How sustainable is sustainable marine spatial planning? Part I—Linking the concepts

Marine spatial planning (MSP) has emerged worldwide as a tool for sustainable ocean governance. This paper reviews how sustainability and ecosystem-based management (EBM) have been included so far within the MSP general framework, by carrying out: (1) a review on the links between sustainability, EBM and MSP in EU maritime policy initiatives; (2) an analysis on the differences between ecosystem-based MSP versus MSP focused on delivering blue growth; and (3) a discussion on how adaptive management may address some of the main challenges found in achieving sustainable ocean management. From the EU Green Paper (2006) to the MSP Directive Proposal (2013), MSP processes based on the principle of EBM have been recognized as a necessary tool to ensure maritime sustainable development. Although ecosystem-based MSP has been recently presented as the best way to ensure both ecosystem conservation and development of human activities, most national and European MSP initiatives seem to follow a MSP approach focused in delivering blue growth. A challenge, therefore, arises: how to adjust policy decisions to properly preserve ecosystems and the services they provide? If truly implemented, an adaptive approach seems to be a way forward in ensuring that spatial planning, management and policy-making in marine spaces can be continuously adjusted, thus allowing for sustainability.     

Effective practice in marine spatial planning: A participatory evaluation of experience in Southern England

Marine spatial planning (MSP) is a new component of the marine governance framework in England. Two MSP pilot studies undertaken on the south of England are evaluated in this paper to obtain key reflections from participants and process organisers. The evaluation was conducted through two phases of personal interviews. Three key reflections emerged related to effective practice in MSP. First was that MSP should be inclusive, which is delivered through adequate participatory opportunities, clear leadership, exploiting trusted pre-existing communication channels, and supporting participants to develop their marine planning capacity. Second, was that the MSP evidence base should maximise the quality and extent of evidence available and offer clarity over data gaps and uncertainty. Third, that adequate resources are critical to successful MSP, particularly to ensure that stakeholder groups should allocate sufficient staff time to fully engage in MSP and that MSP process organisers should allocate sufficient resources to fully support stakeholders throughout the MSP process.     

Guiding ecological principles for marine spatial planning

The declining health of marine ecosystems around the world is evidence that current piecemeal governance is inadequate to successfully support healthy coastal and ocean ecosystems and sustain human uses of the ocean. One proposed solution to this problem is ecosystem-based marine spatial planning (MSP), which is a process that informs the spatial distribution of activities in the ocean so that existing and emerging uses can be maintained, use conflicts reduced, and ecosystem health and services protected and sustained for future generations. Because a key goal of ecosystem-based MSP is to maintain the delivery of ecosystem services that humans want and need, it must be based on ecological principles that articulate the scientifically recognized attributes of healthy, functioning ecosystems. These principles should be incorporated into a decision-making framework with clearly defined targets for these ecological attributes. This paper identifies ecological principles for MSP based on a synthesis of previously suggested and/or operationalized principles, along with recommendations generated by a group of twenty ecologists and marine scientists with diverse backgrounds and perspectives on MSP. The proposed four main ecological principles to guide MSP—maintaining or restoring: native species diversity, habitat diversity and heterogeneity, key species, and connectivity—and two additional guidelines, the need to account for context and uncertainty, must be explicitly taken into account in the planning process. When applied in concert with social, economic, and governance principles, these ecological principles can inform the designation and siting of ocean uses and the management of activities in the ocean to maintain or restore healthy ecosystems, allow delivery of marine ecosystem services, and ensure sustainable economic and social benefits.     

The role of marine spatial planning in sea use management: The Belgian case

The expansion of offshore activities and the increasing need to meet international and national commitments to biodiversity conservation have led to an enhanced interest in marine spatial planning (MSP) as a tool for sea use management. Several European countries, on their own initiative or driven by European legislation and policy, have taken global leadership in implementing MSP. This article will discuss the Belgian experiences with MSP. It will give a short historical overview based on legal developments and review the implementation process of a ‘Master Plan’ as a spatial management policy for the Belgian Part of the North Sea. Additionally, this article will reflect on the research that has been done in Belgium to apply a land-use planning approach to the marine environment. The MSP process in Belgium shows that a spatial approach to sea use management is possible despite the lack of a legal zoning framework. However, it concludes that a legal basis for MSP, in addition to the current permit system, would provide a more strategic and integrated framework for ecosystem-based, sea use management.     

