The importance of marine spatial planning in advancing ecosystem-based sea use management

During the past 10 years, the evolution of marine spatial planning (MSP) and ocean zoning has become a crucial step in making ecosystem-based, sea use management a reality. The idea was initially stimulated by international and national interest in developing marine protected areas, e.g., the Great Barrier Reef Marine Park. More recent attention has been placed on managing the multiple use of marine space, especially in areas where conflicts among users and the environment are already clear, e.g., in the North Sea. Even more recent concern has focused on the need to conserve nature, especially ecologically and biologically sensitive areas, in the context of multi-use planning of ocean space. Despite academic discussions and the fact that some countries already have started implementation, the scope of MSP has not been clearly defined. Terms such as integrated management, marine spatial management, and ocean zoning are all used inconsistently. This is one of the reasons why its importance is not more seriously reflected at the levels of policy and decision-making in most countries. This article attempts to deal with this problem. It describes why MSP is an essential step to achieve ecosystem-based sea use management, how it can be defined and what its core objectives are. The article concludes with an analysis of the use and achievements of MSP worldwide, with particular focus on new approaches in Europe.     

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.     

The emerging policy landscape for marine spatial planning in Europe

This paper provides an overview of the emerging policy landscape for marine spatial planning in the European Union, which consists of four main categories of policy drivers: environmental legislation, legislation on marine renewable energy, fisheries regulations and the Integrated Maritime Policy. The weak links between these categories of policy drivers, underpinned by a lack of clarity regarding the vision for sustainability, pose major challenges for the emergence of ecosystem-based and integrated marine spatial planning in Europe. In addition, there is still uncertainty arising from on-going reform of the Common Fisheries Policy, and discussions on the need for a new marine spatial planning directive. This paper concludes with the view that better integration of environmental concerns into the Common Fisheries Policy is needed to strengthen the link between environmental legislation and fisheries regulations, and that the existing policy landscape, particularly the Marine Strategic Framework Directive, already provides a legal framework for ecosystem-based marine spatial planning. Such a framework is consistent with the recognition that ecosystem conservation underpins other pillars of sustainable development and provides the foundation for cross-sectoral marine planning and management.     

The international legal framework for marine spatial planning

Increasing demand for ocean resources, both living and non-living, have already lead to loss of biodiversity, habitat depletion and irreversible damage to the marine environment. Furthermore, introduction of new kinds of sea uses, spatial extension of ongoing sea uses and the need to better protect and conserve the marine biological diversity will result in increasing conflicts among the various users, as well as between the users and the environment. Marine spatial planning as a process to allocate space for specific uses can help to avoid user conflicts, to improve the management of marine spatial claims, and to sustain an ecosystem-based management of ocean and seas. This article explores the rights and duties towards exploitation and protection of the marine environment under the jurisdiction of coastal states as reflected in two important global conventions, the United Nations Convention on the Law of the Sea and the Convention on Biological Diversity. Both Conventions provide the main legal framework for marine spatial planning that have to be taken into account in planning at the regional and national level.     

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。     

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.     

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.     

Key elements and steps in the process of developing ecosystem-based marine spatial planning

Marine spatial planning (MSP) is an essential tool for delivering an Ecosystem Approach and should add value to existing management measures for the marine environment. It should be based on a clear set of principles with a sustainable development purpose. Developing MSP can draw selectively on extensive experiences in terrestrial land use planning. A nested approach with appropriate planning activity at different spatial scales is recommended. Defining appropriate management units is important and particular effort will be required where these do not align with ecosystem boundaries. The timeframe for plans is tending to increase from around 10 to 20+ years, but review periods are required which enable a balance between stability and relevance. This article focuses on the key steps in the planning process of developing ecosystem-based MSP. The importance of setting specific objectives, including as a context for the full range of relevant spatial data, and determining priorities is emphasised. It is also suggested that stakeholder engagement, including the way it is undertaken, is critical to different stages of the process.     

