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.     

Are marine reserves and non-consumptive activities compatible? A global analysis of marine reserve regulations

Marine reserves are places where wildlife and habitats are protected from extractive and depositional uses of the sea. Although considered to be the pinnacle in marine conservation, many permit non-consumptive activities with little or no regulation. This paper examines the potential impacts of 16 non-consumptive activities including scuba diving, sailing, scientific research and motor boating, and how they might compromise the conservation objectives of marine reserves. Examination of 91 marine reserves from 36 countries found little agreement or consistency in what non-consumptive activities are permitted in marine reserves and how they are regulated. The two most common activities allowed without regulation were swimming (mentioned in 80% of marine reserves and allowed in 63% of these) and kayaking (mentioned in 85%, allowed in 53%). Scuba diving was mentioned in 91% and allowed without regulation in 41%. A risk score for the likely level of threat to wildlife and/or habitats that each activity could produce was then assigned based on effects reported in the literature. The risk analysis suggests that motor boating and activities which include or require it have a high potential to negatively impact wildlife and habitats if inadequately managed. Hence protection against extractive or depositional activities alone is insufficient to secure the high standard of protection usually assumed in marine reserves. For this to be achieved activities typically considered as benign must receive appropriate management, especially with increasing recreational use.     

“Lessons for marine conservation planning: A comparison of three marine protected area planning processes”

Various approaches have been used to establish marine protected areas (MPAs) in different countries. In this paper we compare and review three processes to establish MPAs within the United States and Australia. These two countries share many similarities in their cultures, but their approaches to managing marine resources differ considerably. Each of these efforts to establish or review MPAs was motivated by concern about declines of targeted marine species or habitats. However, the government actions varied because of differences in governance, planning process including public input, and the role of science. Comparing these processes highlights effective approaches for protecting marine ecosystems and gaining public support.     

Designation of marine protected areas in Belgium: A legal and ecological success?

In Belgium a long process (1999–2005) led to the designation of several marine protected areas (MPAs). In order to analyse the designation process, the ‘policy arrangement approach’ was used as an analytical tool. Attention was given to four dimensions (actors and coalitions, arguments, rules and resources). Particular attention was paid to the switch from an authoritative to a more deliberated policy style in reaction to conflicts with stakeholders. This switch in policy style contributed to a successful legal designation, but does not guarantee the best protection of marine biodiversity. This case study linked science (setting ecological goals) to policy (analysis of a policy process) and led to some more general conclusions on the designation of MPAs and the role of participation in this process.     

A glaring omission in Australia’s marine conservation planning

The primary goal of Australia’s National Representative System of Marine Protected Areas (NRSMPA) is to establish a comprehensive, adequate and representative system of MPAs. This study identifies a glaring contradiction to this policy. The provinces of Christmas and Cocos Islands are among the most unique and threatened marine bioregions in Australia, yet receive no protection from the NRSMPA. The lack of protection appears to be due to difficulties with multiple governance arrangements and other political priorities. These issues have already caused biodiversity loss in the terrestrial environment of these bioregions. The Australian Government must include the Christmas and Cocos provinces in the NRSMPA otherwise it risks irreversible loss of marine biodiversity in these unique bioregions.     

EU marine strategy framework directive (MSFD) and marine spatial planning (MSP): Which is the more dominant and practicable contributor to maritime policy in the UK?

This paper is a comparative analysis of the contribution to UK marine governance of two recent EU initiatives: the Marine Strategy Framework Directive (MSFD) and Marine Spatial Planning (MSP). MSFD imposed a duty on Member States to achieve Good Environmental Status (GES) in four regional seas, while MSP required Member States to replace their fragmented, sector-based system of maritime decision making with an integrated approach. This paper explains MSFD and MSP, examines their relationship, and compares their practicability, concluding that MSP is both the more dominant and the more practicable instrument, reflecting the UK's preference for sustainable development over conservationism in marine policy. A recent proposal by the European Commission to make MSP and integrated coastal management a Directive reinforces the UK position.     

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.     

Exploitation and conservation of coastal and marine fisheries in Bangladesh: Do the fishery laws matter?