Marine spatial planning in the Middle East: Crossing the policy-planning divide

Many countries have begun marine spatial planning (MSP) efforts in the past decade and much academic and professional literature reviews and analyzes these processes. Relevant research that can contribute greatly to new efforts at MSP compares efforts, both recent and historical, with ideals set for spatial planning processes. This research addresses the extent to which paradigms from the planning practice and the policy field can be relevant for the MSP context. It does so by analyzing the interim products of an MSP process addressing the Mediterranean Sea area in the waters adjacent to the State of Israel. Results emphasize the potential contribution of public policy analysis and planning to critique outcomes of the MSP process with the aim of improving outcomes and devising best practices. This type of analysis can inform MSP as it becomes an accepted practice as a mainstream tool in the field of environmental planning. The complexity and challenge of spatial planning when policy foundations are minimal is highlighted in the results.     

How supportive are existing national legal regimes for multi-use marine spatial planning?—The South African case

Over the past six years international interest in multi-use marine spatial planning (MSP), as a practical process to launch integrated coastal management (ICM), exploded. This paper explores the extent to which existing national legal frameworks can support this process, focusing on the coastal marine environment. First the characteristics of an appropriate legal regime for multi-use MSP are explored by interrogating secondary data sourced from literature reviews and case studies. Key paradigms are distilled as a means of dissecting this complex process into a suite of characteristic determinants that disclose the underpinning environmental management approaches or principles. These criteria are then used to assess the compatibility of national legal regimes for multi-use MSP—in this instance the South African legal framework. Although multi-use MSP has not been explicitly adopted as a process within South Africa's broader ICM implementation, existing legislation does reveal support. The department responsible for the environment is viewed as the most appropriate agency to house the statutory mechanism for multi-use MSP at national and provincial levels, but delegating local multi-use MSP processes to local government agencies. The political will to deploy and dedicate duties and resources to effective implementation of multi-use MSP, however, remains critical. Finally, the approach adopted here is proposed as a means to assess the compatibility of other national legal regimes for multi-use MSP, although the suite of characteristic determinants may need to be reviewed from time to time, as new learning emerges from practice.     

Evaluation of marine spatial planning

Evaluation is generally recognised as an essential step for learning and improvement in marine spatial planning (MSP). Practical guidance and experience relative to evaluation in MSP is, however, very limited. To address this gap, this paper addresses a set of issues relevant for evaluation design and performance: the object of evaluation is discussed in relation to the functions of planning, the choice of objectives and the timing of evaluation; factors affecting causality attribution are analysed, namely multi-causality of observed effects, counterfactual design, time lags and uncertainty; and possibilities and requirements regarding stakeholder involvement in evaluation are considered.Six models of planning evaluation are reviewed, based on which a step-wise framework for MSP evaluation is developed. Future research should pilot test and assess this framework and broaden the evidence base relative to impacts of marine management initiatives.     

Marine spatial planning in Scotland. Levelling the playing field?

Marine spatial planning (MSP) is the leading tool for managing human activities at sea. It is designed to assist in decision making for marine resource access and use by considering the actions of those using the resources, interactions between these groups, and their cumulative impact on the natural environment. Being informed by ecosystem based management, MSP recognises that socio-natural systems are complex and that stakeholder and public input are key components of well-informed decision making. Therefore, MSP is rooted in the principles of good governance, including those of participation and transparency. This paper considers MSP processes in Scotland's inshore waters in the context of these good governance principles. The focus is on the institutional arrangements that allow stakeholders and the public to contribute to planning Scotland's seas and coasts. Whilst acknowledging the significant challenges faced by planners, and the work conducted so far, this research suggests that improvements could be made in how – and when – engagement takes place. It appears that at an early stage of introducing MSP in Scotland powerful stakeholders shaped the images, values and principles that guide it, and that including a broader range of actors early on might positively affect the legitimacy and acceptance of MSP in its later stages. The current institutional arrangements do not appear to allow for this. Ultimately, MSP in Scotland is in danger of institutionalising – and thus legitimising – existing power relations between marine resource users, and it does little to level the playing field.     

