Opinion of the Committee of the Regions on "Towards a European Integrated Coastal Zone Management (ICZM) Strategy General Principles and Policy Options"
C 226/38 EN Official Journal of the European Communities 8. 8. 2000 Opinion of the Committee of the Regions on ‘Towards a European Integrated Coastal Zone Management (ICZM) Strategy General Principles and Policy Options’ (2000/C 226/11) THE COMMITTEE OF THE REGIONS, having regard to the reflection paper on ‘Towards a European Integrated Coastal Zone Management (ICZM) Strategy — General Principles and Policy Options’ and the accompanying document ‘Lessons from the European Commission’s Demonstration Programme on the Integrated Coastal Zone Manage- ment (ICZM)’ prepared by the Demonstration Programme’s team of thematic experts on ICZM; having regard to its Bureau’s decision of 15 September 1999, under the fifth paragraph of Article 265, instructing Commission 4 for Spatial Planning, Urban Issues, Energy and the Environment to draw up the relevant opinion; having regard to the opinion of the Committee of the Regions on the Communication from the Commission on the Integrated Management of Coastal Zones (CdR 114/96) (1); having regard to the draft Opinion (CdR 359/99 rev. 1) adopted by Commission 4 on 2 December 1999 (rapporteur: Ms McNamara (IRL, EA)), adopted the following opinion at its 33rd plenary session of 12 and 13 April 2000 (session of 12 April). 1. Introduction — to maintain the biological diversity and productivity of coastal ecosystems and to improve the quality of the coastal environment. The coastal zone is an area of land and sea territory the 1. 1. size of which is determined by its management needs. It varies significantly in terms of area, geomorphology, hydrology, biodiversity, land use, administrative, cultural and socio- economic systems. The dynamics and physical diversity of the coastal zone is compounded by the fact that it rarely adheres to, or coincides with existing administrative boundaries. 1. 2. The extensive geographical area of the coastal zone and the number of resources contained within it results in huge pressures for development and a range of competing uses that are not often compatible. Integrated Coastal Zone Management (ICZM) therefore seeks to manage the resources and uses in such a way that will allow the maximum number of competing uses while, at the same time, preventing irreversible damage to the natural ecosystems and processes which are responsible for the coastal zone. ICZM is a process of co-ordination and co-operation 1. 4. between all managers (at all spatial levels of authority, including the national level) and users of the coastal zone resources. It therefore requires a number of prerequisites for its effective operation. These include an understanding of its interregional nature, a recognition of its value, a programme of relevant actions and measures, a framework in which ICZM can occur, a comprehensive database, appropriate expertise and adequate funding. 2. Gist of the document ICZM is a continuous process which seeks, through 1. 3. more efficient and holistic management: The document prepared by the European Commission 2. 1. has two stated purposes: — to establish and maintain the sustainable use and develop- ment of the resources of the coastal zone so as to improve the quality of life of human communities dependent on these resources; and — To compile and diffuse the principal policy lessons emerg- ing from its Demonstration Programme on ICZM. (1) OJ C 182, 24. 6. 1996, p. 12. — To stimulate debate and develop consensus on a European ICZM strategy, designed to reverse the trend towards unsustainability that is presently pervasive in coastal zones across Europe. 8. 8. 2000 EN Official Journal of the European Communities C 226/39 2. 2. The Demonstration Programme has enabled a review of policy in coastal zone areas across Europe, and has indicated that good management can take many forms. The document specifies seven general principles that should apply to all future ICZM initiatives. A European ICZM Strategy is identified as a method that embodies these seven principles, and at the same time, promotes the sustainable development of the coastal zone. The document also discusses the various policy options for a European ICZM Strategy including the role of the EU, intersectoral co-ordination and a legal framework. 4. 2. Experience has demonstrated that the level of manage- ment must be appropriate to the scale of the coastal zone under consideration. Thus the COR emphasises that a general framework for ICZM would involve a guiding set of principles at a trans-national level, the framing of policy at an interre- gional level, and a greater focus on definition and implemen- tation of policy (including detailed ’plans’ or strategies) at a regional and local level. 3. General comments The COR welcomes the Reflection Paper as an oppor- 3. 1. tunity to contribute to the development of an European ICZM Strategy. 3. 2. The Demonstration Programme has highlighted the fact that, whilst coastal zone problems are common across Europe, solutions are generally specific to particular areas. The COR therefore emphasises that local and regional authorities are a vital component in ICZM. Local and regional authorities are best equipped to deal with implementation of ICZM policies. 3. 3. The COR advocates the mainstreaming of the lessons learnt from the Demonstration Programme. The COR believes that the ongoing development of a European ICZM Strategy is essential in order to promote good management in the coastal zone, particularly given its interregional nature. The COR stresses the importance of a European ICZM Strategy involving a coherent set of principles, measures, initiatives and a programme of support to guide local and regional authorities in the implementation of ICZM practices. 4. The importance of a local and regional dimension The COR stresses that local and regional authorities 4. 3. are best placed to deal with the implementation of ICZM, as they tend to be closest to the coastal problems and are experienced in dealing with issues and policies that require a multi-sectoral approach. Local and regional authorities are ideally placed to increase awareness of ICZM issues and their key role in spatial planning will prove invaluable in the development of ICZM plans. Furthermore the COR emphasises that 4. 