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.     

Training for marine planners: Present and future needs

Marine planning presents considerable new challenges and opportunities for those responsible for managing the marine environment. In the UK, the Marine and Coastal Access Act (2009) provides a statutory framework for marine planning and has created a new administration responsible for its implementation. If marine planning is to be effective and achieve its stated goals it will require a pool of trained individuals who will be responsible for or will participate in marine planning. Based on data gathered during the development and delivery of an intensive professional course and a masters level programme, this paper explores the key elements of education and training required by marine planners. These include a knowledge of planning processes and national and international laws and conventions; an understanding of how marine plans can integrate with existing terrestrial and coastal plans and other management requirements; and an understanding of the marine and maritime environment, including the human activities and natural features. It concludes with a discussion of the different roles individuals may play in the planning process and thus their different training needs.     

He who hesitates is lost: Why conservation in the Mediterranean Sea is necessary and possible now

Although significant advancements on protecting marine biodiversity and ecosystems of the Mediterranean Sea have been made, much remains to be done to achieve the targets set by the Convention for Biological Diversity (and the Barcelona Convention) and ratified by the 21 Mediterranean governments. Particularly, these targets require the design and implementation of an ecologically representative network of marine protected areas that covers 10% of the Mediterranean surface by 2020. Despite the many efforts to gather spatial information about threats to the Mediterranean and conservation planning initiatives that identify sensitive areas for conservation, we are far from achieving this target. In this paper, we briefly review existing and proposed conservation initiatives at various scales throughout the Mediterranean to recognise those that have political endorsement and those that serve more as lobbying tools. We then propose a model process that can be applied to advance marine spatial planning within the eleven ecologically and biologically significant areas (EBSAs) through a multi-step process designed for moving conservation forward in this particularly complex region. The proposed process combines tenets of professional urban/regional planning and systematic conservation planning. As shown with two specific examples, despite some conventional wisdom, there is enough information on the Mediterranean Sea to move forward with ecosystem-based marine spatial management for conservation purposes using the EBSAs as a starting point - and the time is right to do so.     

Valuing the health benefits of physical activities in the marine environment and their importance for marine spatial planning

The marine environment provides a number of services which contribute to human well-being including the provision of food, regulation of climate and the provision of settings for cultural gains. To ensure these services continue to be provided, effective management is required and is being strategically implemented through the development of marine spatial plans. These plans require an understanding of the costs and benefits associated with alternative marine uses and how they contribute to human well-being. One benefit which is often difficult to quantify is the health benefit of engaging with the marine environment. To address this, the research develops an approach which can estimate the contribution aquatic physical activities makes to quality adjusted life years (QALYs) in monetary and non-monetary terms. Using data from the Health Survey for England, the research estimates that physical activities undertaken in aquatic environments at a national level provides a total gain of 24,853 QALYs. A conservative estimate of the monetary value of a QALY gain of this magnitude is £176 million. This approach provides estimates of health benefits which can be used in more comprehensive impact assessments, such as cost-benefit analysis, to compare alternative marine spatial plans. The paper concludes by discussing future steps.     

Marine ecosystem-based management in the Southern Cone of South America: Stakeholder perceptions and lessons for implementation

Ecosystem-based management (EBM) has recently received considerable attention. However, examples of empirical approaches to marine EBM are scarce. Therefore, empirical information on the presence of EBM elements within existing policies and the way they may provide settings and lessons for EBM implementation is timely. This study analyses stakeholders’ perceptions on the existence of EBM principles in current marine management practices and policies, and how they determine perceptions for success and satisfaction regarding coastal management within selected case studies drawn from four developing countries in the Southern Cone of South America. Patterns of response across study sites show that although EBM principles as such are not explicitly included in management/conservation plans, there are policies (mainly local), which generate conditions for more explicit inclusion of them. These are based on participatory bottom-up planning, place-based management and consensus reaching: all elements included within the theoretical literature on EBM implementation.     

Conclusions: Benefits, lessons learned, and future challenges of marine spatial planning

This article summarizes briefly the principal conclusions from papers presented in this special issue on marine spatial planning. It identifies potential economic, ecological, and administrative benefits (and costs) that might be realized from the implementation of MSP. Finally, the article summarize lessons learned and identifies future challenges and directions for MSP, including the development of international guidelines for its implementation.     

