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The Key to Governing the Fragile Baltic THE KEY TO GOVERNING THE KEY TO GOVERNING THE FRAGILE BALTIC SEA THE FRAGILE BALTIC SEA Maritime Spatial Planning in the Baltic Sea Region and Way Forward Maritime Spatial Planning in the Baltic Sea Region and Way Forward Author: Jacek Zaucha Chapters 3 and 4 of the book are based on the outcomes of the EU co-funded project Plan Bothnia (MARE 2009/16), the component 5.2.4 “Region-wide recommendations on minimum requirements for MSP systems”. The preparation and publication of this book was financed by the VASAB Committee on Spatial Planning and Development of the Baltic Sea Region (CSPD/BSR). Its content is the sole responsibility of the author and does not reflect the opinion of VASAB or the members of the VASAB CSPD/BSR. Layout and design: “E FORMA” LTD ISBN 978-9934-14-165-2 © 2014, VASAB Secretariat Further information and distribution: VASAB Secretariat Elizabetes str. 19, Riga, LV-1010, Latvia Phone: +371 67350630 Fax: +371 67350626 E-mail: [email protected] Twitter: @VASAB_org Web: www.vasab.org Printed in Latvia on environmentally friendly paper certified by FSC, May 2014 THE KEY TO GOVERNING THE FRAGILE BALTIC SEA Maritime Spatial Planning in the Baltic Sea Region and Way Forward Jacek Zaucha 1 Table of Content About the author: Jacek Zaucha is a PhD holder in economics, professor of the Maritime Institute in Gdańsk Introduction 4 and the University of Gdańsk, member of the VASAB Committee on Spatial Development of the Baltic Sea Region (1994–1996) and Deputy Secretary of the VASAB cooperation 1. Origin and Development of Maritime Spatial Planning in the Baltic Sea Region 5 (1996–2006), main author of the first maritime spatial plan in Poland, member of the team formulating the “Concept of the Spatial Development of Poland” – “National Spatial 1.1. Foundations of maritime spatial planning 5 Development Concept”, member of the drafting team for the update of “The Territorial 1.2. Ecosystem services in maritime spatial planning 7 Jacek Zaucha State and Perspectives of the European Union” and revision of the “Territorial Agenda of the 1.3. Baltic Sea Region as a pioneer in maritime spatial planning in Europe. The role of VASAB 11 European Union”, author of 105 scientific publications in the field of supranational spatial 1.4. Maritime spatial planning in the Baltic Sea Region. Projects and plans 23 PhD holder in economics, planning and development, European Union structural/cohesion policy, Baltic Sea Region professor of the Maritime integration and cooperation and maritime spatial planning. 2. Baltic Sea Broad-scale Maritime Spatial Planning Principles 47 Institute in Gdańsk and the University of Gdańsk 3. Baltic Sea Good Practices in Maritime Spatial Planning 51 Acknowledgements: 3.1. Stakeholder involvement 55 The chapter of the book on good practices is the result of discussions under the BaltSeaPlan 3.2. Methodology for strategic environmental assessment for maritime spatial plans 58 and BaltCoast projects. I would like to express my gratitude to their participants, in particular 3.3. Coping with information gaps 61 those who devoted a significant part of their professional life to the introduction of the idea 3.4. Baltic Sea Region data model 62 of maritime spatial planning (MSP) to the Baltic Sea Region: namely, to Bernhard Heinrichs 3.5. Regional strategy and vision 67 (former Head of Spatial Planning in Mecklenburg-Vorpommern), Andrzej Cieslak (Polish 3.6. Conscious inventory and acquisition of information relevant to maritime spatial planning 69 Maritime Administration) and Angela Schultz-Zehden (S.Pro). I am extremely pleased for their comments that considerably improved this book. I have always admired their efforts 4. Minimum Requirements for Transboundary Maritime Spatial Planning in for the cause of MSP, as well as devotion and determination to turn MSP into reality. The the Baltic Sea Region 73 part of the book on MSP in Russia was elaborated by Andrey Lappo (Андрей Дорофеевич Лаппо) the General Director of the JSC Research and Design Institute of Urban Development 4.1. Minimum requirement I: A common understanding of key principles 75 in St. Petersburg while with the Lithuanian case I was assisted by Nerijus Blažauskas from 4.2. Minimum requirement II: Legal provisions and institutions 76 the Coastal Research and Planning Institute (CORPI) at Klaipeda University. The part on 4.3. Minimum requirement III: The planning process and content of the plan 79 minimum requirements is based on the work of Kira Gee and Bernhard Heinrichs, and 4.4. Minimum requirement IV: Learning and training 86 in the project descriptions I have used the text drafted by Angela Schultz-Zehden. I am grateful to these authors for their collaboration and consent to contribute their intellectual 5. Conclusions and Way Forward 89 property. I am equally grateful to Charles Ehler, who inspired me with a lot of deep thoughts 