sea waves. As a result of cumulative impact of waves 30 greatest vulnerability to stormy winds is in the munici- stream, Gradiošnica, Grđevica, Jaška river, the level of available data and risk assessments sub- annual variability. Results of certain researches show the sea level. Koložun, Ljeskovački stream, Vodolježnica, and interrupted or decreased nourishment of beach- stantially differ depending on the type of hazard, a an increase in surface sea temperature of around 10 C is pality of Herceg Novi and along north-eastern slopes of 33 / In relation to greenhouse gas Rikavac, Sutorina, Vještica and Željeznica es with materials deposited by watercourses that are concentration the scenario A1B is “medi- general assessment is that risks from seismic activi- expected in the period 2015-2020 compared to the peri- Rumija. Vulnerability to forest fires is very high in the now obstructed due to unsustainable construction, region of and a part of Luštica, as well as in the um“, and A2 “high“ with approximately ties in the coastal zone of Montenegro are very high, od 2003-2008, together with faster surface sea currents, two times greater concentration of CO2 decrease in the surface of certain beaches is becom- that risks from erosion and forest fires are significant, primarily in the central Adriatic. In the same period a de- wider area of southern coast (from sun-exposed slopes of compared to the currently observed ing ever more evident. However, it is not possible to 31 value of 385 ppm (IPCC Special Report on and that the whole area is prone to climate change im- crease in the flow of Bojana river is expected . Rumija towards the coastal area and the Bojana valley). assess intensity of the impact on beaches due to a lack Emission Scenarios ((SRES; Nakićenović pacts (including sea level rise, frequency and severity The largest area of very high vulnerability to droughts and Swart, 2000)). of systematic observation of coastal processes. As for the strength and scope of the impacts of storms, of floods, droughts and stormy winds)27. is in the southern part of the coast and it encompasses 34 / The First National Communication research has shown their increase is expected due to the region from towards Bar, Vladimir, upper of Montenegro to the United Nations The coastal zone is also threatened by water erosion Framework Convention on Climate Change The largest areas of high seismic vulnerability (or global warming which provides energy for intensifica- flow of the river Bojana (toward Skadar Lake) and Ulcinj which is manifested through different forms: surface, zones with expected ground accelerations between tion of storms. Because of this, coastal areas will be faced hinterland. mixed and deep, as well as through landslips, land- 0.35 g28 and 0.60 g) are found in Bar and Ulcinj mu- with an increase in the level of flooding, acceleration slides and alluvions. Water erosion is most evident in nicipalities (in particular wider surroundings of Ul- of coastal erosion, mixing of sea and fresh water and In addition to the assessment of existing state by using catchment areas of bigger water courses, especially tor- cinj, the area around , the area of south- loss of wetlands, i.e. with consequences that will affect a joint model of vulnerability to drought, forest fires, rents29. Areas outside these catchments, consisting of ern slopes of Rumija and Možura mountains, i.e. the economy, the environment, production of food and en- heavy rains, and stormy winds, projections of climate flat and terraced terrains, salt basins, areas of macchia area between the river Bojana and Bar). Areas of high ergy. Along the Montenegrin coast, high waves are the change impacts according to scenarios developed by the and preserved forest, are not threatened by erosion. seismic impacts are also found in the vicinity of Suto- main threat as they cause flooding of a wide area along Intergovernmental Panel on Climate Change – A1B and Soil vulnerability to erosion is shown on map 2-9. 33 more, Petrovac, Budva, Radanovići, Kotor, Risan and the shoreline, cause damage on nearby objects, beach A2 for periods 2001-2030 and 2071-2100 and spring, Herceg Novi settlements. All the so far research of equipment, docks, etc. This is particularly pronounced summer, autumn and winter seasons – have been made seismic risks, including the CAMP analyses, pointed 2.2.5.1 Climate change in autumn and winter, since this is a period of intensive by using projections of the Regional Climate Model out there was a strong need for studious determina- Due to increase in GHG concentrations, consequences cyclone activity32. Storms have become more frequent EBU-POM for temperatures at 2 m height and accumu- tion of damageability functions of all the typical ob- of climate change have been observed both on global and more intense in Montenegro since 1998 (the year lated precipitation34. Obtained results have shown that jects and infrastructural systems. The question of how and European level. The most obvious manifestation is of strong El Nino) bringing, particularly to the coast, vulnerability of the Montenegrin coastal region increas- much new spatial plans and construction activities re- increase in air temperature, followed by changes in the heavy precipitation, stormy and hurricane-like wind es due to expected impacts of climate change: spect recommendations of micro-seismic zoning and quantity of precipitation, temperature of the sea and its gusts, high waves and flooding of a wide area along the safety standards has been opened from various levels. level, glacier melt, decrease of snow cover, and changes coast. These changes coincide with the increase in sea −− Under scenario A1B/2001-2030, average annu- in extreme weather and climate events. surface temperature which follows the global increase of al grades show that droughts, fires and stormy Despite limited data, it can be concluded that erosion temperature and corresponds to the results of satellite winds in the area of Herceg Novi, Budva and is quite pronounced in the coastal zone. Karst erosion The observed climate change in Montenegro and in the observations according to which every year since 1997 southern part of the coast have the highest im-

