Institutional ambiguity in implementing the European Union Marine Strategy Framework Directive

This article addresses the institutional ambiguity that exists between the European, Regional and Member State levels in the implementation of the Marine Strategy Framework Directive (MSFD). The two main reasons for the emergence of institutional ambiguity are (1) the MSFD being a framework directive and (2) Member States are required to coordinate the implementation of the MFSD through the Regional Sea Conventions. Institutional ambiguity refers to the interference zone between different institutional settings that come together in new policy practices. New rules of the game are needed to bring these institutional settings together and the room to manoeuvre for the actors who negotiate these rules is a defining feature of institutional ambiguity. This article analyses the institutional ambiguity associated with MSFD implementation on the European and regional level for four European Seas: the North Sea, the Baltic Sea, the Mediterranean Sea and the Black Sea. The results indicate different levels of institutional ambiguity in each of the four regions, with the lowest level of ambiguity in the Baltic Sea and the highest in the Mediterranean Sea. Institutional ambiguity also exists on the European level, as coordination efforts have not resulted in clear directions for the implementation of the MSFD as yet. The level of institutional ambiguity is influenced by the relative number of EU member states bordering the particular sea and whether they consider implementation of the MFSD to be urgent. Member States bordering the Mediterranean and the Black Seas lack the support of Regional Sea Conventions in addition to receiving limited direction from the European level.     

Governance strengths and weaknesses to implement the marine strategy framework directive in European waters

The ambitious Marine Strategy Framework Directive (MSFD) has been the focus of much marine research across Europe in the pursuit of achieving Good Environmental Status in the four European Union marine regions; Baltic Sea, Black Sea, Mediterranean Sea and North-east Atlantic. This research addresses the Strengths, Weakness, Opportunities and Threats (SWOT) of the current European marine governance structures and its relationship to implement the MSFD. Results of the SWOT analysis were acquired through a combination of approaches with MSFD experts and stakeholders including: 30 face-to-face interviews, an online survey with 264 stakeholder respondents and focus groups within each European marine region. The SWOT analysis concurrently identifies common strengths and weakness and key governance issues for implementing the MSFD for European marine regions. This paper forms one assessment within the governance component of the Options for Delivering Ecosystem Based Marine Management (ODEMM) project and presents timely issues that can be of benefit to national and European Union policy makers.     

Fishing for opinions: Stakeholder views on MSFD implementation in European Seas

Stakeholder participation is vital when introducing and implementing ecosystem-based management (EBM) at any scale. This paper presents the results of a survey covering four European Regional Seas (Baltic Sea, Black Sea, Mediterranean Sea and North-East Atlantic Ocean) aimed to collect stakeholders׳ perspectives on their Regional Sea governance to implement the European Union (EU) Marine Strategy Framework Directive (MSFD). In this survey, drivers of good governance including stakeholder involvement, willingness and capacity to cooperate, efficiency, institutional ambiguity and decision-making were explored. The results indicate a clear gap in perception between the current, the ideal and the foreseen situation regarding the implementation of the MSFD. The preferences for the future governance structures vary between stakeholders and across seas although some similarities can be found. Based on the results of the survey, this paper concludes that tailor-made rather than off-the-shelf solutions will be needed to accommodate regional cooperation in the European marine environment for implementing ecosystem-based management under the MSFD.     

Marine Strategy Framework Directive: Innovative and participatory decision-making method for the identification of common measures in the Mediterranean

The Marine Strategy Framework Directive (MSFD) is the European Commission's flagship initiative for the protection of the European Seas, and the first holistic approach to ensuring that European Seas reach and are maintained at what is called a ‘Good Environmental Status’ by the year 2020. Regional cooperation, especially between neighbouring countries, and involvement of all interested parties, are horizontal principles of the MSFD, and particularly apply to the definition of programmes of measures, the principal instrument through which each Member State will implement its marine strategy. This paper presents the results from a dedicated, participatory, structured decision-making process that was implemented within the framework of the ActionMed project, which aimed to bring experts and policy/decision-makers from Mediterranean neighbouring countries together, to discuss and agree upon common measures for implementation in their sub-regions. It shows that a participatory approach, supported by customised, case specific intelligent tools, that follows expertly facilitated, structured workshops can be a successful way to enhance sub-regional collaboration. The paper also presents the top ranking measures, selected by experts and decision-makers for common implementation in two Mediterranean sub-regions.     

