Co-fundedbytheEuropeanMaritimeandFisheriesFundoftheEuropeanUnion. AgreementEASME/EMFF/2015/1.2.1.3/01/S12.742087–SUPREME
Recommendations and guidelines to support common understanding and integration of Barcelona Convention principles in MSP activities with a focus on EU Member States within
marine waters of the Adriatic, Ionian, Aegean and Levantine Seas
Deliverable No 1.1.2
ProjectFulltitle SupportingmaritimespatialPlanningintheEasternMediterranean(SUPREME)
ProjectAcronym SUPREME
GrantAgreementNo. AgreementEASME/EMFF/2015/1.2.1.3/01/S12.742087–SUPREME
Coordinator Dr.PierpaoloCampostrini
Projectstartdateandduration 01/01/2017–31/12/2018
Projectwebsite http://www.msp-supreme.eu/
DeliverableNo. 1.1.2 DeliverableDate May2018
Status:Final(F)/Draft(D)/Reviseddraft(RV) F
Tasknumber C1.1.2
TasknumberTitle
Ensuringregion-widecoherence,buildingontheBarcelonaConventionanditsProtocols,processes,decisions,inrelationtothedefinitionandapplicationofMSPinasystematicmanner
ResponsibleInstitute(acronym) PAP/RAC
Coordination MarinaMarković,ŽeljkaŠkaričić
Authors EmilianoRamieri,DanielaAddis,AthenaMourmouris
ContributionsBraida,M.,Celli,A.,Montanaro,O.(IMELS)AvgerinouKolonias,S.(NTUA)Antoniadis,S.,Hema,T.(UNEnvironment/MAP)
Editing Pavasović,S.
ACKNOWLEDGEMENT
TheworkdescribedinthisreportwassupportedbytheEuropeanMaritimeandFisheriesFundoftheEuropeanUnion–throughtheGrantAgreementEASME/EMFF/2015/1.2.1.3/01/S12.742087–SUPREME,correspondingtotheCallforproposalEASME/EMFF/2015/1.2.1.3forProjectsonMaritimeSpatialPlanning(MSP).
DISCLAIMER
Thisdocumentreflectsonlytheauthors’viewsandnotthoseoftheEuropeanUnion.ThisworkmayrelyondatafromsourcesexternaltotheSUPREMEprojectConsortium.MembersoftheConsortiumdonotacceptliabilityforlossordamagesufferedbyanythirdpartyasaresultoferrorsorinaccuraciesinsuchdata.TheuserthereofusestheinformationatitssoleriskandneithertheEuropeanUnionnoranymemberoftheSUPREMEConsortium,areliableforanyusethatmaybemadeoftheinformation.
ThedesignationsemployedandthepresentationofmaterialinthepresentdocumentdonotimplytheexpressionofanyopiniononthepartoftheUNEnvironment/MAPBarcelonaConventionSecretariatconcerningthelegalstatusofanycountry,territory,area,cityorareaorofitsauthorities,orconcerningthedelimitationofitsfrontiersorboundaries.Thedepictionanduseofboundaries,geographicnamesandrelateddatashownonmapsincludedinthepresentdocumentarenotwarrantedtobeerrorfreenordotheyimplyofficialendorsementoracceptancebyUNEnvironment/MAPBarcelonaConventionSecretariat.TheUNEnvironment/MAPBarcelonaConventionSecretariatisnotaccountableforthedataandcannotguaranteethattheyarecorrect,accurateorcomprehensive.