How sustainable is sustainable marine spatial planning? Part II – The Portuguese experience

With one of Europe׳s largest exclusive economic zones, Portugal has a paramount role in the implementation of EU maritime policies. In the Portuguese context, ocean planning and management are presently undergoing major advances. This paper analyzes and discusses the present state of affairs regarding the Portuguese marine spatial planning (MSP) process, comprising: (1) an update on the status of MSP in Portugal; (2) an analysis on how sustainability concepts are to be implemented in the Portuguese MSP process and (3) a discussion on major challenges to Portuguese MSP long-term sustainability. The Portuguese MSP process can be divided in two phases: development of the “Plano de Ordenamento do Espaço Marítimo” (POEM) – initially intended to be the first Portuguese “marine spatial plan” but then published as a “study”; and development of the Law Proposal 133/XII on marine planning and management – soon to be approved. A key question for the long-term adequacy of Portuguese MSP is how is it addressing environmental sustainability: is it relying on soft or hard sustainability concepts? Is it prioritizing the achievement of good environmental status (GES) or blue growth? In both cases (POEM and Law Proposal), soft sustainability seems to be the underlying principle, because although the ecosystem approach is recognized as fundamental, environmental quality seems to come second when set against economic goals.     

Citizen science and the power of public participation in marine spatial planning

Marine spatial planning (MSP) is becoming increasingly used in the sustainable management of marine and coastal ecosystems. However, limitations on time and resources often restrict the data available for MSP and limit public engagement and participation in the MSP process. While citizen science is being increasingly used to provide fine-scale environmental data across large terrestrial planning areas, there has been little uptake in MSP to date. This paper demonstrates how consistent citizen observations can be used to identify hotspots of good and poor environmental health across a MSP region, and where environmental health has improved or degraded in the past five years; information that is difficult to obtain by other means. The study demonstrates how citizen science provides valuable insight into environmental health across a MSP region, while fostering a supportive space for the public to contribute their own observations and participate in the planning process.     

The integration of nature conservation into the marine spatial planning process

The understanding of the role of nature conservation (NC) is used to illustrate how an integrated and sustainable approach to decision-making could be developed for planning and managing activities in the marine environment. The need for NC to be integrated in the marine spatial planning (MSP) decision-making process is highlighted in various initiatives around the world. However none of these initiatives describes a commonly applicable framework to achieve this goal. The plethora of interpretations regarding the meaning, role and position of NC in planning, makes such an attempt more complex. A good starting point in order to develop such a process is to answer the question: how NC can contribute to the achievement of sustainability in the context of MSP? In the present study the different ways that NC has been interpreted over time are explored and several definitions are analyzed, concluding that there is currently no common approach to NC in MSP initiatives. Therefore it is indicated that NC should be treated as a means to achieve good environmental status of the ecosystem, based on its spatial, economic and conflict resolution dimensions, characteristics that are common among all marine uses. Consequently, it is proposed that NC at sea should be put in a central position during the MSP processes. A schematic presentation of the concept is provided in this paper.     