Ocean governance in the South Pacific region: Progress and plans for action

The Pacific Island Regional Ocean Policy (PIROP), which was released in 2002, provided the framework for ocean governance in the Pacific region. Since then there have been a myriad of policy documents and institutional arrangements that have been developed to address ocean governance issues, however, little progress has occurred with regard to the actual implementation of PIROP. This paper examines the region's progress in establishing integrated oceans management, and how this fits with the use of marine spatial planning and area based management tools, such as marine protected areas. It argues that policy making in this region encounters the usual difficulties with integrated policy approaches experienced elsewhere but that these difficulties are further accentuated when applied to developing nations that are highly dependent on external support. It suggests a way forward for the future with development of action plans, implementation and the practical application of those plans including a regional contextualisation/analysis of progress against regional objectives.     

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.     

Implications of defining fisheries closed areas based on predicted habitats in Shetland: A proactive and precautionary approach

During 2010 a set of 22 voluntary closed areas, distributed around Shetland, were proposed by local industry in order to help protect and conserve threatened habitats from potential physical disturbance from scallop dredging. Initially, closed areas were implemented on a precautionary basis over predicted beds of maerl and horse mussel (Modiolus modiolus) derived from historical data. Horse mussel and maerl beds are classed as priority habitats which have been identified as being threatened and requiring conservation under the UK Biodiversity Action Plan (UK BAP). Legalisation of the voluntarily adopted closed areas occurred in 2011. Detailed surveys were conducted to map each closed area with specific reference to the defining features located within. Closed areas were surveyed using a hull mounted multibeam system and ground-truthed with an underwater camera system. Information was imported to a Geographic Information System (GIS) in order to create georeferenced habitat maps of the two species of interest. The appropriateness of each closed area was assessed and a proposed methodology and procedure outlined for any future closed areas. The primary aim was to provide information on which to test the validity of initial closed area boundaries and subsequently allow managers to refine and add to them in the future. The survey illustrated the need to have good quality acoustic and visual survey work undertaken whenever areas have been closed based on historical data and/or predicted habitats. Predicted beds were not found to be representative of the survey findings. The survey highlighted the lack of good quality, robust, accurate, and up to date species information for the waters around Shetland, especially with regard to priority marine features. Although some were neither fully protecting the UK BAP habitats they were designed to protect nor were protecting any UK BAP habitats, a degree of protection had been conferred to some priority features in the first iteration of implementation of closed areas. Survey data were subsequently used to legally alter the closed area boundaries to more appropriately reflect the distribution of priority features. Recommendations were made on appropriate procedures for defining a species bed and on the wider implications of the study’s findings for other fisheries areas developing spatial management plans.     

Effort changes around a marine reserve: The case of the California Rockfish Conservation Area

This article is an analysis of observed changes in the level of fishing effort and the spatial distribution of fishing effort following implementation of a marine reserve off the California coast. The Rockfish Conservation Area (RCA) closes the area between depth contour based boundaries to commercial trawl fishing. In this analysis, commercial fishing vessels are grouped based on their level of fishing effort within the closed area prior to the closure in order to compare changes in effort levels between groups. The results suggest that the RCA may have had a small effect on the level of fishing effort in the California groundfish trawl fishery. Spatial distribution of fishing effort before and after implementation of the marine reserve is also compared. Some concentration of effort occurred along parts of the closed area boundaries. This pattern suggests the “fishing the line” behavior noted in the marine reserve literature, but other possible explanations exist including the effects of coincident changes in other regulations and changing bioeconomic conditions.     

Fragmented governance: Reconciling legal strategies for shark conservation and management

Sharks play a critical role in the ocean environment yet many species are under threat. Over the last ten years, the international community has taken significant steps to protect shark species and address the threats to them through the adoption and implementation of international laws, plans and programmes. Nevertheless, despite the attention given to this issue, many shark species continue to deteriorate in numbers. While the reasons for this decline are complex and varied, regulatory fragmentation is one contributing factor. Legal regulation is a critical element in achieving effective conservation and management of sharks. This article considers the international laws, plans and programmes that seek to conserve shark species, explores the current fragmented regime and outlines possible strategies to overcome this challenge and enhance shark protection in the future.     