Biogeographic assessments: A framework for information synthesis in marine spatial planning

This paper presents the Biogeographic Assessment Framework (BAF), a decision support process for marine spatial planning (MSP), developed through two decades of close collaborations between scientists and marine managers. Spatial planning is a considerable challenge for marine stewardship agencies because of the need to synthesize information on complex socio-ecological patterns across geographically broad spatial scales. This challenge is compounded by relatively short time-frames for implementation and limited financial and technological resources. To address this pragmatically, BAF provides a rapid, flexible and multi-disciplinary approach to integrate geospatial information into formats and visualization tools readily useable for spatial planning. Central to BAF is four sequential components: (1) Planning; (2) Data Evaluation; (3) Ecosystem Characterization; and (4) Management Applications. The framework has been applied to support the development of several marine spatial plans in the United States and Territories. This paper describes the structure of the BAF framework and the associated analytical techniques. Two management applications are provided to demonstrate the utility of BAF in supporting decision making in MSP.     

The Portuguese maritime spatial plan

Numerous national governments and supranational organizations such as the OSPAR Commission, the European Union and the United Nations Educational, Scientific and Cultural Organization (UNESCO) have underlined the importance of maritime spatial planning (MSP) for balancing and solving conflicts between the needs of different sectors and conservation in the marine space. In the last decade, many maritime spatial plans have been developed around the world. The drivers to develop these plans and the approaches to find solutions for the particular problems differ significantly. The Portuguese national marine jurisdiction is one of the largest in Europe. For the continental part, a maritime spatial plan was initiated in 2009, and entered in 2010 in the final stage of approval. One of the driving forces for this MSP initiative was the claim to extend its continental shelf. The development process was led by a multidisciplinary team. Despite the challenges, the existing as well as potential future marine resources and activities were characterized, mapped and categorized. To overcome conflicts resulting from the many overlapping uses and to assure sustainable development of all sectors, a conflict analysis and evaluation of potential future uses were necessary. The applied zoning scheme represented an exercise of conflict solving and proved to be a powerful tool to promote discussion and participation among stakeholders. The successful implementation of Portuguese MSP will rely largely on its ability to provide efficient management, financial and legal mechanisms to achieve the integration of all strategies and spaces under the Portuguese maritime jurisdiction.     

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.     

The Darwin Mounds special area of conservation: Implications for offshore marine governance

As the first offshore marine protected area (MPA) designated in the United Kingdom (UK), the Darwin Mounds area of cold-water coral provides a unique opportunity for examining MPA governance in offshore waters, i.e. beyond the territorial sea (12 nautical miles (nm)) but within Exclusive Economic or Fishing Zones (EEZs or EFZs, out to 200 nm). Whilst the Darwin Mounds Special Area of Conservation (SAC) represents a unique case study for offshore marine conservation, both in terms of circumstances and legal precedence, it also provides lessons for future MPA designations in offshore waters. As Member States of the European Union embark on Maritime Spatial Planning (MSP) throughout their EEZs/EFZs, understanding the governance framework and potential opportunities and challenges in the offshore zone will become increasingly important for achieving marine conservation objectives in the face of competing economic interests and overlapping jurisdictions.     

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.     

New metrics for managing and sustaining the ocean's bounty

Policies are arising around the world, most recently in the United States, that mandate the implementation of marine spatial planning as a practical pathway towards ecosystem-based management. In the new United States ocean policy, and several other cases around the globe, ecosystem services are at the core of marine spatial planning, but there is little guidance on how ecosystem services should be measured, making it hard to implement this new approach. A new framework is shown here for practical, rigorous ecosystem service measurement that highlights contributions from both natural and social systems. The novel three-step framework addresses traditional shortcomings of an ecosystem services approach by giving managers and scientists the tools to assess and track: (1) the condition of the ecosystem (supply metrics), (2) the amount of ocean resources actually used or enjoyed by people (service metrics), and (3) people's preference for that level of service (value metrics). This framework will allow real world progress on marine spatial planning to happen quickly, and with a greater chance for success.     