Viscous model of plate tectonics for the Black Sea region (in relation to the problem of the late Cenozoic evolution of the Black Sea basins)

A numerical model of the Black Sea region (Northeastern Mediterranean) is presented in which it is regarded as a part of the mosaic plate ensemble consisting of the fixed East European platform; the active Arabian, Adriatic, and Pannonian plates; and passive East and West Black Sea and Mysian microplates, which are embedded in a plastically deformable regional orogenic matrix. The fields of displacements, stresses, and deformations in the region are calculated by means of the finite element method within the framework of a linear-viscous rheology approach to a system with nonhomogeneous viscosities. The velocity field obtained is in good agreement with published data of direct observations of plate displacements in the region. In the pressure field, areas of low pressure and decompression are established in the western part of Black Sea and in the south of the Mysian microplate. The poles of rotation of the East and West Black Sea microplates and of the Mysian microplate are computed. For the latter two microplates, significant rotational components are suggested. The East Black Sea microplate acts mostly as indenter, which transmits the collisional motion from the Arabian plate to the southern edge of the East European platform including the Crimea. According to the geodynamical model, the rates of the Cenozoic sedimentation in the Black Sea depression at the collision stage (Oligocene-Pliocene) result from the greater compression of the East Black Sea microplate as compared to the West Black Sea microplate, which, probably, experienced a kind of extension.     

‘The Hare and the Tortoise’: Lessons from Baltic Sea and Mediterranean Sea governance

Commonly, the Baltic Sea is pictured as a proactive region with a long-standing tradition for cooperation and surrounded by the “greenest” EU countries. In contrast, southern countries often suffer from the “Mediterranean Syndrome” in which the heterogenous socio political situation is given as the “proof” that cooperation would not work. The Marine Strategy Framework Directive adopted by European Union in 2008 is an important step towards ecosystem-based marine management and provides a legal document suggesting marine regions as a scale for cooperation. In this paper, we aim to explore stakeholders׳ perspectives on key factors for good governance at the regional sea level covering the Eastern Baltic States and the south of France. We targeted a broad panel of professionals from different sectors with a political, economic or societal importance in the respective seas. We suggest that Baltic and Mediterranean stakeholders are going through very different stages of governance adjustment fitting the purpose of ecosystem-based marine management. Baltic institutions are well established, which in some way prevents structural analysis of whether the current governance model is the most appropriate reaching GES. In the Mediterranean, the EU strategies faces institutional challenges, which is leading stakeholders to think “out of the box” about what is really needed for implementing ecosystem-based marine management for this sea. It is suggested that a golden opportunity exists at present in the Mediterranean to create a regional platform of cooperation, not only to fit the MSFD implementation, but also to improve governance of the Mediterranean Sea and its environmental status.     

How well do ecosystem indicators communicate the effects of anthropogenic eutrophication?

Anthropogenic eutrophication affects the Mediterranean, Black, North and Baltic Seas to various extents. Responses to nutrient loading and methods of monitoring relevant indicators vary regionally, hindering interpretation of ecosystem state changes and preventing a straightforward pan-European assessment of eutrophication symptoms. Here we summarize responses to nutrient enrichment in Europe's seas, comparing existing time-series of selected pelagic (phytoplankton biomass and community composition, turbidity, N:P ratio) and benthic (macro flora and faunal communities, bottom oxygen condition) indicators based on their effectiveness in assessing eutrophication effects. Our results suggest that the Black Sea and Northern Adriatic appear to be recovering from eutrophication due to economic reorganization in the Black Sea catchment and nutrient abatement measures in the case of the Northern Adriatic. The Baltic is most strongly impacted by eutrophication due to its limited exchange and the prevalence of nutrient recycling. Eutrophication in the North Sea is primarily a coastal problem, but may be exacerbated by climatic changes. Indicator interpretation is strongly dependent on sea-specific knowledge of ecosystem characteristics, and no single indicator can be employed to adequately compare eutrophication state between European seas. Communicating eutrophication-related information to policy-makers could be facilitated through the use of consistent indicator selection and monitoring methodologies across European seas. This work is discussed in the context of the European Commission's recently published Marine Strategy Directive.     