Exploring stakeholder perceptions of marine management in Bermuda

Given competing objectives vying for space in the marine environment, the island of Bermuda may be an ideal candidate for comprehensive marine spatial planning (MSP). However, faced with other pressing issues, ocean management reform has not yet received significant traction from the government, a pattern seen in many locations. Spatial planning processes often struggle during the proposal, planning, or implementation phases due to stakeholder opposition and/or government wariness to change. Conflict among stakeholders about management reform has also proven to be a deterrent to MSP application in many locations. With these obstacles in mind, a detailed stakeholder survey was conducted in Bermuda to determine awareness, attitudes and perceptions regarding ocean health, threats to ocean environments, the effectiveness of current ocean management, and possible future changes to management. How perceptions vary for different types of stakeholders and how attitudes about specific concerns relate to attitudes about management changes were examined. Overall, the results indicate a high degree of support for spatial planning and ocean zoning and a high level of concordance even among stakeholder groups that are typically assumed to have conflicting agendas. However, attitudes were not entirely homogeneous, particularly when delving into details about specific management changes. For example, commercial fishers were generally less in favor, relative to other stakeholder groups, of increasing regulations on ocean uses with the notable exception of regulations for recreational fishing. Given the results of this survey, public support is likely to be high for government action focused on ocean management reform in Bermuda.     

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 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.     

The State of Rhode Island's pioneering marine spatial plan

The state of Rhode Island's Ocean Special Area Management Plan (Ocean SAMP) is the first marine spatial plan in the United States to be formally approved by the federal government as an element of a state's Coastal Management Program. The 3800 km² Ocean SAMP region includes waters under both state and federal jurisdiction. The Ocean SAMP applies the inclusive, ecosystem-based approach to marine spatial planning recommended by the National Ocean Commission in 2004 that is a feature of the National Ocean Policy promulgated in 2010. It places within a larger spatial planning context the impact assessment process that is the basis for the issuance of leases and permits requested by a developer for a specified activity at a defined marine site. The Ocean SAMP was prepared over a two and a half year period of information generation, analysis, consultation, planning and policy making prompted by the need to identify potentially suitable sites for anticipated offshore wind farms. Its highly consultative approach builds upon the 30 years of experience of the Rhode Island Coastal Program in developing and implementing special area management plans (SAMPs) for coastal and marine areas where conflicts over needs for both development and conservation demand special attention and negotiation among stakeholders with different interests. The phases in the development and approval of the Ocean SAMP, and the prospects for successful implementation are examined through frameworks suggested for the preparation of a governance baseline put forward by the international Land Ocean Interactions in the Coastal Zone (LOICZ) program.     

The role of stakeholders in the marine planning process—Stakeholder analysis within the Solent, United Kingdom

England is about to embark on the introduction of an integrated approach to the management of its marine environment, known as marine planning. The management of human activity in the marine environment is a central function of marine planning; therefore, stakeholder involvement will be crucial for the successful development and subsequent implementation of marine plans. The range of stakeholder activities, their connection to the marine environment and interest in its management are likely to vary considerably on a local, regional and national scale. It is realistic to assume that it will not be possible to involve every stakeholder all the time; therefore in order to develop efficient and effective stakeholder involvement during the marine planning process it is sensible to determine who to involve, when to involve them, and how to involve them from the outset. This paper discusses the role of stakeholders in the marine planning process through consideration of the results of a stakeholder analysis, which was informed by primary data collated from stakeholders within the Solent. The paper concludes with a proposed mechanism, comprising different organisational units, for managing stakeholder involvement in the marine planning process.     

Spatial characterization of marine recreational boating: Exploring the use of an on-the-water questionnaire for a case study in the Pacific Northwest

Information about spatial patterns of recreational boating is important for managing environmental, safety, and social impacts. However, traditional spatial mapping techniques such as remote sensing are often unable to project entire vessel routes or to link with other important data such as demographics, activities, or purpose of trip. This study, conducted in a part of Canada’s southern Strait of Georgia, uses an on-the-water-questionnaire to map recreational boating distribution/density in a complex, multiple-use marine setting. Goals of this study were to explore an on-the-water questionnaire as a means of capturing boating distribution and density, explore the potential contributions of such information to marine spatial planning, and assess the strengths and limitations of the method. Boaters (n=519) were intercepted while engaged in boating trips and were asked to plot the route of their trip on a map of the region. Information was imported into ArcGIS for analysis and display of vessel distribution and density. The resultant spatial dataset has a number of applications for marine spatial planning and management. Strengths of this method include collection of entire vessel routes, linking spatial data to questionnaire variables, and a high response rate. Limitations include some bias towards sample sites and issues of respondent accuracy, as well as cost and effort. Recommendations for management and research are made.     