TableofContents
ListofAcronyms.......................................................................................................................................................iListofFigures...........................................................................................................................................................iiListofTables............................................................................................................................................................iiListofBoxes.............................................................................................................................................................ii
Foreword......................................................................................................................................................1
1. Introduction............................................................................................................................................31.1 Geographicalscopeofthestudy.....................................................................................................................31.2 AboutMediterraneanSeawithafocusontheEasternMediterranean.........................................................4
2. MSPintheMediterraneantodate.........................................................................................................8
3. MSPundertheBarcelonaConvention..................................................................................................123.1 Legalandpolicyframe..................................................................................................................................123.2 UnitedNationsConventionontheLawoftheSea.......................................................................................16
3.2.1ApplicationofUNCLOSintheEasternMediterranean...........................................................................................163.2.2TheExclusiveEconomicZones................................................................................................................................17
3.3 CurrentpolicyinitiativesregardingMSPintheframeworkofBC.................................................................233.4 The2030AgendaforSustainableDevelopmentanditsSustainableDevelopmentGoals..................................253.5 TransboundarycooperationinMSPintheMediterranean..........................................................................263.6 Ecosystem-basedApproach..........................................................................................................................27
4. KeyissuesimportanttoMSPimplementationintheEasternMediterranean.....................................324.1 UNEnvironment/MAP’sEcosystemApproach.............................................................................................324.2 LinkstoICZM.................................................................................................................................................334.3 Adaptiveapproach........................................................................................................................................334.4 Cross-bordercooperationandmulti-scaleapproachtoMSP.......................................................................344.5 Integration.....................................................................................................................................................354.6 Stakeholderinvolvement..............................................................................................................................354.7 Project-basedinitiativesandMSPpractices.................................................................................................354.8 Dataavailabilityandaccessibility..................................................................................................................354.9 SpecificissuesidentifiedwithintheInitialAssessment................................................................................36
4.9.1Typesofconflicts–Potentialforsynergies............................................................................................................364.9.2Governance–Institutionalissues...........................................................................................................................364.9.3Transboundarycooperation...................................................................................................................................37
5. SUPREMEproposalsontheintegrationofprinciplesoftheBarcelonaConventionfortheMSPimplementation.....................................................................................................................................395.1 UNEnvironment/MAP’sEcosystemApproach.............................................................................................405.2 LinkstoICZM.................................................................................................................................................415.3 Adaptiveapproach........................................................................................................................................425.4 Cross-bordercooperationandmulti-scaleapproachtoMSP.......................................................................425.5 Integration.....................................................................................................................................................435.6 Stakeholdersinvolvement.............................................................................................................................445.7 Project-basedinitiativesandMSPpractices.................................................................................................455.8 Dataavailabilityandaccessibility..................................................................................................................455.9 ToolsforEnvironmentalassessmentofMSP................................................................................................46