48 49 National strategy on integrated coastal zone management for Montenegro

35 / Based on global projections, pact. Heavy rains have the highest impact in the event of a break in the defence line, significant ar- transposition of projected sea level rise to the space of Montenegrin coastal zone parts of the municipality of Kotor and in Budva eas on a relatively long distance from the breaking was carried out by applying Digital Terrain hinterland. point can be endangered by floods. Model (DTM), without downscaling of the global model to the regional level, and by −− Floods in the zones of smaller torrential watercours- taking into account sea level changes in −− Under scenario A1B/2071-2100, average annu- the Adriatic basin. The analysis does not al grades show that vulnerability of the region es in the entire region of Montenegrin coast where take into account the effects caused by to drought will increase compared to the period flow regime is characterised by large amplitudes in stormy winds and sea waves. The basis for the analysis of the scope of areas that will 2001-2030. On average, the coastal region will be the flows and water levels, as manifested in long pe- be affected by sea level rise was obtained an area where droughts, forest fires and stormy riods of low flow and occasional drying up, as well by applying the latest LiDAR set of DTM winds will have the highest impact during the year as in short periods of large flows due to abundant data for Montenegrin coastal zone with data provided in relation to Trieste vertical (with the exception of Kotor, Budva and Tivat). precipitation. Extreme precipitation causes these datum as a reference point for measuring watercourses to flow out of their beds and trigger heights at land. In order to calibrate −− Under scenario A2/2071-2100, average annual floods of local character. These floods fall into the projections of sea level rise in relation to grades show that droughts, forest fires, stormy Trieste vertical datum, a height of 0.27 category of flash floods, and they are characterised m was added to projected sea level rise winds and heavy rains will have the highest im- by a fast flood wave occurring in the period of up to values as a value of height expressed in pacts in the coastal region. Heavy rains will have six hours from the time of intensive precipitation. the national system. the highest impact in the hinterland of the Boka Kotorska Bay and hilly-mountainous area to- Risk from flooding in the Bojana estuary has been in- wards Budva municipality. creasing due to the influences of sea level rise which is now clearly manifested under specific meteorologi- As for the vulnerability to floods, the southern rim cal and hydrologic conditions. As for vulnerability of of Skadar Lake, the river Bojana, Vladimirsko-suko- the narrow coastal zone due to the impacts of sea level binsko field, wider area of Šasko Lake and Ulcinj field rise, the scenario based on projections of the Intergov- are the areas of very high vulnerability (map 2-11). ernmental Panel on Climate Change (IPCC) has been Two groups of characteristics of floods and their con- assessed as the most realistic and probable. This sce- sequences can be distinguished in the zones of river nario foresees an increase (in relation to the median courses in the coastal region of Montenegro: sea level in the Adriatic basin) of 0.62 m in the digital terrain model of the Montenegrin coastal zone35. It is −− Floods caused by extremely high water of the river recommended to also apply (now and in the near fu- Bojana as a transboundary river between Montene- ture) the second scenario of the sea level rise which gro and , significantly impacted by waters projects the increase of 0.96 m in the digital terrain from the Albanian territory. In cases of major floods model. This recommendation should be applied in all regardless of defence embankments, large areas in the spatial plans, including short-term planning. Ulcinj hinterland, the Ulcinj field and the zone of Bojana’s outflow into the sea (the area around Ada Generally speaking, it is necessary to decrease ex- Bojana) will be under water. Among others things, posure or sensitivity of the coastal zone by applying this is due to the fact that defence embankment is special measures or increasing adaptive capacities not continuous as it enables small watercourses to through activities which are tightly linked with devel- discharge into the river Bojana. Therefore, in the opment priorities in order to lower its vulnerability.

Map 2-10: Vulnerability of soil to erosion 50 (analysis done for catchments of significant watercourses) Map 2-11: Vulnerability to climate change – existing state Map 2-12: Vulnerability to the impacts of floods (average value) National strategy on integrated coastal zone management for Montenegro National strategy on integrated coastal zone management for Montenegro

36 / Source: Analysis of socio-economic 2.2.6 Economic and social development velopment of the region compared to the rest of the ployed in the agricultural sector, forestry and fishery of a series of agricultural sectors – from intensive veg- 46 / Source: Population, Households and development of the coastal zone of MNE, country. In the period from 2006 to the end of the de- is 36446. It is necessary to mention that expert analy- etables production, to perennial plantations (citrus Apartments Census 2011 - Table O32. CEED Consulting, CAMP MNE (assessment Economy of the coastal region makes a significant 47 / Assessment of attractiveness and was made on the basis of MONSTAT data cade, the region annually attracted about one third to sis of the coastal zone’s attractiveness and suitabili- fruits, grapevine, olives and other kinds of fruit) and share of the national economy. As for the tourism sec- suitability for agriculture, CAMP MNE on the number of active business entities a half of direct foreign investment42. A major share of ty47 for agriculture indicted that available areas with animal husbandry. These are at the same time areas from the Analysis of the number and tor, the share is predominant. Around 40% of the total 48 / Source: Statistical Yearbook 2012, investment (particularly in the period 2006 – 2009) agricultural potential are greater than those listed in where irrigation is possible, which additionally in- MONSTAT structure of business entities for 2011). number of active companies in the country operates was linked to real estate transactions. Beside econom- the official statistics (map 2-12). As many as 90.5% of creases agricultural potential. 49 / Source: Agriculture Census 2010, 37 / Source: Analysis of socio-economic in the coastal zone36, while the share of employment development of the coastal zone of MNE, ic effects, this generated important pressures on space agricultural holdings in the coastal zone are smaller MONSTAT is at the level of around 28%37. The economic sectors CEED Consulting, CAMP MNE (assessment and other coastal zone resources and has (togeth- than 2 ha, while more than 55% of holdings use a sur- Other than these, there are numerous areas with low- 50 / Source: Information 251/2014 – was made on the basis of MONSTAT which stand out by their importance for sustainable Gross domestic product of Montenegro for er with the negative trends from 1990s) to a certain face of less than 0.5 ha of agricultural land48. Total ir- er potential for agriculture development or with cer- data on the number of the employed by use of the coastal zone resources are tourism, agricul- 2013, MONSTAT municipalities, and the number of the em- extent diminished potential for sustainable tourism rigated area in the coastal zones amounts to 721 ha49 tain natural limitations. They are mainly situated in ture (including fishery and aquaculture) and shipping 51 / Source: Assessment of attrac- ployed in Montenegro from the Census of development with more substantial and longer term only. Present policies highlight the important role of border areas of the coastal fields and at terraces and tiveness and suitability for agriculture, population, households and apartments, industry (with ship building). Other activities which economic and social benefits. agriculture and its potential to contribute to tourism plateaus on flysch and karst terrain. Such areas can CAMP MNE 2011 – table N8-4). by their scope have an important place in the coastal development and preservation of traditional Mediter- be found in the stretch between Bar and Ulcinj (Vel- 38 / Source: Analysis of socio-economic zone economy are trade, construction, road transport development of the coastal zone of MNE, From the aspect of sustainable use of natural resourc- ranean agricultural practices, as well as to increase of je selo and nearby fields, Mala and Velika Gorana, and processing industry (small capacities in metals CEED Consulting, CAMP MNE (assessment es, insufficient support to rural development and household income. The fact that agriculture, forestry Pečurice), in (Zagora, Krimovica, Kovači, Bigo- was made on the basis of MONSTAT data processing, food and chemical industry). 50 on the number of active business entities small and medium-sized enterprises represents a and fishery make 8% of the national GDP also con- va) and Luštica (Klinci and its surrounding, Gošići, from the Analysis of the number and problem. Incentives for new technologies, innovation Radovanići, Merdari). They are characterised by tra- As for the number of companies in different sectors, firms the sector’s importance. structure of business entities for 2011). and research, as well as for cluster development, are ditional organisation of space – both living and ag- wholesale and retail sale companies are the most nu- 39 / Non-agricultural activities include: also insufficient to ensure efficient and balanced use Considering spatial specificities, tradition and market ricultural. In these areas agriculture is still important ore and stone extraction, processing merous ones in the coastal zone (35% of all the ac- of resources, with better economic and social effects demands, the three key agricultural sectors (import- despite somewhat more difficult conditions for using industry, electricity, gas and steam supply tive companies in 2011), followed by companies in and air conditioning, water supply, waste and lower negative impacts on the environment. ant also for economic development on the national the agricultural land, however it overlaps with other accommodation and food services sector (15%) and water management, and construction. level) in the coastal zone are olive and citruses grow- activities i.e. land uses. construction (10%)38. A similar structure applies to 40 / Source: Labour force survey 2013, 2.2.6.1 Agriculture ing and viniculture. Analysis of the coastal zone from MONSTAT, Information 107/2014 employment: the largest number of employed works the aspect of its suitability for agricultural develop- Assessments of attractiveness and suitability of the 41 / Source: Labour force survey 2013, in the services sector – over 83%. Non-agricultural Due to favourable natural conditions, agriculture ment has determined that total area of suitable ag- coastal zone for agriculture have helped to identify MONSTAT, Information 107/2014 sectors39 employ 13.5% while 2.7% of population of represents a significant development potential of the ricultural land amounts to around 44,600 ha. Out of and single out agricultural zones that are recognisable 42 / Source: Labour force survey 2013, the coastal zone is engaged in agriculture40. Structure coastal zone with good conditions for production of MONSTAT, Information 107/2014 this amount, the area which is suitable for all the three and specific also for their significance for protection of enterprises and employment indicates a relatively Mediterranean fruits, olives and vegetables. Moun- 43 / Source: Assessment of attractive- key cultures (olives, citruses and grapevine) amounts of cultural heritage and landscape character, precise- low level of economy’s diversification which, along tainous terrains in the coastal hinterland are suitable ness and suitability for agriculture, CAMP to 21,200 ha, whereas total surface of the optimal area ly because they developed as a result of applying MNE (derived from MONSTAT data from with a pronounced seasonal character of tourism for ruminants breeding, and they are rich in honey, ar- Statistical Yearbook for 2012) for their cultivation is around 18,800 ha. traditional practices in cultivating and maintaining (more details under 2.5.3) has significant implications omatic and medicinal herbs, as well as in wild fruits. agricultural surfaces (arranged olive groves, terraced 44 / Source: Statistical Yearbook 2012, for balanced and sustainable use of natural resources. Areas with the potential for development of more in- areas, etc.). Olive groves in Valdanos and on Luštica MONSTAT Official statistical data, however, shows that only tensive agriculture are flat fields with alluvial-colluvial as well as traditional agricultural surfaces in the areas 45 / Source: Agriculture Census 2010, The coastal zone is economically the most developed 24%43 of the total agricultural land in coastal munici- MONSTAT land spreading from Herceg Novi to Ulcinj (Sutorins- of Kruševice, Ubli, Mirac, Mačuge - Bukovik – Gornji part of Montenegro. A somewhat higher activity rate41 palities is cultivated (51,017 ha is available, including ko, Kutsko, Tivatsko, Mrkovsko, Crmničko, Mrčevo, and Donji Brčeli - Utrg, Kravari- – Mide can be (51.6% or 1.5 percentage points above the national pastures)44 on some 4,800 agricultural estates where, Barsko, Ulcinjsko and Zoganjsko fields, Štoj, Šasko included in this category. average) and a lower unemployment rate (8.4% or in addition to owners, around 3,800 persons works45. and Anamalsko fields, with the total area of around 11 percentage points below the national average) are To many of them, agriculture is an additional or tem- 8,300 ha51). They offer possibilities for development Despite large potential for agricultural production, in correlation with a higher degree of economic de- porary activity, and the number of those formally em-