On the environmental effectiveness of the EU Marine Strategy Framework Directive

Marine and coastal ecosystems – and thus the benefits they create for humans – are subject to increasing pressures and competing usages. For this reason, the European Union (EU) adopted the Marine Strategy Framework Directive (MSFD), which is to guide future maritime policy in the EU and aims at achieving or maintaining a good environmental status (GES) of European seas by 2020. To this end, the MSFD requires the development of improvement measures, which have to be assessed inter alia by examining their cost-effectiveness and by carrying out cost-benefit analysis (CBA) before their implementation. This paper investigates the applicability of environmental CBA in the marine context. It identifies and discusses problems that could hamper the environmental effectiveness of the MSFD. For example, the fact that marine ecosystem services are much less tangible than terrestrial ones implies greater challenges for the quantification of benefits for society in a marine context. One finding is that the limitations of environmental valuation methods regarding their ability to capture the whole total economic value of improvement measures are a potential source of problems, as the MSFD allows countries to disregard measures with disproportionately high costs. The trans-boundary nature of the main European seas adds to the complexity of the valuation task, e.g., due to the danger that benefits that occur outside of national territories are neglected. Moreover, the current state of knowledge on the functioning of complex marine ecosystems and the links to socio-economic impacts and human well-being seem insufficient to meet the MSFD requirements.     

River discharges of water and nutrients to the Mediterranean and Black Sea: Major drivers for ecosystem changes during past and future decades?

Rivers are important sources of freshwater and nutrients for the Mediterranean and Black Sea. We present a reconstruction of the spatial and temporal variability of these inputs since the early 1960s, based on a review of available data on water discharge, nutrient concentrations and climatic parameters. Our compilation indicates that Mediterranean rivers suffer from a significant reduction in freshwater discharge, contrary to rivers of the Black Sea, which do not have clear discharge trends. We estimate this reduction to be at least about 20% between 1960 and 2000. It mainly reflects recent climate change, and dam construction may have reduced discharge even further. A similar decrease can also be expected for the fluxes of dissolved silica (Si), strongly controlled by water discharge and potentially reduced by river damming as well. This contrasts with the fluxes of nitrogen (N) and phosphorus (P) in Mediterranean and Black Sea rivers, which were strongly enhanced by anthropogenic sources. Their total inputs to the Mediterranean Sea could have increased by a factor of >5. While N still remained at elevated levels in 2000, P only increased up to the 1980–1990s, and then rapidly dropped down to about the initial values of the 1960s. With respect to the marine primary production that can be supported by the riverine nutrient inputs, Mediterranean and the Black Sea rivers were mostly phosphorus limited during the study period. Their anthropogenic nutrient enrichment could only have had a fertilizing effect before the general decline of the P loads. When also considering Si as a limiting element, which is the case for siliceous primary producers such as diatoms, silica limitation may have become a widespread phenomenon in the Mediterranean rivers since the early 1980s. For the Black Sea rivers, this already started the late 1960s. Gross primary production sustained by rivers (PPR) represents only less than 2% of the gross production (PP) in the Mediterranean, and less than 5% in the Black Sea. Possible ecological impacts of the changing river inputs should therefore be visible only in productive coastal areas, such as the Gulf of Lions, where PPR can reach more than two thirds of PP. Reported ecosystem changes both in the Adriatic Sea and the Black Sea are concomitant with major changes in the reconstructed river inputs. Further work combining modelling and data collection is needed to test whether this may also have been the case for coastal ecosystems at other places in the Mediterranean and Black Sea.     