The need and practice of monitoring, evaluating and adapting marine planning and management—lessons from the Great Barrier Reef

An increasing number of scientists and resource managers recognise that successful marine management approaches, including marine spatial planning (MSP), cannot occur without effective monitoring, evaluation and adaptation. These basic components are necessary to ensure that any marine planning or marine management measures are both effective and efficient. While a number of fundamental principles for marine monitoring, evaluation and adaptive management exist, there are varying levels of understanding about how these should be undertaken and what they may achieve. Challenges include the development of realistic and measurable objectives and indicators against which effectiveness can be practically measured. The matter becomes even more complicated as the focus of marine planning and management strategies changes from ‘single species’ to ‘habitats’ and ‘ecosystems’ that may enable a diversity of permitted uses consistent with a variety of overall objectives. Over the last 30 years, the Great Barrier Reef Marine Park (GBRMP) has successfully established a multiple-use spatial management approach that allows both high levels of environmental protection and a wide range of human activities. Drawing on this unique long-term experience in the GBRMP, this article discusses key aspects of effective monitoring and evaluation, and summarises lessons learned from over two decades of adaptive management.     

Rising to the integration ambitions of Marine Spatial Planning: Reflections from the Irish Sea

Marine Spatial Planning (MSP) is emerging as key tool in the delivery of more effective sea use management and the integration ambitions of MSP are central to its rise to prominence. This paper reviews three key strands of thinking (integrated coastal and ocean management; integrated water resource management; and terrestrial spatial planning) that are informing the development of MSP and sets out a framework encompassing different dimensions of integration that those engaged in MSP might find it helpful to consider. The paper then explores how this framework can inform MSP development and related activity by using it to structure reflections on experience in the Irish Sea. Here the paper draws upon the outputs of a project that was funded by the UK's Economic and Social Research Council concerning Transnational Partnership Working in Support of Marine Spatial Planning in the Irish Sea. The analysis highlights the integration strengths and weaknesses associated with the emerging MSP structures in the Irish Sea and areas where further attention may be beneficial. The paper concludes by reflecting upon the value of the integration framework proposed, how it could be developed, and on key issues that those engaged in MSP in other contexts might need to address in rising to the integration ambitions of MSP.     

Priority questions to shape the marine and coastal policy research agenda in the United Kingdom

United Kingdom (UK) and European Union policy is rapidly developing to meet international targets for the sustainable use and protection of the marine environment. To inform this process, research needs to keep pace with these changes and research questions must be focused on providing robust scientific evidence. Thirty four priority research questions within six broad themes were identified by delegates who attended the 1st marine and coastal policy Forum, hosted by the Centre for Marine and Coastal Policy Research at Plymouth University in June 2011. The priority questions formed through this research are timely and reflect the pace and change of marine policy in the UK in response to international, European and national policy drivers. Within the data theme, the majority of questions seek to find improved procedures to manage and use data effectively. Questions related to governance focus on how existing policies should be implemented. The marine conservation questions focus entirely upon implementation and monitoring of existing policy. Questions related to ecosystem services focus on research to support the conceptual links between ecosystem services, ecosystem function, and marine management. Questions relating to marine citizenship are fundamental questions about the nature of societal engagement with the sea. Finally, the marine planning questions focus upon understanding the general approaches to be taken to marine planning rather than its detailed implementation. The questions that have emerged from this process vary in scale, approach and focus. They identify the interdisciplinary science that is currently needed to enable the UK to work towards delivering its European and international commitments to achieve the sustainable use and protection of the marine environment.     

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.     

Integrated management of marine biodiversity in Europe: Perspectives from ICZM and the evolving EU Maritime Policy framework

Biological diversity, or biodiversity, is high on the international agenda for nature conservation. Marine and coastal ecosystems account for an important share of the biological diversity on Earth. As a consequence many international conventions, European legislation and national laws refer to marine biodiversity. The protection of marine biodiversity is a complex legal issue as it requires consideration of geographic (between land and sea), political (between conservation and exploitation), and economic (between fisheries, tourism, intellectual property and many other sectors) factors. Like Matryoshka dolls, marine biodiversity is a heterogeneous notion difficult to address as one discrete area in the development of policy agendas or juridical frameworks. In the past decade, the EU has been very active in Promoting Integrated Coastal Zone Management and in developing a framework for an Integrated Maritime Policy. This article reviews the status of marine biodiversity in the policy and legal initiatives of the European Union, a challenging issue to both the objectives of conservation and to the concept of integration.