54 55 National strategy on integrated coastal zone management for Montenegro

Montenegro is a net importer of food. In 2013, the than 10,000 officially unemployed in the coastal zone 52 / Ministry of Agriculture and Rural share of agricultural products in total imports was and imports of agricultural products where around 3 Development 52 53 / Source: Montenegrin agriculture 25.7%, while their share in total export was 16.8% . million € are used annually for imports of olive oil and EU – Strategy for development In comparison with the EU countries, Montenegrin and citruses only56. of food production and rural areas of products mainly belong to the category of highly Montenegro (2006) priced products53. Still, some products have relative- 2.2.6.2 Fishery and aquaculture 54 / Source: Assessment of attractiveness and suitability for agriculture, CAMP ly lower prices (wine for example), and thus greater Fishing is one of the traditional sectors of Montene- MNE (derived from export and import data from Statistical Yearbook for 2011, competitiveness. Data about import of large quanti- grin economy which is currently exercised in fish- ties of products which can be produced in Montene- MONSTAT) ing areas of the coastal zone and the Skadar Lake. 55 / Source: Guidelines for encouraging gro is worrying (e.g. water). Imports of olive oil as a sustainable rural development of 54 Total value of the fishery sector is 7.4 million €. Not traditional product exceed exports by 10 times . An- counting aquaculture and fish processing, the sec- Dalmacija, UNDP in (2013) other problem lies in the fact that potential for placing tor employs around 400 people (on permanent and 56 / Source: Assessment of attractiveness domestic products on the tourist market is not used to and suitability for agriculture, CAMP MNE fixed-term basis). Although the share of fishery in the (2013), evaluations derived based on a significant extent. national GDP amounts to not more than 0.5%, it has Statistical Yearbook for 2011, MONSTAT, an important sociological and cultural role.57 and 2011 Census, MONSTAT Particularly important for sustainable development 57 / Source: Fishery Development of the coastal zone of Montenegro is integration Scientific assessments of marine fish stocks are car- Strategy of Montenegro 2006 – 2016 of valuable parts of the coast with the surrounding 58 / Source: Statistical Yearbook 2012, ried out within the framework of the National moni- MONSTAT rural areas in their hinterland (rural open spaces) toring programme of the state of demersal and pelag- which due to their natural, landscape and other val- ic resources, as well as within international projects ues should remain in their natural state. Rural areas (FAO Adriamed, Meditas and Medias). Based on these are especially valuable spaces both in economic and estimates, annual number of permits for commercial ecological sense. They need to provide for the over- marine fishing is proposed. all production of food and other renewable natural resources for meeting the needs of population, while Generally speaking, fish stocks in the Mediterranean also having an important role in preserving the qual- and in the Adriatic alike are near the point of over- ity of natural environment. At the same time, they fishing, and greater attention should be paid to their are irreplaceable oases of social and cultural diver- preservation. Registered catch of sea fish in Monte- sity and have a special importance and value in the negro over the last couple of years was rather mod- overall development of the country. Rural areas and est and amounted to 700 - 800 t per year58. Due to a their population maintain diversity and ingenuity of lack of comprehensive supervision and control at sea, millennium long tradition of co-existence of man and non-allowed entries of foreign fishing boats into ter- the nature. They live slowly, remember long, maintain ritorial sea of Montenegro have been evidenced, and tradition, keep homeland symbols and develop a feel- the same applies to cases of illegal and unregistered ing of belonging to a place55. fishing on the national level.

Potential of rural development in the coastal zone can Shell fish production amounts to some 200 t annual- be clearly seen from the data on at least 10,000 ha of ly (it takes place at 17 location in the Boka Kotorska cultivable agricultural land which is not used, more Bay), while production on fish farms is around 120 t.