Implementing the Marine Strategy Framework Directive: A policy perspective on regulatory,institutional and stakeholder impediments to effective implementation

The implementation of the European Union (EU) Marine Strategy Framework Directive (MSFD) requires EU Member States to draft a program of measures to achieve Good Environmental Status (GES). Central argument of this paper, based on an analysis of the unique, holistic character of the MSFD, is that social and political factors are having a major influence on this MSFD implementation process. More specifically, four potential impediments have been identified that are curtailing the drive towards the effective implementation of the scheme advanced by the Directive. First, scientific uncertainty about aggregated ecological pressure and drivers in relation to the different sectors clouds the definition of national programmes of measures and this in turn may lead to implementation-drift in achieving GES. Second, the scale of the ecosystem is different from the political and socio-economic scales of individual, sectoral decision-making and activities. Third, policy coordination is required on several levels, i.e. at the EU level, within the Regional Sea Conventions, at national level and between these three levels. Finally, the coming together of both stakeholder involvement organized for the MSFD and those of existing, sectoral policy domains makes fair and efficient stakeholder involvement challenging. This paper concludes that more attention should be rendered to establishing appropriate coordination and communication structures, which facilitate greater engagement with the different Directorates-General in the European Commission, the European Council and the Parliament, the Member States, sectoral decision making institutions as well as stakeholder interest groups.     

Benefits and impediments for the integrated and coordinated management of European seas

New multi-sectoral policies with a regional implementation are developed when maritime states recognise the importance of managing the marine environment under an ecosystem-perspective rather than a use-perspective. In Europe, the Marine Strategy Framework Directive (MSFD) is the first attempt to promote an integrated management of the seas from the coastline to the limit of the Exclusive Economic Zone. This paper shows that, nine years from the MSFD adoption, there remain several ecological, economic, social and governance challenges. Using information gathered in a dedicated survey of the European Union Marine Strategy Coordination Group and in the recent literature the paper identifies the obstacles preventing a successful regional cooperation and policy integration. The survey indicates that the MSFD coordination structures are, in general, well-developed but there is an apparent lack of political will to coordinate actions at the regional level. Member States request greater flexibility to implement the Directive but they put their national interests before the benefit of a coherent and integrated approach for the entire region. Differences in budget, economic sector predominance, lack of staff and the MSFD short time-scale are identified as the factors that can hamper cooperation. These have produced recommendations of possible strategies for optimising regional coordination structures which respect the subsidiarity principle underpinning the MSFD.     

Challenges in cross-sectoral marine protection in Europe

Marine environment protection in Europe faces a number of challenges. One is the coordination of relevant sectoral policies — such as agricultural and fisheries policies — with regard to marine protection objectives. The question in the following is on how marine protection issues can be more closely integrated in sectoral policies under the conditions prevailing at present. In particular the strength and weaknesses of the Marine Strategy Framework Directive (MSFD) as the key instrument for marine environment protection in Europe are analyzed in this context. In particular, the MSFD does not adequately address all sectors and policies which are relevant to marine environment protection. One possible means of giving the MSFD greater influences on other policies of relevance to marine waters is to integrate the objectives established under the MSFD in the European maritime policy. The aim should be to require the further development of sectoral policies to take unrestricted account of the objectives of the MSFD implementation process. But also other instruments of marine policy such as maritime spatial planning and marine protected areas are crucial to advance the protection of European seas.     

Hydraulic calculations of postglacial connections between the Mediterranean and the Black Sea

A series of simple hydraulic calculations has been performed to examine some of the questions associated with the reconnection of the Black Sea to the Mediterranean through the Turkish Strait System during the Holocene. Ryan et al.’s catastrophic flood scenario, whereby the erosive power of the marine in-fluxes, initiated after eustatic sea level reached the sill depth, opened up the Bosphorus, allowing saline water to pour into the Black Sea and filling it on a short time scale, is examined. The calculations show that although it might be possible to fill the palaeo-Black Sea within the order of a decade, a 1–2 year filling time scale is not physically possible. A hydraulic model is also used to examine the more traditional connection hypothesis of (near-)continuous freshwater outflow from the Black Sea, with a slowly increasing saline inflow from the Mediterranean beginning around 8–9 kyr BP. The model considers two forms for the structure of the Bosphorus: a shallow sill as seen today and a deep sill associated with no sediments filling the 100 m gorge above the bedrock in the strait. Sensitivity experiments with the hydraulic model show what possible strait geometric configurations may lead to the Black Sea reaching its present-day salinity of 18 psu. Salinity transients within the Black Sea are shown as a function of time, providing for values that can be validated against estimates from cores. To consider a deep, non-sediment-filled Bosphorus (100 m deep), the entry of Mediterranean water into the Sea of Marmara after 12.0 kyr BP is examined. A rapid entry of marine water into the Sea of Marmara is only consistent with small freshwater fluxes flowing through the Turkish Strait System, smaller than those of the present day by a factor of at least 4. Such a small freshwater flux would lead to the salinification of the Black Sea being complete by an early date of 10.2–9.6 kyr BP. Thus the possibility of a deep Bosphorus sill should be discounted.     