Decision support tools in marine spatial planning: Present applications,gaps and future perspectives

Evidence-based decision making is an essential process for sustainable, effective, and efficient marine spatial planning (MSP). In that sense, decision support tools (DSTs) could be considered to be the primary assistant of planners. Although there are many DSTs listed in tool databases, most of them are conceptual and not used in real MSP implementation. The main objective of this review is to: (i) characterize and analyse the present use of the DSTs in existing MSP implementation processes around the world, (ii) identify weaknesses and gaps of existing tools, and (iii) propose new functionalities both to improve their feasibility and to promote their application. In total, 34 DSTs have been identified in 28 different MSP initiatives with different levels of complexity, applicability and usage purposes. Main characteristics of the tools were transferred into a DST matrix. It was observed that limited functionality, tool stability, consideration of economic and social decision problems, ease of use, and tool costs could be considered as the main gaps of existing DSTs. Future developments are needed and should be in the direction of the specific need of marine planners and stakeholders. Results revealed that DST developments should consider both spatial and temporal dynamics of the ocean, and new tools should provide multi-functionality and integrity; meanwhile they should be easy to use and freely available. Hence, this research summarised current use, gaps, and expected development trends of DSTs and it concludes that there is still a big potential of DST developments to assist operational MSP processes.     

Marine spatial planning: Lessons learned from the Portuguese debate

This paper presents and discusses legal, methodological and political frameworks for the development of the proposed Portuguese Marine Spatial Plan initiated in 2008. It considers lessons learned and is informed by discussions that have taken place since publication of the ‘Roadmap for Maritime Spatial Planning: Achieving Common Principles in the EU’. New goals are based on horizontal planning tools that cut across sea-related sectoral policies and support joined up policy making. It is in this context that Marine Spatial Planning (MSP) emerged as an essential process for sustainable decision making. The OSPAR Commission undertook an overview of national planning systems within its administrative boundaries, which confirmed spatial plans reduced conflicts. However, problems exist accessing good quality data and dealing with entrenched sectoral views. Furthermore, the transboundary nature of marine resources requires cooperation between neighbouring states. In 2006, Portugal developed a ‘National Sea Strategy’ that recognized the importance of developing its maritime space while valuing marine habitats and biodiversity. MSP development of the Portuguese sea commenced in 2008 and findings are now evaluated. They showed adaptation of existing tools to be possible and desirable, provided undertaken cautiously and found conceptual ambiguities were barriers to conflict resolution. Furthermore they showed management strategies should be designed and analysed on a case by case basis, recognising temporal and spatial variations.     

英格兰东部海洋空间规划及其对我国的启示

为促进我国海洋空间规划体系建设，文章采用案例研究法，分析英格兰东部海洋空间规划的制定过程、主要内容和实施现状，总结可供我国借鉴的相关经验。研究结果表明：海洋空间规划的范围应尽可能地与陆域空间规划相对接，以推进陆海统筹理念的落实；设立明确和清晰的海洋开发与保护总目标尤为重要，同时依靠政策、空间规划和海域使用许可制度，逐层将总目标予以细化和落实；公众和利益相关者的参与是海洋空间规划的必要环节，对规划的制定和实施发挥重要的促进作用；海洋空间规划是适应性管理过程，须开展持续性监测和评估，情境监测、过程监测和结果监测三者相结合的综合性监测和评估方式值得参考。     

NGO involvement in marine spatial planning: A way forward?

Non-Governmental Organizations (NGOs) are playing important roles in environmental conservation and management. Some are actively involved in the development and implementation of marine spatial planning (MSP), especially in Europe where this has been embodied within a European Directive. MSP is being used by many countries to sustainably manage coastal and marine areas, and reduce conflicts. However, recommendations regarding specific NGO roles within the MSP process are lacking. Consequently, to fill this gap and discuss a way forward, a session at the 5th Global Conference on Oceans, Coasts and Islands (GOF5) brought together MSP experts and NGO representatives. This paper reports the conclusions of these discussions and presents a summary guideline document for efficient and effective NGO MSP engagement.     

Evaluating tradeoffs among ecosystem services to inform marine spatial planning

A central challenge for natural resource management is developing rigorous yet practical approaches for balancing the costs and benefits of diverse human uses of ecosystems. Economic theory has a long history of evaluating tradeoffs in returns from different assets to identify optimal investment strategies. There has been recent progress applying this framework to the delivery of ecosystem services in land use planning. However, despite growing national and international interest in marine spatial planning, there is a lack of parallel frameworks in the marine realm. This paper reviews an ecosystem service tradeoff analysis framework and provides a more comprehensive synthesis for how it can be applied to marine spatial planning and marine ecosystem-based management. A tradeoff analysis approach can reveal inferior management options, demonstrate the benefits of comprehensive planning for multiple, interacting services over managing single services, and identify ‘compatible’ services that provide win–win management options.     