4. local and regional authorities can cater for local needs, by providing local solutions to what generally are area-specific problems. The varied nature of the coastal zone ensures that blanket policies will be ineffective. Local and regional authorities are in the best position to provide local ICZM polices. 4. 5. The COR advocates the creation of European co- operation networks between coastal local and regional auth- orities. A network similar to the Sustainable Cities Network, which would allow discussion of common problems and dissemination of potential solutions, should be considered. 5. The value of an European Union dimension The Committee of the Regions underlines the value of 5. 1. a European Union dimension in the process of ICZM, as it will allow certain advantages in the establishment of coherent ICZM policies in the Member States and their regions. How- ever, there are a number of issues that will have to be addressed if a European ICZM Strategy is to be a success. 4. 1. The COR believes that the next stage in the develop- ment of a European ICZM Strategy is the establishment of a framework in which the effective operation of ICZM can take place. As the Demonstration Projects have shown there are a number of different frameworks that are suitable and appli- cable to specific areas. Each framework must be tailored to the requirements of the coastal zone in question, and therefore an effective strategy in one Member State or an individual region may not be appropriate to another. The COR believes that the role of the EU will be to 5. 2. provide guidance at a macro level. There is no one approach to Integrated Coastal Zone Management and therefore the level of management must reflect the extent of the coastal zone under consideration. At a European level, broad policies are required with actual coastal zone management plans only necessary at a regional and local level. C 226/40 EN Official Journal of the European Communities 8. 8. 2000 The COR suggests that 5. 3. the EU needs to take a proactive role in facilitating the development of Coastal Zone Management procedures across Europe including the possible formulation of broad policy principles. Action at EU level is required to support regional and local administrations in the implementation of ICZM. To this end the COR advises that the establishment of a programme of support similar in nature to Interreg IIC should be considered in order to facilitate the development of co-operation regions and networks, in zones such as the North Sea areas, Baltic Sea area, Atlantic Arc area and Mediterranean area. — continuing and supporting research and education into ICZM including for example, the ongoing development of demonstration methodologies and frameworks; — providing technical assistance and expert knowledge and facilitating interregional frameworks, trans-national co- operation, and exchange of experience; — increasing awareness of both the benefits of, and need for, Integrated Coastal Zone Management. 5. 4. The COR believes that the EU has an important role in developing and maintaining cross-border co-operation among Member States and with third countries in relation to ICZM. Proper management of the coastal zone requires trans-national agreements and co-operation networks. The COR believes that the EU is in the best position to facilitate such agreements. 5. 5. The COR stresses that a comprehensive review of all EU policies that affect the coastal zone is necessary including any initiatives that have an EU dimension. These include spatial planning policy as outlined by the ESDP, socio- economic policies such as the CAP, the Fisheries Policy and support programmes for coastal tourist resorts, environmental polices such as pollution and nature conservation programmes and all Structural Funding that affects development in the coastal zone. The COR submits that all policies should be assessed or audited to ensure that they do not have a negative impact on the coastal zone. Furthermore the COR advocates the appropriate mainstreaming of ICZM principles and stra- tegies into all EU policies after the Demonstration Programme has been completed. To provide a coherence for future ICZM policies at 5. 6. an EU level the COR suggests the establishment of an interdisciplinary team, representing the policy interests of the relevant Directorate Generals and led by the most appropriate DG (e. g. DG Environment). Its responsibilities would involve the on-going development of an EU ICZM Strategy and the further integration and mainstreaming of ICZM principles into other appropriate policy fields. 5. 7. The COR underlines the supporting role of the EU in relation to ICZM, which is envisaged in a number of ways, including inter alia: — facilitating the implementation of ICZM by the establish- ment of a programme of support in order to facilitate the development of co-operation regions and networks; 6. A need for commitment to Integrated Coastal Zone Management The COR stresses that there needs to be an increase in 6. 1. the general awareness of the importance of the coastal zone, and in particular its proper management. For this to take place the COR believes that there needs to be a commitment on behalf of all current managers to the process of Integrated Coastal Zone Management, at international, national, regional and local levels. Active and continuous participation is required, as opposed to a supporting role. The necessity of ICZM needs to be recognised and resources have to be committed. The COR believes that local and regional auth- orities must engender this commitment and take a share of the responsibility for it. The COR understands that ICZM is a complicated 6. 2. procedure which necessitates the involvement of all managers and users, including national governments, state bodies, regional and local authorities, NGOs, relevant commercial sectors and the public. However, the prerequisite for the proper management of the coastal zone is a commitment from all managers and users to the process of Integrated Coastal Zone Management. To this end the COR advocates the creation of enabling mechanisms within local and regional authorities and national administrations in order to establish synergy and allow the involvement of all relevant sectors and individuals. 7. The need to define the coastal zone The COR advocates the physical definition of the 7. 