5.1. Future oriented conclusions based on good practices and minimum requirements 89 on MSP and to Andrea Morf, who introduced me to and guided through the wonderland of 5.2. Possible directions of development of the Baltic maritime spatial planning 92 the ecosystem approach. I also want to express my appreciation to VASAB for offering me an excellent forum for discussing MSP and related issues. Finally, I wish to acknowledge References 103 the important role of two people thanks to whom I started research on MSP six years ago: Leonard Gajewski and Magda Matczak from the Maritime Institute in Gdańsk. Late Leonard Gajewski brought MSP to the research agenda of the Institute, and I am grateful List of key acronyms 108 to him for this visionary and strategic decision and for charging me with the task to push forward the issue in the Baltic context. Magda Matczak has supported me by her constant understanding, wise advice and critical evaluations of my texts since the beginning of my work on MSP. She has also inspired me with excellent diagrams, schemes and figures. Dedication: to my godmother Iza whom I admire for being tireless and full of energy like the sea. 2 3 Introduction CHAPTER 1: ORIGIN AND DEVELOPMENT OF MARITIME This book provides an introduction to the origin, evolution and the current state (up till January 2014) of the maritime spatial planning (MSP) in the Baltic Sea Region (BSR) and proposals for its further SPATIAL PLANNING IN THE development. The largest part of the book has been produced owing to the Plan Bothnia project run by the Helsinki Commission (HELCOM)1 and in co-operation with Vision and Strategies around the Baltic Sea (VASAB)2. The project3 (executed in 2011 and 2012) has tested transboundary MSP in the BALTIC SEA REGION Baltic Sea using the Bothnian Sea area between Sweden and Finland as a case study. Moreover, an indispensable part of the project was also the collection of good practices on transboundary MSP in the BSR (described in Chapter 3 of this book) and preparation of draft minimum requirements for MSP systems in order to ensure minimum level of synergy and compatibility and the transboundary character of national MSP initiatives in the BSR (presented in Chapter 4). Those findings were used for fuelling broader political discussions within HELCOM and VASAB framework. The work on minimum requirements and on good practices, therefore, was the first impulse for drafting this book. However, while engaging in those tasks, it became clear that the good practices and minimum requirements should be rooted in the MSP development process. Consequently, the Baltic MSP development mechanism has been analysed and presented in Chapter 1 of this book together with some key foundations of MSP such as Baltic Sea Broad-scale Maritime Spatial Planning Principles (described in Chapter 2) referred later on as HELCOM-VASAB MSP principles. The above analysis has prompted the author to think about future, namely, the way forward for Baltic MSP that is presented in Chapter 5. The first part of Chapter 5 (Chapter 5.1) is devoted to future-oriented conclusions and is based on the analysed good practices and minimum requirements. This is only an extended foresighted summary of Plan Bothnia findings. The second part is a more general reflection on the different possible scenarios for MSP development in the BSR (Chapter 5.2). These are the author’s own reflections not shared or endorsed by VASAB, HELCOM or 1.1. Foundations of maritime other official bodies. Although the ideas presented in Chapter 5.2 have their origin in the processes spatial planning Key Principles Emerging from induced by VASAB and HELCOM, they reflect private views of the author of this book and are Maritime Spatial Planning Practice elaborated by European presented for inspiration purposes only. By no means should they be treated as having any formal In a nutshell, maritime spatial planning is about creating new Commission* support or ambition to directly influence policy development. opportunities for economic growth and job creation in Europe, while safeguarding the marine biodiversity and cultural heritage 1. Using MSP according to area and type of activity that our seas provide. (EC 2010:4) 2. Defining objectives to guide MSP 3. Developing MSP in a transparent As indicated by many scholars (for details cf. Zaucha 2009:8; 2012a: 460) manner 4. Stakeholder participation Maritime Spatial Planning (MSP) – spatial planning of the sea areas – is a 5. Coordination within Member States – concept which relatively recently came to the attention of spatial planners simplifying decision processes 6. Ensuring the legal effect of national and decision makers responsible for spatial management and development. MSP The first plan regulating the use of marine areas was elaborated in Australia 7. Cross-border cooperation and consultation as early as in the mid-80s (Lawrence et al.
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