Environmental justice implications of Maritime Spatial Planning in the European Union

This paper examines the implications of environmental justice in the regime for Maritime Spatial Planning (MSP) currently developing in the European Union (EU). An ‘ecosystem-based approach’ to marine management is enshrined in the new Integrated Maritime Policy and Marine Strategy Framework Directive and forms the basis of MSP. This concept is intended to encompass all aspects of an ecosystem, including the human element. Yet the modes of including meaningful public participation in the decision-making process for MSP remain undetermined. At the same time, the Aarhus Convention (on access to information, public participation in decision making and access to justice in environmental matters) empowers non-governmental organisations to hold EU Member States to account. Consequently the issue of transparency will gain increased importance, as will linkages between human and environmental rights. Such public interest-based activism on the part of NGOs has the potential to enforce the developing framework for stakeholder engagement within MSP, but it also has implications worth considering regarding the appropriate role of interest-based organisations in the international political arena.     

From Scotland to New Scotland: Constructing a sectoral marine plan for tidal energy for Nova Scotia

Competing usage of marine space has prompted several coastal nations to implement marine spatial planning (MSP). While progressive governments promote the deployment of renewable energy technologies (RETs) in order to meet renewable energy capacity and greenhouse gas emissions reductions targets, offshore RETs become another player operating within a finite and already stressed marine environment. This paper applies the sectoral MSP process employed by Scotland to the Nova Scotia context in order to draft a MSP for the province's tidal energy sector. Applicable legislation is reviewed in order to establish the regulatory authorities with powers to plan for both the marine development and ecosystem protection agendas. The scoping process identifies suitable resource areas based on the operational parameters of commercially viable tidal current turbines (TCTs), while the sustainability appraisal identifies areas of cultural, industry, ecological, and socioeconomic constraint and exclusion. Plan option areas emanating from the applied methodology demonstrated a 238.345 km² (98.1%) increase in suitable TCT deployment area than the marine renewable energy areas identified in Nova Scotia's Marine Renewable Energy Act which did not undertake such a methodology.     

Spatially explicit economic assessment of cultural ecosystem services: Non-extractive recreational uses of the coastal environment related to marine biodiversity

The adoption of comprehensive marine spatial plans (MSP) requires that all aspects of value associated with marine biodiversity are considered in their development. Therefore, a holistic approach to MSP needs to include the ecological, social and economic aspects related to the range of goods and services provided by marine biodiversity. In temperate coastal areas however, extractive uses of marine biodiversity (i.e., fisheries) tend to receive more consideration than other non-extractive uses such as certain forms of recreation. This is primarily due to its economic and social importance and a lack of information on non-extractive uses of marine biodiversity. This study presents an assessment of the economic importance and spatial distribution of non-extractive uses of marine biodiversity (diving, kayaking, wildlife watching from boats and seabird watching) in the coastal temperate area of Wales and its application to MSP. The assessment of the economic importance and spatial distribution of these uses was ascertained through questionnaires with relevant users. Results indicated that the economic importance of non-extractive recreational uses of marine biodiversity in Wales is comparable to that of commercial fisheries for the same region. Spatially there was a significant degree of overlap among areas used by the different recreational groups studied here and the distribution of uses could be linked to different aspects of marine biodiversity, such as the presence of particular habitats in the case of divers. The integration of spatially explicit socioeconomic data for a range of different uses of marine biodiversity enables policy makers to gain useful insight into the potential consequences of implementing a spatial management regime, as certain uses can be sometimes overlooked but are still essential if we are to consider the impact of spatial planning on all economically relevant activities. Such data provide a balanced overview of the value of marine biodiversity to different sectors of society and contributes to the process of developing comprehensive marine spatial plans.