References..................................................................................................................................................48
i
ListofAcronyms
AII AdriaticandIonianInitiativeAPEIs AreasofParticularEnvironmentalInterestBC BarcelonaConventionBD BiologicalDiversityBOD BiochemicalOxygenDemandCBD ConventiononBiologicalDiversityCF ConceptualFrameworkCMS ConventionontheConservationofMigratorySpeciesofWildAnimalsCOP ConferenceoftheContractingPartiesCPs ContractingPartiesCRF CommonRegionalFrameworkDDT DichlorodiphenyltrichloroethaneEBA Ecosystem-BasedApproachEBSA EcologicallyorBiologicallySignificantMarineAreaEcAp EcosystemApproachEEZ ExclusiveEconomicZoneEFPZ EcologicalandFisheriesProtectionZoneEIA EnvironmentalImpactAssessmentEOs EcologicalObjectivesEPZ EcologicalProtectionZoneEU EuropeanUnionEUSAIR EUStrategyfortheAdriaticandIonianRegionFAO UnitedNationsFoodandAgricultureOrganizationFMSY MaximumsustainableyieldexploitationrateinfisheriesFPZ FisheriesProtectionZoneFZ FisheryZoneGES GoodEnvironmentalStatusGFCM GeneralFisheriesCommissionfortheMediterraneanGOBI GlobalOceanBiodiversityInitiativeGVA GrossValueAddedICCAT TheInternationalCommissionfortheConservationoftheAtlanticTunaICZM IntegratedCoastalZoneManagementIMAP IntegratedMonitoringandAssessmentProgrammeIMCAM IntegratedMarineandCoastalAreaManagementIMMAs ImportantMarineMammalAreasIMO InternationalMaritimeOrganizationIPCC IntergovernmentalPanelonClimateChangeISA InternationalSeabedAuthorityIUCN InternationalUnionforConservationofNatureIUU Illegal,UnreportedandUnregulated(fishing)KBAs KeyBiodiversityAreasLBS Land-BasedSources(ofpollution)LSIs Land-SeaInteractionsMAB ManandtheBiosphereProgrammeMAP MediterraneanActionPlanMedWet MediterraneanWetlandsRegionalInitiativeMEPC MarineEnvironmentProtectionCommitteeMPA MarineProtectedAreaMSFD MarineStrategyFrameworkDirectiveMS MemberStateMSP Marine/MaritimeSpatialPlanning
ii
MTS Mid-TermStrategyMWO MediterraneanWetlandObservatoryNFPs NationalFocalPointsPAP/RAC PriorityActionsProgrammeRegionalActivityCentrePEFZ ProtectedEcological-FisheryZonePoW ProgrammeofWorkRFMOs RegionalFisheriesManagementOrganizationsSDG SustainableDevelopmentGoalsSDI SpatialDataInfrastructureSPA/RAC SpeciallyProtectedAreasRegionalActivityCentreRAC RegionalActivityCentreRSCs RegionalSeasConventionsSDGs SustainableDevelopmentGoalsSDIMED SpatialDataInfrastructureoftheMediterraneanSEA StrategicEnvironmentalAssessmentTEIA Trans-boundaryEnvironmentalImpactAssessmentTEU TreatyonEuropeanUnionUNCLOS UnitedNationsConventionoftheLawoftheSeaUNEP UnitedNationsEnvironmentProgrammeUNESCO-IOC UnitedNationsEducational,ScientificandCulturalOrganisation–Intergovernmental
OceanographicCommissionUNEnvironment/WCMC TheWorldConservationMonitoringCentreoftheUnitedNationsEnvironmentProgrammeVASAB VisionandStrategiesaroundtheBalticSea(Helcom-VASABMSP)VMEs VulnerableMarineEcosystems
ListofFigures
Figure1: TheEastern(redlines)andtheWestern(bluelines)Mediterranean..........................................................4Figure2: TheAnnotatedStructureoftheCRMforICZM..........................................................................................23Figure3: CalendaroftheEcApimplementationprocess.Source:SPA/RACwebsite...............................................30Figure4: KeyissuescomposingacommonframeforMSPimplementationintheEasternMediterraneansub-
basin...........................................................................................................................................................39
ListofTables
Table1: Importanceoftheblueeconomyinthe12countriesconsideredbythestudy.Source:(EUNETMAR,2014)..........................................................................................................................5
Table2: CurrentandfutureconflictsbetweenactivitiesintheSUPREMEArea.......................................................6Table3: GESandtargetsadoptedbyCOP18,UNEP(DEPI)/MEDIG.21/9–DecisionIG.21/3
Source:SPA/RACwebsite...........................................................................................................................29Table4: Transboundaryissues,asreportedintheInitialAssessment.Source:(SUPREME,2017).........................37
ListofBoxes
Box1: GeographicalscopeofMSP........................................................................................................................13Box2: RelevantActionPlansthatneedtobetakenintoaccountfortheimplementationofMSPbytheCPs.
Source:www.unep.org/unepmap/action-plans........................................................................................15Box3: LegalinstrumentscomplementarytoUNCLOS..........................................................................................19
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Foreword
Thepreparationofthisdocumentoverlapswiththeparallelactivityandpreparationofthedocument„RecommendationstosupportcommonunderstandingonaregionalscaleonMSP,includingsynergicimplementationofregionallyrelevantpolicyinstruments”,undertakenwithintheframeworkofSIMWESTMEDproject.
Performingandfinalisationoftheseoutputswasundertakenandpresentedinasynergicway,fortheoverallbenefitofSUPREMEandSIMWESTMEDprojectpartners.
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1. Introduction
1.1Geographicalscopeofthestudy
IntheframeworkofBarcelonaConvention(BC),generallyconsidered,theEasternMediterraneanisawideareaofapproximately1.7millionkm2thathashighlyvariedphysiographiccharacter.ItincludestheStraitofSicily,theAdriaticSea,theIonianSea,theLevantineBasin,andtheAegeanSea.Inaddition,forpracticalreasonsandtheuniquepurposeoftheInitialIntegratedAssessmentoftheMediterraneanSea(2012)1,inlinewiththeEcosystemApproach(EcAp),RoadmaptheContractingParties(COP)havedefinedfoursub-regionsoftheMediterraneanSea(BarcelonaConventionCOP17DecisionIG.20/4AnnexI,presentingthe„SummaryforDecision-MakersoftheInitialIntegratedAssessmentoftheMediterraneanSeaandCoastalAreas”):