Map 2-13: Overview of areas with potential for agriculture development 57 National strategy on integrated coastal zone management for Montenegro National strategy on integrated coastal zone management for Montenegro

Even though official data show that fish and shell of certain pilot activities) stands out. Open sea is not 59 / Source: Towards resource-efficient economy: keeping promise of Montenegro catches and farming are at a rather low level, exam- used for fish farming at all, and locations suitable for to become an ecological state, UNDP ples of unsustainable fishing and increased environ- such and activity have not been identified so far (it is (2014); data of the Ministry of Agriculture mental pressures are nevertheless present59. expected that the new SPSPCZ MNE will determine and Rural Development 10 locations in the open sea62 suitable for this kind 60 / Source: Information 86/2014 – Foreign trade exchange of Montenegro Fish consumption in Montenegro is among the low- of activity). January - December 2013, MONSTAT est in Europe (around 4 kg per capita). Fish prices are 61 / Source: Agriculture and fishery, high and substantially higher than in countries of the 2.2.6.3 Tourism fishery data for 2012, MONSTAT region and other parts of Europe. Almost 13 million 62 / Rose, Dobreč cove, Mirišta cape, The coastal zone, known for its natural values and euros are spent annually on imports of fish and fish Vučja vala, Zlatna luka, Dobra luka, Drobni cultural heritage, is of special importance for tourism pijesak, Crni cape, Valdanos cove and products60. Causes to such situation lie, among oth- development. Over the last couple of years, more than Bojana river mouth ers, in a relatively small size (101 vessels in total61) 95% of the total tourist turnover in Montenegro (mea- 63 / The assessment derived based on and old age of fishing fleet (on average older than 30 the MONSTAT data for 2013 (overnight sured by overnight stays) took place in the coastal years), as well as in a lack of organised buying out and stays by municipalities and municipal zone63. At the height of the season, the monthly num- shares in the total number of registered processing of fish. A lack of a fishing harbour or sepa- overnights) ber of visitors exceeds 450.000 (which is three times rate space for fishermen within the existing harbours 64 / The assessment derived based on more than the number of inhabitants of the coastal Central Bank of Montenegro data, real represents a major problem. Port taxes in certain har- 64 municipalities) . sector, table 6.5-tourism bours are quite high, and in the summer months there 65 / Source: World Travel and Tourism is not enough space due to a large number of yachts Total contribution (direct and indirect) of tourism Council (WTTC) Report for Montenegro and luxury boats, so fishermen are forced to keep their to Montenegrin GDP is around 20%, and to employ- for 2014 vessels at anchor. This is why development of fishing ment 18% (or, applied to the total number of the harbour(s) is a priority, as is establishment of places employed, around 30,500 people). Some of the key of the first disembarkation and first sale (all munic- characteristics of the season 2013 were an increase ipalities in the coastal zone should have designated in the number of tourists in the period before and places of first disembarkation and first sale). Lack of after the main season, as well as the increase in the such places additionally impedes performance of in- number of tourists from the European Union by 4% spection supervision and control of catches. compared to 2012. Investments in tourism amount- ed to around 208 million € in 2013 comprising 28% To overcome the existing state in marine fishery and of total investments65. The World Travel and Tourism aquaculture, support to strengthening and moderni- Council (WTTC) optimistically predicts that revenues sation of fishing fleet, and improvement of competi- from tourism will grow at an average real annual rate tiveness and efficiency of aquaculture while preserv- of 8.6% over the next ten-year period, while employ- ing fish and other marine organisms resources, is ment (directly or indirectly) generated by tourism envisaged under the current plans. Adequate siting of will grow at a rate of 5.8%. This ranks Montenegro as fish and shell farms is an important precondition for the first among 184 world countries based on indi- sustainable use of coastal zone resources and in that cators of the speed of tourism development by 2024. sense the importance of maritime spatial planning (which is for the time being only applied at the level Total revenues from tourism in 2013 amounted to

58 SOURCE: National Tourism Organisation 59 National strategy on integrated coastal zone management for Montenegro National strategy on integrated coastal zone management for Montenegro