Transferable Fishing Concessions (TFC): A pilot study on the applicability in the Mediterranean Sea

Fisheries management systems based on Transferable Fishing Concessions (TFC) and similar rights-based systems have been developed during the last decades in some European countries. However, at present there is not a clear view on the possible effects caused by the application of this management systems in the Mediterranean Sea. The current study, involving nine Geographical Sub-Areas (GSAs) of the Mediterranean Sea, focuses on the appropriateness, transferability and modes of applicability of a TFC system in the Mediterranean area. Three different scenarios of quota allocation have been analyzed by taking into account biological, ecological, environmental, economic and social aspects: quota in terms of resource quantity, quota as a portion of the total fishing time, quota as a portion of the total fishing capacity. Results show that the transferability of a TFC-based system to the Mediterranean context appears to be low due to the characteristics of the Mediterranean fisheries (multispecificity of resources, fishing grounds shared among different countries, multigear, importance of small-scale fisheries) and to the general lack of sound and reliable individual historical data. The study also highlights rights-based systems such as Territorial Use Rights in Fisheries (TURF) might only be applied for the exploitation of sedentary resources, such as clams. A management system based on TFC could be theoretically reasonable for anchovy fishing, where a few species are caught, even if all countries and stakeholders should be involved in the decision making process.     

Experience of remote monitoring in the Black Sea and the Mediterranean Sea in the optical spectrum band

The methodology of regional remote monitoring of the ocean on the basis of complex largescale studies carried out by the Marine Hydrophysical Institute of the Ukrainian SSR Academy of Sciences in the Black Sea and the Mediterranean Sea in 1987–1988 is considered. The collection of controlled parameters, ground facilities, methods of collecting and processing of satellite and subsatellite data, and features in the compilation of composition maps of the sea surface radiation temperature are discussed.Translated by Mikahil M. Trufanov.     

The performance of the Black Sea Commission as a collaborative governance regime

It is often claimed that the Black Sea is one of the most degraded seas in the world. Management to rehabilitate the Black Sea requires cooperation between the coastal countries to be successful. However, regional cooperation in the Black Sea is poorly coordinated and lack concrete outcomes. This article analyses the performance of the Black Sea Commission in terms of enabling and fostering effective regional collaboration between the Black Sea coastal countries. The results indicate that the measures undertaken by the Black Sea Commission are effective in terms of enabling scientific and project based cooperation between the Black Sea countries. The cooperation around regional and national institutional reforms to tackle the Black Sea environmental problems is found to be weak. Despite the existing mechanisms and willingness of countries to cooperate, the implementation of the established strategic action plan for the environmental protection and rehabilitation of the Black Sea is limited. Most of the limitations of the Black Sea Commission's regime are found in its institutional and legal frameworks, which constrain the effectiveness of collaborative efforts of the Black Sea countries. To be fully functional, the collaborative governance regime of the Black Sea Commission has to be improved. Recommendations as to how these may be addressed to enhance the regime's capacity to ensure effective marine collaborative governance in the region are presented in this article.     

Short-range forecast of hydrophysical fields in the eastern part of the Black Sea

On the basis of an analysis of the results of modeling and a forecast of the basic hydrophysical fields in the easternmost part of the Black Sea for 2010–2012, the features of annual variability of regional circulating processes in this part of the sea basin are investigated. A forecast of a hydrological mode is made on the basis of the regional forecasting system developed at the Institute of Geophysics at Javakhishvili State University in cooperation with the oceanographic centers of the Black Sea riparian countries within the frame-work of the ARENA and ECOOP EU international scientific and technical projects. The regional system is one of the components of the Black Sea basin-scale Nowcasting/Forecasting System. The analysis of the material cumulated for the registered period shows that the easternmost water area of the Black Sea is a dynamically active zone where there is a continuous formation of different circulating processes considerably distinguished from each other.