1. WesternMediterranean;
2. CentralMediterraneanandIoniansubregion;
3. AdriaticSea;and
4. EasternMediterranean(Aegean–Levantine).
AccordingtotheEASMECallfortender,theEasternMediterraneanincludes(Figure1):
§ theAdriaticSeaextendingfromtheStraitofOtrantotothesouth(whereitconnectstotheIonianSea)totheGulfofVenicetothenorth;
§ theIonianSea,lyingtothesouth/eastofItalyandwest-south/westofGreece;§ theAegeanSea,locatedbetweentheGreekandtheAnatolianpeninsulas;
§ theLevantineSea,extendingtothesouthoftheAnatoliapeninsula.ItisborderedbyTurkeyinthenorth,Syria,Lebanon,IsraelandtheGazaStripintheeast,Egyptand(partof)Libyainthesouth,andtheAegeanSeainthenorthwest.
BoththeEUandnon-EUcountrieshavecoastsontheEastMediterranean.TheEUcountriesareCroatia,Cyprus,Greece,ItalyandSlovenia.Thenon-EUcountriesareAlbania,Bosnia-Herzegovina,Montenegro(withcoastsontheAdriaticSea)andEgypt,Israel,Lebanon,Libya,Syria,Turkey(withcoastsontheAegeanand/orLevantineSeas).AllthesecountriesareContractingPartiestotheBarcelonaConvention.
Therefore,althoughthispaperelaboratesontheneedtointegratetheBCprinciplesintoMaritimeSpatialPlanning(MSP)activitiesintheEasternMediterranean,thegeographicalscopeitcoversdoesnotfullycorrespondtotheBCnotionoftheEasternMediterranean.Rather,thedocumenthasafocusontheEUmemberStateswithinmarinewatersoftheAdriatic,Ionian,AegeanandLevantineSeas,takingintoconsiderationsthecountriesofthesouthernrim,withinthered-linezoneindicatedintheFigure1.
1 Preparedtofulfilthestep3oftheUNEnvironment/MAPecosystemapproachprocess.Thedocumentisavailableathttp://www.rac-spa.org/sites/default/files/ecap/initial_integrated_assessement.pdf.
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Figure1:TheEastern(redlines)andtheWestern(bluelines)Mediterranean
1.2 AboutMediterraneanSeawithafocusontheEasternMediterranean
TheMediterraneanSeahasoftenbeencalledtheincubatorofWesterncivilization,tounderlineitsculturalandhistoricalsignificance.Thisregioncomprisesavastsetofcoastalandmarineecosystemsdeliveringvaluablebenefitstoitscoastalinhabitants(UNEnvironment/MAP,2012)andforming,togetherwithculturalandhistoricalassets,theessenceoftheMediterraneanbeauty.TheMediterraneanisnotonlycomplexinecology,butalsosocio-politicallyandeconomically;overthelastdecades,ithasfacedrapideconomicdevelopment,whichhasincreasedpressuresonthemarinespace,biologicalresourcesandecologicalhabitatsandprocesses.
InthetwelveEUandcandidateorpotentialcandidatecountriesoftheMediterranean(Croatia,Cyprus,France,Greece,Italy,Malta,Spain,SloveniaaswellasAlbania,BosniaandHerzegovina,Montenegro,andTurkey),thetotalgrossvalueadded(GVA)generatedbymaritimeeconomicactivitiesexceededEUR63billionin2010,i.e.morethanthreetimesthetotalGVAgeneratedbythesameactivitiesintheBalticSea(EUNETMAR,2014).Italy,GreeceandSpainrepresent81%ofthisactivity.Forthepurposeoftheanalysis,theEUNETMARstudyidentifiesthreesub-regions,providingapictureoftherelativeweightintermsofblueeconomy:WesternMediterranean(Spain,FranceandtheTyrrheniancoastofItaly)accountsforEUR27.1billion(intermsofGVA),followedbytheCentralMediterranean(AdriaticandIonian,includingMalta)withatotalofEUR19.3billion;theEasternMediterraneanregionconsideredbythestudy(AegeancoastofGreece,MediterraneancoastofTurkey,CyprusandMalta)totalsEUR16.9billion,i.e.27%ofthetotalGVAoftheblueeconomyintheMediterranean.AggregatingthisdataforthegeographicscopeoftheSUPREMEproject,GVAin2010accountsforEUR35.5billionwhichismorethan50%oftheMediterraneantotal(Table1).