Seabird conservation and tidal stream and wave power generation: Information needs for predicting and managing potential impacts

Current development plans indicate that during the next decade there will be an increase in tidal stream and wave (TSW) power generation activity in Scottish Waters, together with the designation of additional offshore areas for seabird conservation. This paper summarises how TSW developments could affect seabirds, based on experience from other forms of disturbance, and explores the possible changes in behaviour and habitat that have the potential to increase a seabird's rate of energy acquisition (e.g. through enhancing prey abundance), or energy expenditure (e.g. through causing birds to commute further to find food, if they avoid foraging around developments placed in regular feeding areas). Changes to energy budgets could impact rates of reproduction and survival. Simulation modelling of seabird energetics and behaviour is one possible tool for predicting the direction and magnitude of population impacts caused by alterations to energy budgets, but is dependant on the availability and accuracy of necessary parameters. The later sections of the paper review the information needed for such models and shows that although some data are available regarding rates of energy expenditure during specific activities, more information is needed on seabird foraging rates. The paper also highlights how the susceptibility of a species to be impacted by future TSW development is likely to be related to their method of foraging, flight behaviour and ability to buffer against environmental fluctuations.     

Timing exclusion and communicating time: A spatial analysis of participation failure in an Indonesian MPA

Marine protected areas are promoted as a resource management tool for balancing ecological integrity with economic activity. However, MPAs frequently fail to achieve integrated, substantive outcomes. Participation failure is a common symptom of implementation failure. MPA experts often conclude that the remedy, in part, lies in better communication, with the implicit assumption that participation and communication are conjoined or synonymous. In this paper, the geography of communication in marine environments is analyzed as distinct from participation. It is argued that the logistical challenges of communicating in marine time and space must be taken into account beginning with the pre-implementation stage of an MPA; this requires recognition and analysis of the political nuances of whose space, whose time, and whose terms for communication. Research in Wakatobi National Park in Indonesia determined that marine managers and local communities have divergent experiences of participation, prompting three insights. First, the timing of public consultations must accommodate the variable rhythms of life in fishing communities in order to ensure broad representation. Second, co-presence in fishers’ space is critical for effective communication of marine knowledge and management strategies. Third, the deployment of ‘participation time’ by decision-makers communicates the value – or lack thereof – they place on fishing people and collaboration. The constructivist spatial analysis of communication presented here provides a model for MPA decision-makers and managers to identify, overcome and mobilize communication geographies that affect participation in sustainable development.     

The science of European marine reserves: Status,efficacy, and future needs

The ecologically and socio-economically important marine ecosystems of Europe are facing severe threats from a variety of human impacts. To mitigate and potentially reverse some of these impacts, the European Union (EU) has mandated the implementation of the Marine Strategy Framework Directive (MSFD) in order to achieve Good Environmental Status (GES) in EU waters by 2020. The primary initiative for achieving GES is the implementation of coherent networks of marine protected areas (MPAs). Marine reserves are an important type of MPA in which no extraction is allowed, but their usefulness depends upon a number of ecological, management, and political factors. This paper provides a synthesis of the ecological effects of existing European marine reserves and the factors (social and ecological) underlying their effectiveness. Results show that existing European marine reserves foster significant positive increases in key biological variables (density, biomass, body size, and species richness) compared with areas receiving less protection, a pattern mirrored by marine reserves around the globe. For marine reserves to achieve their ecological and social goals, however, they must be designed, managed, and enforced properly. In addition, identifying whether protected areas are ecologically connected as a network, as well as where new MPAs should be established according to the MSFD, requires information on the connectivity of populations across large areas. The adoption of the MSFD demonstrates willingness to achieve the long-term protection of Europe's marine ecosystems, but whether the political will (local, regional, and continent wide) is strong enough to see its mandates through remains to be seen. Although the MSFD does not explicitly require marine reserves, an important step towards the protection of Europe's marine ecosystems is the establishment of marine reserves within wider-use MPAs as connected networks across large spatial scales.