The present study analysed the major features of two important acts and an ordinance in Bangladesh that govern coastal and marine fishery exploitation and conservation. The problems with the implementation of these regulations were identified, and the level of compliance among fishers and reasons for their noncompliance were assessed. Based on two case studies on coastal and marine ecosystems, the findings revealed that the level of noncompliance is highly prevalent, particularly in hilsa sanctuaries in the Meghna River estuary. The study identified coastal poverty, the inadequate and improper distribution of incentives, insufficient logistic support, limited alternative occupations, political interference and a lack of awareness regarding fishery regulations as the major limitations in the implementation. The drawbacks of proper implementation and the noncompliance of fishery regulations lead to fishery degradation, directly affect the sustainability of the coastal and marine ecosystem of Bangladesh and may be barriers to achieving Goal 14 of the Sustainable Development Goals (SDGs). Establishing a co-management mechanism for sanctuary management, creating economic opportunities outside of fishery sectors, declaring more protected areas in the coastal and marine ecosystem, enhancing logistic support to the enforcing agencies and building awareness are critical to improving the compliance level among fishers. Finally, the study submits that understanding the fishers’ reasons for compliance and noncompliance of the regulations is important for devising fishery policies through the consultation and engagement of stakeholders at all levels.     

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.     

Integrated terrestrial and marine planning in England’s coastal inter-tidal zone: Assessing the operational effectiveness of the Coastal Concordat

In many countries, the regulation of activities and development in the marine environment has begun to evolve from a compartmentalised, fragmented, sectoral and uncoordinated system into a more strategic, comprehensive, integrated and transparent one. A remaining challenge, however, is the effective integration of marine and terrestrial planning, because the tools and mechanisms necessary for its achievement have been slow to be implemented. The introduction of the England's Coastal Concordat in 2013, as a voluntary framework for better integrating marine and terrestrial planning consents, represents an atypical mechanism to secure these goals. This paper is a preliminary survey of the perceived effectiveness of the Coastal Concordat, based on a survey of 32 professionals from the terrestrial planning authorities, marine statutory agencies and marine-sector businesses. While this evaluation is made less than two years after the introduction of the Coastal Concordat, it is important to undertake a preliminary examination, from various stakeholder perspectives, of the factors likely to be influential in the integration of regulatory systems, before the approach is ‘rolled out’ across other parts of England's inter-tidal coastal zone. The results indicate that the Coastal Concordat has produced benefits for marine planning in coastal areas, but that these improvements are largely experienced within the public sector in terms of better communication, early engagement, and a single point of contact. The marine sector businesses are more neutral about the benefits of the Concordat. It is clear, however, that marine sector businesses must participate in the formulation of any reforms if an effective integrated system of planning and management of coastal environments is to be achieved.     

Scalar reorganisation of marine governance in Europe? The implementation of the marine strategy framework directive in Spain,Portugal and Germany

European marine policies have recently been consolidated, and the scalar organisation of marine governance has been questioned. This paper examines this phenomenon in Europe as a result of implementation of the European Marine Strategy Framework Directive (MSFD) and examines changes in the role of the national state vis à vis other levels of jurisdiction in marine policy. The relevance of use pressures differs across European member states, as do national policy styles and institutional configurations. Therefore, a nuanced picture is needed regarding the ways European marine policy is being implemented. To this end, the paper employs a co-evolutionary perspective studying the cases of Germany, Spain and Portugal. European marine policy has become anchored in the most relevant policy fields except agriculture and fisheries, and competency regarding its environmental dimension has been strengthened, formalized and clarified as a result of the MSFD. Its implementation, tied to international marine protection, comes following initiatives to develop maritime economies. In Portugal, implementation of the MSFD did not change the scalar organisation of natural resource governance. In Spain and Germany, the MSFD led to disputes regarding clarification of competencies. In the course of implementing the MSFD in Germany, challenges are tied to the political dimensions of formalizing practices and producing integrated policies. In Spain and Portugal, comprehensive stock-taking is itself a challenging task.     

Endocrine disruption in a marine amphipod? Field observations of intersexuality and de-masculinisation

Intersexuality has been found in both males and females of the marine/estuarine amphipod, Echinogammarus marinus, at polluted and reference sites in East Scotland. Polluted sites had significantly more intersex specimens than reference sites, however the cause of intersexuality is unclear. Discriminant analysis of morphometric data showed that normal male specimens from the most polluted site resembled pooled intersex males, suggesting that subtle endocrine disruption (ED) maybe occurring in these otherwise apparently normal males. The main discriminating character was gnathopod size, recognised to be under androgenic gland control. The association of distinctive morphometry with intersexuality may provide a new approach to biomarkers of ED in crustaceans. The opportunities for other novel biomarkers, for example biochemical or behavioural markers, may also be explored through study of intersex animals.     