66 / Source: Ministry of Sustainable 721 million €, which is 3% more compared to 2012. of this number, 74% goes to private accommodation 2.2.6.4 Maritime transport and ship building 2.2.6.5 Developmental and demographic charac- 74 / Source: Master plan for the Development and Tourism In the first eight months of 2014 the revenues were (121.222 beds)71. Number of beds in private accom- development of tourism of Montenegro 67 / Source: Information 72/2014 – In the area of maritime transport (short-sea ship- teristics of the coastal zone from 2001 634 million €, which makes an increase of 2.2% com- modation has increased by around six times over the Nautical tourism in 2013, MONSTAT ping, including ro-ro), services are provided by two 77 75 / Source: Statistical Yearbook 2013, pared to the same observed period of the previous Measured by development index , five municipalities MONSTAT 68 / Source: Information 73/2014 last decade. big national companies – Barska plovidba ad and – Round trips of foreign ships in Montene- year66. of the coastal region (Budva, Kotor, Herceg Novi,Tivat 76 / According to the data of the Port gro in 2013, MONSTAT Very illustrative (and also worrying) is the fact that in Crnogorska plovidba ad Kotor – and around a hun- and Bar) belong to the group of the most developed Administration, beside the Port of Bar, 69 / Source: Extracts from documenta- Positive developments have been recorded for other the best years of Montenegrin tourism (period 1985 dred of small companies that provide local trans- municipalities in Montenegro, with the development ports of national importance are the Port tion for development of IV stage of the port services. Transport of goods and passengers on of Kotor, marina Bar and shipyard Bijela. parameters of tourism turnover as well, which rep- – 1988), when the level to which the coastal zone was index of more than 125% of the national average, Other ports are Zelenika, Budva, Risan SPSPCZ MNE, thematic notebook 12 – overseas lines has been on the decrease over the last tourism, Assessment of the existing state: resents continuation of the stable growth trend. developed was several times lower, higher numbers of while the development index of the municipality of and Tivat. years. In 2012, around 109,000 t of cargo and around 78 Horwath and Horwath Consulting, 2012 overnight stays were recorded as compared to today. Ulcinji is 75% of the national average . 77 / Index is a composite indicator 75 of the level of development of local 70 / Source: Accommodation capacities Nautical tourism and cruise ships visits are also on 72 53,000 passengers were transported . Maritime fleet by objects types and categories, as of In 1986, for example, there were 10.9 and in 2013 self-government units calculated as a the increase. The number of foreign vessels visit- 73 was enlarged with two new ships (with the capacity of The coastal zone is considered an attractive area for 31.8.2013, MONSTAT 9.4 million overnights . Beside the physical appear- weighted average of unemployment rate, ing Montenegro substantially increased in 2013 in 35,000 DWT each) in 2012, but it still has a modest life and work which is why over the last 50+ years income per capita, budgetary income of 71 / Source: Accommodation capacities ance of the coast and structure of accommodation comparison to 2012 – from around 3,000 to 3,800 capacity. constant migration has been registered from the local self-government units per capita, by objects types and categories, as of capacities (faster growth of private accommodation general migrations of population and 31.8.2013, MONSTAT (with around 15,000 visitors)67, almost a half of the north and central parts of the country towards the and of the so called residential tourism than hotel The most important port is Bar with around 3,500 educational levels. 72 / Source: Master plan for the develop- vessels being motor yachts. The number of visitors coast. Over the last couple of years, influx of foreign 78 / Source: Regional Development ment of tourism from 2001 capacities), the structure of guests has also changed. m of operating coast, and capacity of around 5 mil- on round-trip cruise ships increased from a bit more citizens has also been recorded. According to the Pop- Strategy of Montenegro 2014–2020, Number of overnight stays of tourists from Western 76 73 / Sources: Master plan for the devel- than 244,000 to 315,000 (from 409 cruise ships)68. lion tonnes of freight, while other ports have sub- ulation Census from 2011, the number of inhabitants calculation of development index for the opment of tourism from 2001, Monstat Europe, for example, was three times higher in 1986 stantially lower capacity. The port of Bar is a transit period 2010-2012, p.22 and the Central Bank Tourists from round-trip cruise ships create signifi- in the coastal zone was 148,683 (close to a quarter than in 2013. When it comes to employment, esti- centre of regional importance. It is not equipped 79 / According to scenarios of the Blue cant pressures on the sea and port infrastructure of of the total number of inhabitants in the country), Plan from 2005, population of the Med- mates indicate that in the period 1985 – 1989 around with infrastructure required for ports of internation- Kotor (where these ships dock) and its surrounding. which means that the average population density was iterranean coastal regions will increase 50.000 people were employed in and worked for the from 143 to 174 million inhabitants Although they are considered important, there are no al importance. The ports of Zelenika and Kotor have 93 inhabitants per km2. Population projections by tourism sector in Montenegro, which is somewhat for years represented important maritime centres in by 2025. precise estimates of economic benefits of this kind of 2020 from the Spatial Plan of Montenegro foresee an higher than the total number of employed persons in the Boka Kotorska Bay. Recently built berth for mega 80 / Source: Analysis of socio-economic tourism for local and national economy. increase of around 7%, which would bring the total development of the coastal zone of MNE, the coastal municipalities today. Based on this data it yachts Porto Montenegro has become a new tourist number of inhabitants in the coastal zone to around CEED Consulting, CAMP MNE Coastal zone tourism is characterised by high sea- could be concluded that economic effects of tourism symbol of the country. Shipyard Bijela is equipped for 160,000. According to population projections for the sonality. Average occupancy of accommodation ca- (data on income are not readily available/ compara- reparation and reconstruction of all kinds of vessels Mediterranean, growth rates are higher (over 20% un- pacities is small and amounts to around 16%, which ble) have remained on approximately the same level, with the capacity up to 120,000 DWT. The shipyard is til 2025 compared to 2005)79. translated into number of days means that the bulk while as pressures on the coastal zone resources and also equipped for construction of smaller navigation of tourism turnover takes place within 58 days. Av- quality of life of local population have increased sub- objects such as different-purpose barges, pontoons, Population density in certain coastal settlements erage occupancy of hotels with 4 and more * rarely stantially (due to high crowds and short duration of work platforms and similar. (map 2-13) in the municipalities of Herceg Novi Ti- exceeds 45% which can be considered as a limit value the season). Considerable efforts invested in tourist vat, Kotor, Budva and Bar exceeds 1,000 inhabitants Ports do not have equipment for reception and treat- for sufficient investment return69. Although a trend of product diversification (including a large number of per square kilometre. Data on migrations within the ment of oily water and solid waste from ships. Due to slight increase in occupancy rates is evident, it can be campaigns, actions and projects aimed at recognising coastal zone itself shows a pronounced trend of de- insufficient equipment and inadequate environmen- concluded that the growth in the volume of tourism Montenegro as a unique and year-round tourist desti- population of rural areas and concentration of popu- tal management procedures, ports and Bijela ship- nation) have not given major results, and for the time lation in the settlements on the sea coast. is completely a result of accumulation of capacities yard generate significant pressures on the coastal sea which operate solely during the main season. Accom- being the sun and the sea still remain dominant tour- and sediments. Index of demographic resources80 of the coastal zone ist products which participate with more than 90% in modation capacities of the coastal zone in the last 10 is shown on map 2-14. The index is derived from years have doubled to more than 160.000 beds70. Out the total offer.

60 61 Map 2-14: Population distribution by settlements Map 2-15: Index of demographic resources (Source: CAMP 2013, Socio-economic analysis) National strategy on integrated coastal zone management for Montenegro National strategy on integrated coastal zone management for Montenegro