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Table1:Importanceoftheblueeconomyinthe12countriesconsideredbythestudy.Source:(EUNETMAR,2014)
GVA(billionEUR) %total
IT 23.6 37%GR 16.7 26%ES 11.1 18%FR 4.4 7%TR 3.3 5%HR 1.5 2%CY 0.8 1%MT 0.7 1%AL 0.6 1%ME 0.5 1%SI 0.1 0%BA 0.0 0%
Total 63.3 100%
ThisfigureissurelyhigheriftheotherMediterraneancountriesaretakenintoconsideration.Accordingtothesamestudyquotedabove,coastaltourismandshipping(bothdeep-seaandshort-seashipping2)represent73%ofthistotalattheMediterraneanscale.
IntheEasternMediterraneancoastaltourismandmarineaquacultureareidentifiedasthemostpromisingandimportantmaritimeactivitiesinallthe9analysedcountries,followedbyshort-seashipping(Greece,Croatia,Italy,Montenegro,Turkey,Slovenia)andcruisetourism(Cyprus,Greece,Croatia,Italy,Slovenia,Turkey).Accordingtoquotesstudyshort-seashipping„emergedconsideringthegeographicalconfigurationofthebasin,withmanycountriesandalotofexchanges…,cruisetourismemergedbecauseoftheextraordinaryattractivenessofMediterraneancountriesandtheircoasts”.CoastaltourismandmaritimetransportarealsosignificanteconomicactivitiesfortheEuropeanNeighbourhoodPolicy’spartnercountriesanalysedbythesamestudy(Egypt,Israel,Palestine,Lebanon),withtheexceptionofPalestine.InEgyptandIsraeltourismismainlyconcentratedalongtheRedSea;theMediterraneanoffersanimportantdevelopmentopportunity,beinghowevernegativelyaffectedbythecurrentunstablegeo-politicalsituation.Oilandgasextractionisconsideredanotherpromisingactivityforallthefourcountries(therealuniqueopportunityforPalestineaccordingtothestudy),whileaquacultureseemstoassumeperspectiveasarealopportunityonlyforIsraelatthemoment.
AccordingtotheanalysiscarriedoutbytheMEDTRENDSproject(PianteandOdy,2015),exceptforprofessionalfisheries,allMediterraneanmaritimesectors(suchastourism,shipping,aquacultureandoffshoreoilandgas,etc.)areexpectedtokeepgrowingduringthecoming15years.Emergingsectors,suchasrenewableenergy,seabedminingandbiotechnologyareexpectedtogrowevenfaster,although
2 Theterm„short-seashipping”referstothehistoricaltermscoastaltrade,coastalshipping,coastingtradeandcoastwisetrade,whichencompassthemovementofcargoandpassengersmainlybyseaalongacoast,withoutcrossinganocean.Theterm„deep-seashipping”referstomaritimetrafficthatcrossesoceans.
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inabsolutetermstheywillbelessrelevantthanmoretraditionalusesalsointhefutureandthereisgreateruncertaintyontheirpossibleevolutionaswellasexpectedimpactsonmarineecosystems.
About36%oftheEUcoastalregions’populationsliveincoastalregionsborderingtheMediterranean.PopulationdensityishighestincoastalareaoftheNorthernandEasternMediterranean(PianteandOdy,2015).In2012,thenumberoftouristsvisitingtheMediterraneanrepresented30%ofthetotalworldtourists’numberandhalfofitwasconcentratedincoastalareas(PlanBleu,2014).
TheinitialassessmentundertakenwithintheSUPREMEproject(SUPREME,2017)confirmsthattheEasternMediterraneanareahasahighconcentrationofallmainmaritimeactivities.Inadditiontothesynergiesamongtheirdifferentuses,therearenumberofcompetitionsandconflictsamongthesesectors(Table2).