Connections or conflict? A social and economic analysis of the interconnections between the professional fishing industry,recreational fishing and marine tourism in coastal communities in NSW,Australia

Resource conflict is a common feature of coastal management. This conflict is often managed by using spatial planning tools to segregate uses, with access decisions made through a comparison of the economic costs and benefits of the competing sectors. These comparisons rarely include an in-depth analysis of the extent or nature of the conflict. One commonly experienced form of resource conflict in coastal communities involves professional fishing, recreational fishing and broader coastal tourism. In New South Wales, Australia the professional fishing industry is often seen as being in conflict with recreational fishing and tourism, and there are frequent calls to close areas to professional fishing, arguing that this will provide improved economic benefits to local communities. This research examined the relationships between the three sectors using economic valuations, qualitative interviews and a large-scale representative questionnaire of the general public. The results revealed highly interconnected and mutually supportive relationships, with professional fishing providing a range of services that benefit both tourism and recreational fishing. These results suggest that spatial management exercises that seek to segregate or remove one sector from an area, may be counterproductive to the interests of all these groups. Relying on economic valuations of each sector as if they stand alone is insufficient to adequately understand their roles in local communities. Resource allocation decisions should be based on evaluations that consider the interconnections between sectors, and consider whether negotiated sharing of resources may provide greater community benefits than excluding certain groups of users.     

Conflict of interest in research on anthropogenic noise and marine mammals: Does funding bias conclusions?

The U.S. Navy, whose sonars kill marine mammals, provides approximately 50% of the funds for marine mammal research worldwide. We examined six reviews of research on the effects of anthropogenic sound on marine mammals, as well as the primary papers cited in the reviews. These reviews cite references showing noise has no effect on marine mammals at an increasing frequency as their funding moves from a conservation organization to independent to partial U.S. military sources. Primary papers are 2.3 times more likely to be cited in the reviews as concluding no effect of noise if the research was militarily-funded than if not. Thus, conflict of interest may have led to a misrepresentation of the effects of noise on marine mammals in both the primary and secondary literature, and thus misinform public policy decisions.     

Sustainable Livelihoods Approach in tropical coastal and marine social–ecological systems: A review

Tropical coastal and marine social–ecological systems (CM-SESs) differ from other social–ecological systems through the higher degree of risk and uncertainty associated with coastal and marine resource extraction, the dynamic nature of aquatic and human resources, and often unclear tenure. CM-SES resource management and poverty-alleviation strategies must be adaptive and holistic. The Sustainable Livelihoods Approach (SLA) provides a framework for understanding and guiding policy-making in CM-SES. Case studies from the past 10 years analyze tropical coastal and marine-resource dependent livelihoods and/or to evaluate current CM-SES management using the SLA. These studies have shown that, despite the rounded and inclusive approach of projects such as the Sustainable Fisheries Livelihoods Programme, key challenges for researchers and practitioners remain including rights and access allocation, corruption, lack of local financial, intellectual and innovative capacity and centralized governance. Whilst the SLA may increase understanding of local-level dynamics within CM-SES, more consultation at interdisciplinary frontiers is needed in order to formulate practical solutions to the core problems of tropical CM-SES management.     

How to detect polymorphisms undergoing selection in marine fishes? A review of methods and case studies,including flatfishes

Populations of marine organisms are potentially affected by numerous selective pressures such as temperature and salinity, or anthropogenic pressures such as xenobiotics that may preclude adaptation to particular habitats. Such selective pressures may also affect their demography. Examples include modifications of the population dynamics through shifts in growth rate, and in life history traits affecting fitness such as size or age of first reproduction. However, the documentation of variation in phenotypically plastic traits specific to distinct environments cannot be taken as the ultimate proof that natural selection has occurred. Measurement of the impact of selection and subsequent local adaptation of fish populations based exclusively on morphological or physiological characters is one of the most difficult things to achieve because it depends on the use of phenotypic characters that closely match the genotype. Molecular markers can help to overcome this problem and, under some circumstances, can record the footprints of selection. A combination of polymorphisms that are under selection and those that are not can provide complementary information. In this paper, we review how and why selection can be detected at the molecular level, using genetic markers analysed in a population genetic framework. We then report and discuss case studies in fish.     