demographic (including population growth, migra- 2.3 Coastal zone management sectors and administrative levels as a precondition for construction of tourist, infrastructure and other tions and age structure) and parameters that refer resolving all the more complex problems of the coast- capacities in the zones prone to climate change “Management” and “coastal zone” are central topics to the achieved educational level. To calculate the al zone. impacts and important for adaptation. of the NS ICZM MNE. Improving efficiency of public index, data from 2011 Census (by settlements) was administration and management is a lasting objec- used. Based on the values obtained an assessment of Ecosystem approach is recommended only in the tive. Striving toward management efficiency leads to 2.3.1 Policies and strategies spatial units of the coastal zone was made. The units draft new strategies for biodiversity and forestry (it is specialisation, and specialisation develops different Policy coordination and integration has been a sub- were then categorised in one of the six categories of also mentioned in the Water Resources Basis, but it sectors which as a rule deal with a set of their sectoral ject of interest in numerous analyses. Nevertheless, demographic resources index – from exceptionally has not been consistently integrated in all measures problems individually. However, a characteristic of there are no precisely formulated objectives and favourable to exceptionally weak. Age of population, of this document). When it comes to protection of the coastal zones is a pronounced complexity of nat- educational level and other parameters which define guidelines for their improvement. natural values, protected areas are in the centre of at- ural and social processes within a relatively limited available human resources are exceptionally unfa- tention in all documents, while objectives and protec- space. Management of these processes that often lead National policies do not have clearly defined goals vourable in almost all the rural area of the coastal tion measures for ecosystems outside protected areas to various problems and conflicts is a necessity. Tradi- significant for a number of ICZM topics, as is the zone, particularly in the municipalities of Bar, Ulcinj, are missing. Protection goals for coastal landscapes tional public administration systems, with their pro- case in the area of climate change and culture. Oth- Herceg Novi and Budva. exist, however further elaboration of measures for nounced sectoral approach, are resolving such prob- er questions of significance for the ICZM Protocol their achievement is as a rule weak. Cultural heritage lems with a limited success. are addressed by a large number of horizontal and Index of demographic resources speaks about capac- (particularly submerged) is not adequately protected ities of a community (in this case about capacity of sectoral policies, strategies, plans and programmes, Coastal zone management of Montenegro is in the and is exposed to negative impacts. There are almost settlements in the coastal municipalities) for endog- on national and local level. Although tasks and ob- stage when intensity and complexity of the problems no documents which identify specific coastal ecosys- enous development i.e. development based on local jectives defined by these documents are compatible exceed capacities of predominantly sectoral organisa- tems in the manner required by the ICZM Protocol initiatives and internal social potentials of the given with the provisions of the ICZM Protocol, there are tion of public administration. Spatial planning and and propose measures to protect their characteristics. community. Generally speaking, endogenous devel- certain conflicts and deficiencies. The most signifi- development sector has a sole task and obligation to To a certain extent, SAP BIO and the Local Plan for opment is considered more sustainable and socio-cul- cant conflicts in relation to the ICZM Protocol as well consider and resolve numerous problems of impor- Biodiversity Protection of the Municipality of Tivat turally more acceptable. However, in the situation of as among different sectoral documents include: tance for achieving sustainable spatial development represent exceptions, the latter paying special atten- weak demographic resources, improvements are less in an integrated manner. Nevertheless, the practice −− Preservation of natural and cultural heritage tion to coastal wetlands and forests within the territo- probable without external incentives, be it from pub- has shown that this sector does not have at its dispos- and coastal resources as opposed to further ur- ry of the municipality. lic, civil or private sector through new investments. al a systemic set of instruments and does not have banisation, real estate projects, construction of Such mainly exogenous development brings prob- competences to be able to face the challenges posed tourist capacities and infrastructure; some of The concept of the coastal setback is addressed only lems which should be considered in both develop- by the coastal zone problems. in the National Sustainable Development Strategy ment as well as in spatial planning. the planned development projects in the coastal zone contain elements which are opposed to the and climate documents. Deficiencies are also evident In addition to the assessment of the existing sate and concerning the treatment of natural and anthropo- Involvement of social actors in decision-making pro- Protocol’s requirements to provide for a balanced coastal zone processes provided in the previous sec- genic hazards, particularly coastal erosion, while seis- cesses and public administration efficiency also rep- distribution of costal activities, minimise the use tions of this chapter, a brief overview of the systemic mic hazards and (to a certain extent) climate change resent important social development factors. Over the of resources, avoid linear coastal urbanisation, dimension of managing coastal processes is provided are addressed. A lack of integrated approaches in ad- last couple of years, an improvement in these areas establish open areas and similar. below. Different management systems and adminis- is noticeable, but there is still significant room for dressing the hazards is also evident (the focus is on tration levels (state and local) which participate in the improvement, particularly when it comes to public −− Conflicts between the goals of climate documents improvement of organisational and technical solu- management with different responsibilities, as well participation and access to information, balancing of (The Second National Communication, Techno- tions to respond to natural disasters rather than on as their basic “products” – public policies, strategies different interests, public administration capacities logical Needs Assessment) and the guidelines of planning and management of activities to avoid the and regulations – have been analysed. Particular at- and similar. certain sectoral and spatial plans which foresee risks). tention has been paid to the issue of coordination of

64 65 National strategy on integrated coastal zone management for Montenegro National strategy on integrated coastal zone management for Montenegro

81 / Analizirano je trideset nacionalnih Enabling free access to the sea and public use of of goals has been evaluated as good. According to stipulates that protection of public maritime domain navigation routes, as well as to survey objects in the 83 / Rulebook on closer contents and i deset lokalnih strategija, politika i form of planning documents, land use planova; predmet analize bio je i Prostorni coastal zone space, prevention of linear coastal urban- evaluations contained in this assessment, there are is based on the principles which, among other, refer coastal zone. However, the Law does not define de- criteria, elements of urban regulation and plan Crne Gore. isation and planning of activities in line with environ- no goals that have been fully achieved in the manner to the protection of specific coastal ecosystems (wet- tailed criteria for determination of the shoreline and unique graphic symbols prescribes for 82 / Assessments are based on the mental needs are the principles which national and defined by the document itself (within the defined lands, marine habitats, forests, dunes and islands) of the border of public maritime domain. example that new accommodation units and accompanying amenities in tourist analyses (from 2010 and 2011) carried local strategic and planning documents consider to a deadline and in the defined scope). A general accep- and that the future Agency for Coastal Zone Man- out in the framework of procedures for zones (including camps and golf terrains) the adoption of the Law on Ratification limited extent only. The exception is The Spatial Plan tance of sustainability goals is pronounced, without agement is responsible for their protection. Spatial There is a difference in the manner in which the outside the settlements must be built at of the ICZM Protocol (Official Gazette of Montenegro (SP MNE) which confirms some of the creation of necessary conditions and coordinated development regulations contain guidelines for natu- ICZM Protocol and Montenegrin regulations regu- least 100 m far from the shoreline. of Montenegro no.16/11) as well as on mentioned principles as the key postulates of spatial efforts for their achievement. Declarative character late the issue of public interest. The Protocol requires 84 / The Rulebook on conditions the more recent Analysis of the national ral and landscape values and cultural heritage protec- which must be met for arranged and institutional and legislative framework for planning. Nevertheless, without clearly defined im- of a significant number of documents leads to vari- tion. Obligations from these regulations are reiterated that public services and activities are given priority, built bathing areas (Official Gazette of integrated coastal zone conducted in the plementation measures, provisions of the planning ous interpretations of their goals and contributes to in the planning documentation, at least declaratively, whereas projects of public interest are also important Montenegro, no. 20/08, 20/09, 25/09, process of development of this Strategy document of the highest order are not sufficiently in- non-implementation. when adaptation cases in applying the coastal setback 4/10, 61/10, 26/11) (from July 2014). Analyses carried out in and as a rule without more detailed elaboration of the process of amending the Law on spa- tegrated into concrete planning solutions. guidelines for specific ecosystems and valuable areas. are determined. Objects of general interest as defined tial planning and construction of objects A lack of technical and financial resources and capac- by the Law on spatial planning and construction of have been also taken into account. Decision making on the basis of scientific facts is an- ities for implementation of the adopted strategies, Preservation of cultural heritage is primarily regulat- objects mainly refer to objects for provision of public other requirement of the ICZM Protocol which has programmes and plans contributes significantly to an ed by the Law on cultural assets preservation and the services, but also to production systems that employ not been adequately integrated into national policies. unsatisfactory level of implementation of public pol- Convention on the Protection of the Underwater Cul- 50 and more workers. This is in not in line with the This approach is mentioned in a number of docu- icies. Long-term planning is difficult and unreliable, tural Heritage. Nevertheless, in relation to the key re- specific requirement of the ICZM Protocol in the con- ments, but carefully formulated goals and elaborated often resulting in unrealistic or overambitious plans quirements of the ICZM Protocol (implementation of text of defining conditions for coastal setback adap- set of measures needed for their achievement have and strategies. appropriate measures for protection of cultural assets, tation. not been incorporated. particularly archaeological and historic; protection of 2.3.2 Regulations findings of submerged cultural heritage), a lack of a In relation to the requirements of the ICZM Protocol Other ICZM Protocol requirements are mainly inte- Issues important for coastal zone management are provision on in situ protection of coastal zone cultural on restricting the coastal zone activities, limitations grated in the goals set under national and local doc- in the movement of vehicles and anchoring of vessels uments. regulated by a large number of national laws. A num- heritage which represents first choice before any oth- ber of relevant laws is being amended, while others er kind of intervention particularly stands out. are important, as envisaged under the new Proposal Assessments of the level of implementation of stra- have recently been adopted in the process of harmon- of the Law on public maritime domain. The propos- tegic documents have been made in the NS ICZM ising national with the EU legislation. Although it can One of the key requirements of the ICZM Protocol re- al however does not define respective penalty provi- be assessed that Montenegrin legislation is to a large fers to introduction of the construction setback line sions. In the Rulebook on conditions which must be preparation process in the framework of analysis of 84 national policies’ compatibility81 with the ICZM Pro- extent harmonised with the ICZM Protocol require- at a minimum of 100 metres from the shore. This re- met for arranged and built bathing areas , the obli- tocol on the basis of available information and expert ments, certain important provisions have not been quirement is partially integrated into national regu- gation to ensure access paths to the sea has been pre- opinion. These have shown that main incompatibili- transposed (fully or partially)82 yet. lations through the Rulebook on closer content and scribed. However, the Rulebook also prescribes limit- 83 ties of national and local policies, strategies and plans form of planning documents . However, conditions ed access to hotel beaches for hotel guests only, which in relation to the ICZM Protocol lie in the process of Preservation of coastal ecosystems has been pre- for implementation have not been elaborated for the is opposed to the ICZM Protocol requirement on en- their implementation rather than in the way their scribed by the Law on nature protection and a set of entire coastal zone (only for the areas outside settle- suring free access to the sea. At the same time, the cur- goals are set. Progress in the achievement of goals of other regulations that recommend application of the ments), and cases when adaptation is possible have rent Law on public maritime domain prescribes that different sectors and horizontal strategies and plans ecosystem approach. Preservation and conditions for not been defined. For determination of the setback, public maritime domain is an asset in public use. The has been mainly evaluated as weak or modest, while protection of marine habitats and wetlands are reg- provisions of the Law on hydrographical activity are new Proposal of the Law on public maritime domain as progress with the achievement of a small number ulated by the Law on nature protection, while the also important. They define obligations to undertake contains provisions on free and free-of-charge access new Proposal of the Law on public maritime domain hydrographic measurements at sea and for internal to the sea coast, beaches and bathing areas.