1. coastal zone at a local level where necessary in order to establish its management needs. This will involve the collection and collation of all available data on the coastal zone, its physical extent, its administration and its users. The COR sees a number of advantages in physically defining the coastal zone as it will enable the following: — assisting in the provision of resources particularly in support of regional and local administrations in solving coastal problems; — the identification of existing management problems and shortcomings; 8. 8. 2000 EN Official Journal of the European Communities C 226/41 — the identification of existing coastal zone managers and existing administrative systems responsible for the coastal zone; — the creation of greater co-operation between existing coastal managers and existing administrations; play an important role in future coastal zone management procedures. The COR believes that their awareness of the benefits of, and need for, coastal zone management must be increased and they must also be educated in the implemen- tation of ICZM practices. — the creation of a framework for ICZM including new management structures, which are specific to particular coastal areas; 9. Conclusions 7. 2. Whilst the COR recognises that the boundaries of the coastal zone are determined by natural processes and systems, there must be a cut-off point in defining these boundaries. The COR therefore suggests that a balance should be struck between the natural processes and existing management systems when defining the coastal zone. For example in the preparation of a draft policy for ICZM in Ireland it was ascertained that there were nine coastal cells around the country formed by natural coastal processes. These were subsequently divided into 13 coastal cells as a result of a study of the existing administrative boundaries and the relative ease to produce strategic plans for 13 rather than nine cells. The COR advocates that the definition of the coastal zone should occur at a local/regional level as local and regional authorities are likely to have the best knowledge of the appropriate boundaries. 8. The need for resources The COR reiterates that ICZM requires resources in 8. 1. order for proper implementation to occur. Resources are particularly necessary for the development and support of ICZM delivery mechanisms, data collection and collation, and education. 8. 2. The COR notes that data collection and collation will be a crucial component in establishing an ICZM framework. Acquiring information and collating it into a format which is relevant and accessible can be an expensive procedure in terms of both monetary and time costs. Much of the information is already available but is either not accessible or not known. The COR therefore suggests that costs can be reduced by ascertaining the information available and, after deciding what is missing, collecting the necessary data. Research and information needs must be defined through a genuine partnership between research organisations and coastal man- agers. 8. 3. The COR considers that resources will also be essential for education and raising awareness of Integrated Coastal Zone Management, particularly amongst existing current coastal zone managers. It is likely that the existing managers will The Committee of the Regions welcomes the Reflection Paper and believes that the 9. 1. ongoing development of ICZM principles is essential for the creation of an EU ICZM Strategy in order to protect the coastal zone, to promote its sustainable development and to develop systems to foster interregional co-operation; the role of stresses the importance of 9. 2. local and regional authorities in the implementation of ICZM, given their experience in dealing with multi-sectoral problems and the fact that coastal zone problems and solutions are generally area-specific. The varied nature of the coastal zone ensures that local and regional authorities are in the best position to provide local solutions to local problems. The creation of co-operation networks between coastal local and regional authorities is advocated to allow discussion of common problems and dissemination of potential solutions; the various interest groups or user groups and the local population should also be involved. 9. 3. underlines the value of a European Union dimension in the development of a European ICZM Strategy and suggests that the EU should have a guiding and supporting role at a macro level. This role will allow the facilitation of cooperation regions and networks between Member States and with third countries. The EU is in the best position to enable cross-border cooperation in relation to the establishment of a ICZM Strategy, given the opportunities that the new Interreg IIIB will provide. stresses that a comprehensive review of all EU policies 9. 4. that affect the coastal zone is necessary, including other initiatives with an EU dimension. This includes the ESDP, the CAP, the Fisheries Policy and support programmes for coastal tourist resorts, environmental policies such as pollution and nature conservation programmes and all Structural Funding that affects development in the coastal zone. 9. 5. advocates the establishment of an interdisciplinary team representing the policy interests of the relevant Director- ate Generals. Its responsibilities would involve the on-going development of an EU ICZM Strategy and the further inte- gration and mainstreaming of ICZM principles into other appropriate policy fields. C 226/42 EN Official Journal of the European Communities 8. 8. 2000 9. 6. emphasises the need for commitment from all man- agers and users to the process of ICZM. Enabling mechanisms within local and regional authorities and national adminis- trations have to be created in order to establish synergy and allow the involvement of all relevant sectors and individuals. when defining the coastal zone. The definition of the coastal zone should occur at a local/regional level as local and regional authorities are likely to have the best knowledge of the appropriate boundaries, managers, administrations and exist- ing problems; 9. 7. advocates the physical definition of the coastal zone at a local level where necessary in order to establish its manage- ment needs and suggests that a balance should be struck between natural processes and existing management systems 9. 8. reiterates the necessity for proper resources in order to enable ICZM to occur, in particular for the development and support of ICZM delivery mechanisms, data collection and collation, and education. Brussels, 12 April 2000. The President of the Committee of the Regions Jos CHABERT