Australia’s no-take marine protected areas: Appropriate conservation or inappropriate management of fishing?

The absence of properly identified mechanisms to adequately protect the marine environment remains a major shortcoming in Australia’s commitment to biodiversity conservation. The current commitment to a National Representative System of Marine Protected Areas (NRSMPA) falls far short of providing adequate protection against the suite of existing and potential threats even though areas are designated as being ‘protected’. In this paper it is argued that the actions taken under the NRSMPA are disproportionately concentrated on regulating fishing, including the closing of areas in so-called sanctuary zones to all types of fishing. In the absence of clearly identified threats from most forms of fishing and without assessment of how best to manage those few fishing threats that have been identified, such actions are inefficient and mostly inappropriate. Moreover, they do not provide adequate protection against the full suite of threats to marine environments. Adequate measures for the proper conservation of these areas and/or the protection of marine biodiversity more generally are not being provided and in most cases threats are not even adequately described and evaluated.     

Monitoring of seabirds in the Benguela upwelling system: can seabirds be used as indicators and predictors of change in the marine environment?

Historical and contemporary data on Benguela seabirds assumed to be responsive to changes in food availability are reviewed as potential indicators and predictors of change in the ecosystem. Cyclic variations in the annual yields of seabird products evident at decadal long time-scales may reflect fluctuations in prey populations at similar periods. However, no such relationship has been demonstrated and consequently the value of such annual yields as indicators is not proved. More recently, interannual variation in diets, foraging effort, breeding success and chick growth of two of the three most abundant species of seabird in the ecosystem have been examined in relation to changes in prey abundance. Although the relative abundance of important forage species in the diets of both species of seabird have reflected regional changes in the absolute abundance of these prey, changes in the values of other parameters thought to reflect food availability were not consistently correlated between and within species. This indicates poor potential for their use as indicators of change at least over the range of abundances experienced in this study. Under present management protocol, data from seabirds do not nor are likely to provide abundance indices that may be used directly in stock assessment of commercially important species. To date, insights into distribution and migration of pelagic fish provided by seabird-derived data probably represent the most valuable contribution of birds to fisheries scientists studying the Benguela system.     

“Living with our backs to the sea”: A critical analysis of marine and coastal governance in Guatemala

Guatemala's rich coastal and marine biodiversity provides essential ecosystem goods and services to local residents and the national economy through artisanal and commercial fisheries, aquaculture, port exports and, to a lesser extent, tourism. As in many other countries, national policies emphasise the significance of marine conservation and marine resources, primarily through implementing marine protected areas (MPAs). However, this assumes that governance, as reflected in legal, institutional and organizational frameworks, political capacity and human resources is sufficiently developed to ensure MPAs meet these goals. These issues are explored through presenting the first detailed analysis of coastal and marine governance in Guatemala. The research highlights a range of barriers to good governance which restrict the extent to which MPAs can function effectively. Recommendations are made which can capitalise upon the potential for locally managed marine areas as a means to facilitate the improved governance of coastal and marine resources in Guatemala.     

Methods of social assessment in Marine Protected Area planning: Is public participation enough?

Addressing social and economic considerations is crucial to the success of Marine Protected Area (MPA) planning and management. Ineffective social assessment can alienate local communities and undermine the success of existing and future MPAs. It is rare to critique the success of methods used currently to incorporate social and economic considerations into MPA planning. Three Australian MPA planning processes covering three states and incorporating federal and state jurisdictions are reviewed in order to determine how potential social impacts were assessed and considered. These case studies indicate that Social Impact Assessment (SIA) is under-developed in Australian MPA planning. Assessments rely heavily on public participation and economic modelling as surrogates for dedicated SIA and are followed commonly by attitudinal surveys to gauge public opinion on the MPA after its establishment. The emergence of issues around public perception of the value of MPAs indicates the failure of some of these proposals to adequately consider social factors in planning and management. This perception may have potential implications for the long term success of individual MPAs. It may also compromise Australia's ability to meet international commitments for MPA targets to gazette at least 10% of all its marine habitats as MPAs. Indeed, this is demonstrated in two of the three case studies where social and economic arguments against MPAs have been used to delay or block the future expansion of the MPA network.