66 67 National strategy on integrated coastal zone management for Montenegro National strategy on integrated coastal zone management for Montenegro

85 / The Law on strategic environmental Harmonisation of coastal activities with the aim of marine and coastal ecosystems, and do not prescribe ensuring comprehensive and coordinated monitoring bodies have responsibilities in managing the coast- assessment (Official Gazette of Montene- gro no. 80/05, 73/10, 40/11, 59/11) and ensuring sustainable use of resources is one of the im- pollution prevention and/ or elimination instruments of coastal processes in the spirit of the ICZM Protocol. al zone of Montenegro. The Ministry of Sustainable the Law on environmental Impact Assess- portant requirements of the ICZM Protocol which is (with the exception of marine fishery regulations86). Development and Tourism which is responsible for ment (Official Gazette of Montenegro no. partially integrated into national legislation through The new Law on liability for environmental damage87 Public participation and access to information have 80/05, 40/10, 73/10, 40/11, 27/13) environmental protection, spatial planning and man- the principles of the Law on spatial planning and represents a significant improvement as it prescribes foundation in several laws. However, improvements agement of space, construction, tourism and sus- 86 / The Law on maritime fishing aqua- of provisions relating to public participation are culture (Official Gazette of Montenegro, construction of objects (Article 5 on balanced devel- the obligation to compensate for the damage done to tainable development can be singled out as the key no. 56/09, 40/11) opment). Responsible use of resources is addressed the environment, i.e. the obligation to restore to the needed for a number of regulations (with the excep- department. The Ministry of Agriculture and Rural 87 / Official Gazette of Montenegro no. through legal acts regulating environmental protec- original state ecosystem functions and services affect- tion of SEA and EIA laws). Deadlines, rights of the Development, Ministry of Transport and Maritime 27/2014 public and public debate procedures need to be pre- tion (Law on strategic environmental assessment and ed by the damage. Affairs, and Ministry of Culture (with the Administra- 85 cisely defined, and the same applies for notification Law on environmental impact assessment ). Howev- tion for Cultural Assets Protection) also stand out in procedures, all in order to ensure more effective stake- er, methodologies for preparing SEAs are often rather Montenegrin legislation is also deficient in relation to terms of their importance for the coastal zone issues. the requirements of the ICZM Protocol on minimising holder involvement. formal and quite general. As a rule, they do not in- In addition to the Public Enterprise for Public Mari- the impacts of hazards. Prediction of possible effects/ clude identification of spatial sub-units in terms of time Domain Management (future Agency for Coast- their vulnerability to the planned interventions and risks and planning of measures to prevent harmful ef- In addition to identified inconsistencies and gaps al Zone Management), other important institutions do not apply quantitative indicators in the assess- fects, to adapt and to mitigate the impacts of hazards in the legal framework, a very important shortcom- include the Environmental Protection Agency, Insti- ment of environmental impacts. As for EIAs, speci- is only based on implementing the obligations from ing (perhaps the most important one) affecting the tute of Hydrometeorology and Seismology, Centre for ficity of impacts of certain interventions which have the ratified international agreements (e.g. UN Frame- achievement of the goals of the ICZM Protocol is or can have significant impacts on the on the coastal work Convention on Climate Change). poor implementation of regulations, and this is quite Eco-Toxicological Research, Port Administration and zone environment is not recognised (or at least not similar to the situation found in the area of policies. Harbour Master Offices, Marine Biology Institute and adequately). This especially refers to interventions Among other things, coastal zone management com- Control of the activities at sea, for example, is not on a Biotechnical Faculty. Particularly important institu- that have impacts on mutual relations between the prises application of appropriate land policy instru- satisfactory level, and the same goes for the measures tions for marine part of the coastal zone are those for sea and land parts of the coastal zone (navigation ments and measures. Certain elements of land policy on protecting the sea against pollution from vessels. navigation safety and security and protection of the routes, exploitation of all kinds of architectonic, con- can be found in different laws, as is for example the It is also important to point out weaknesses in imple- sea against pollution from vessels. struction and technical-construction stone, sea salt case with real estate tax. Also, certain elements are menting regulations on environmental assessments exploitation, gravel and sand exploitation, deposition contained in regulations on provision of communal including formalised processes, lack of necessary Local self-government has an important role in coast- of materials into the sea and aquaculture). services. However, the obligation of urban comas- data, lack of monitoring of the implementation of al zone management too. Local self-government re- sation (re-arrangement of plots) is not defined. This measures to mitigate negative impacts that are fore- sponsibilities are exercised through the work of dif- Current regulations on economic activities of impor- instrument is very important for ensuring quality of seen in the assessment reports, etc. ferent bodies including secretariats for development tance for the coastal zone (tourism, agriculture and the built environment and in particular availability of (and development agencies in some municipalities), rural development, maritime and land transport, public spaces, as well as fair distribution of construc- 2.3.3 Institutions and coordination secretariats for planning, urbanism and construction, mineral raw materials exploitation) are deficient from tion rights through the spatial planning documents. Organisation of the institutional system in Montene- secretariats for communal affairs, environmental the aspect of defining environmental protection mea- gro shows that the coastal zone is considered to be protection and public communal services (for water sures, including reduction of pollution in the coastal The obligation to monitor coastal processes defined an especially significant area. The Public Enterprise supply, waste, sewage, etc.), and many other author- zone, as well as prevention and minimisation of dam- in the ICZM Protocol corresponds to the legal solu- for Public Maritime Domain Management is respon- ities and bodies. Almost all the municipalities in the ages due to hazards. Most of the time, they do not go tions prescribed in several areas (spatial planning, sible for managing the public maritime domain as the coastal zone have an environmental department or further than recognising environmental vulnerability environmental protection) which regulate monitor- most important part of the coastal zone since 1992. staff (one or more civil servants) responsible for en- at the level of principles and postulates i.e. they do ing of certain parameters. Still, national regulations A large number of departments, public administra- vironmental matters. Communal inspection operates not elaborate instruments for assessing sensitivity of have not been sufficiently elaborated in the context of tion bodies, institutions and local self-government at the local level.

68 69 National strategy on integrated coastal zone management for Montenegro National strategy on integrated coastal zone management for Montenegro

As regards sectoral (horizontal) coordination, several of sectoral policies, programmes and plans with In the implementation of various projects, it is a com- available data, as well as proposals and opinions of 88 / According to Article 38 of the Law on spatial planning and construction examples of unclear and overlapping competencies sustainable development goals has still not been mon practice to establish steering and coordinating institutions and administrative bodies necessary for of objects and inefficient functioning have been registered in reached, and the same applies to harmonisa- bodies with the aim to ensure inter-sectoral involve- the development of the planning document. This the previous period. Besides weaknesses in inter-sec- tion of development programmes and projects ment in project activities. The Steering and Advisory stage in the plan’s development is called “submission toral coordination, problems also exist with vertical at national and local level. Insufficient technical Project Committees thus provided political and tech- of data, proposals and opinions”88. The name and the (from local to national level) coordination. capacities for implementation of the National nical support to the implementation of CAMP MNE organisation of this stage are somewhat inappropriate Council’s decisions, a lack of scientific research and to the NS ICZM preparation. Representatives of as they imply one-way communication in which the Administrative-coordinating bodies established with component and insufficient financial support to the responsible ministries, Public Enterprise for Pub- sector submits its proposals to the promoter of pre- the aim to improve institutional cooperation and co- sustainable development policy implementation lic Maritime Domain Management and coastal mu- paratory works. In this way, an opportunity to empha- ordination are of special importance. A part of these have by large affected the fact that the planned nicipalities participated in the work of the Steering sise more strongly joint work i.e. partner cooperation bodies is also important for the coastal zone too, and politically supported process of halting or Committee. The Advisory Committee comprised rep- and coordination of representatives of all responsible namely: reversing unsustainable development trends in resentatives of relevant expert institutions at national and interested sectors in the development of plan- Montenegro has not taken place. level and of expert services of local self-governments ning solutions is missed. The same repeats in the next −− National Council for Sustainable Development from the coastal zone. Although practical experiences stage when planning solutions are delivered by the and Climate Change comprising President of the −− The Prime Minister chairs the Coordination Body show these steering and coordinating bodies do not responsible ministry to certain sectors for opinion. state, ministers and representatives of the min- for Preparation and Follow-up of Tourism Sea- continue to function in the phase of implementing istries of sustainable development and tourism, sons and tourism development in general, which the project results, based on positive contributions of Despite considerable efforts invested in establishing economy, labour and social welfare, agriculture includes representatives of Government depart- the Steering and Advisory Committees to the CAMP and encouraging functioning of multidisciplinary and rural development, transport and maritime ments, administrative authorities and institutions and NS ICZM, this strategy proposes establishment of bodies for harmonisation of public policies between affairs, and finance, as well as presidents of local (among others Public Enterprise for Public Mar- a permanent coordinating mechanism for integrated sectors, there is still an insufficient level of harmoni- self-governments, representatives of the Institute itime Domain Management), local self-govern- management of the coastal zone of Montenegro. sation of their goals and measures. At the same time, for Hydrometeorology and Seismology, univer- ments, tourism industry, technical high schools activities of the state administration bodies are to a sities, employers’ associations, trade unions and and tourism faculties, as well as representatives The Association of Municipalities of Montenegro is great extent characterised by a lack of preparedness NGOs, and independent experts. The basic tasks of the media and experts for tourism, NGO sec- important for strengthening the role of local self-gov- to act in accordance with set goals, a lack of continued of the National Council are to ensure harmoni- tor, etc. The aim of the Coordination Body is to ernments in the process of adopting and implement- monitoring of the level of achievement of expected sation of public policies with the sustainable de- ensure efficient implementation of strategies and ing policies and for improvement of coordination. results, as well as with a lack of responsibility in case velopment policy, to encourage cooperation of action plans in the tourism sector. Its mission is to contribute to decentralisation and they are not achieved. Low capacities, lack of expe- the responsible national and local bodies and en- democratisation of local self-government through rience and technical knowledge important for appli- able greater participation of business and NGO −− The Council for Spatial Development is a techni- provision of services to its members, advocating their cation of a coordinated approach to management are sector in developing and implementing policies. cal and advisory body of the minister of sustain- interests, and establishing cooperation with state au- other characteristic of the existing institutional sys- The activities of the National Council have led to able development and tourism comprising spa- thorities, other national associations and internation- tem, especially pronounced on local level. the achievement of significant progress in rais- tial planning and development experts. The aim al organisations. ing awareness on the importance of sustainable of the Council is to consider and assess relevant Potentially important coordination mechanism with- development and integration of sustainability policies, plans and regulations, including the in spatial development system functions in the pro- requirements into sectoral policies and activities, extent to which spatial planning and other doc- cess of planning documents preparation, in particular as well as a to good progress in creation of insti- uments and regulations of significance for spatial in the stage of preparing the draft plan. Promoter of tutional capacities for sustainable development. development are founded on technical and scien- preparatory works in the plan’s development collects However, the necessary level of harmonisation tific standards.

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