Table2:CurrentandfutureconflictsbetweenactivitiesintheSUPREMEArea
Thisaddsfurtherpressuresonthealreadystressedcoastalareas,exacerbatingtheprocessofcoastallittoralization.Marinehabitatdegradationandbiodiversitylossareduetoadiverserangeofhumanactivitieswhich,besidestourismandrecreationaluses,includefishery,shipping,seapollution,marinelitteringandoffshoreoilandgasdevelopment.Ontopofthis,climatechangeeffectsprovideadditionalpressuresonalreadystressedecosystems,habitatsandspecies(MedPAN,RAC-SPA,2016).
EventhoughinthelastyearssignificanteffortshavebeenmadetoimproveprotectionoftheMediterraneanbiodiversityandtheextensionofprotectedareas,achievementoftheConventiononBiologicalDiversity(CBD)AichiobjectiveNo.11(i.e.10%ofcoastalandmarineareascoveredthroughMarineProtectedAreas(MPAs)isfartobereached(PianteandOdy,2015).ThereisstillaclearunbalanceddistributionofMPAs,beingtheWesternMediterraneancharacterizedbyarelativebettersituationthantheEastern;theunbalanceisevenmoreevidentcomparingnorthernandsouthernareasofthebasin(largelyduetoEUNatura2000sitesandthePelagosSanctuaryformarinemammals).
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EcologicalcoherenceandconnectivityisstillagreatchallengeinparticularintheEasternMediterraneanandmostoftheMPAsarelocatedalongthecoast,withlimitedprotectionofopenseaareas.Moreover,forthemajorityofsites,thereisnotenoughknowledgeonimplementing„effectiveandequitablemanagement”(CBDAichiobjectiveNo.11)towardsthesite’sconservationtargets.Thiscallsforfurtherqualitativeimprovementswithregardsto,amongothers,legalframeworkandgovernance,stakeholderengagementandintegrationwithMSP(MedPAN,RAC-SPA,2016).
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2. MSPintheMediterraneantodate
MaritimeSpatialPlanning,comparedtoland-useplanning,isafairlynewandemergingprocessintheMediterraneanRegion.Ingeneral,theprocessisatitsinitialstageandishighlyinfluencedbydifferencesamongcountries,relatedinparticulartotheirinstitutionalandlegalframeworkandtosomeextenttotheavailabilityofreliableknowledgebase.WiththeadoptionoftheEUDirectiveonMaritimeSpatialPlanning(2014/89/EU),allcoastalEUMemberStatesarerequiredtopreparecross-sectoralmaritimespatialplansby2021aimedatpromotingthesustainablegrowthofmaritimeeconomies,thesustainabledevelopmentofmarineareasandthesustainableuseofmarineresources.Inaddition,althoughstillindirectly,theBarcelonaConventionandinparticulartheICZMProtocolprovideanoverallframeworkforMSPimplementationwithinterritorialsealimitsofallMediterraneancountries,asdetailedinchapter3.Indeed,planningofthemarinespaceisaconceptwidelytakenonboardbytheICZMProtocol(seesub-chapter3.1),whiletheBarcelonaConventionrecentlyembarkedinpolicyinitiativesdirectlyaddressingMSP(seesub-chapter3.3).
ItisrecognizedthattheEUDirectiveonMSPisakeyenablingfactor(Zerkavi,2015)thathastriggeredinitialconcreteactionstowardsMSPimplementationinallEUMemberStatesofEasternMediterranean(andingeneralintheentireMediterranean)asreportedintheweb-siteoftheEUMSPPlatform3.Croatia,Cyprus,ItalyandSloveniahavefinalizedthetranspositionoftheMSPEUDirectiveintonationallegislation,whilethisisstillinprogressinGreece.Actually,thiscountryhaslinkedthetranspositionoftheMSPDirectivewiththeratificationoftheICZMProtocol,aimingtoimplementMSPandICZMthroughacoherentandintegratedapproach.
However,allEasternMediterraneanEUcountrieshaveidentifiedthecompetentMSPnationalauthorities,i.e.:theMinistryofTransportandInfrastructureinItaly;theMinistryofEnvironmentandSpatialPlanninginSlovenia;theMinistryofConstructionandPhysicalPlanning,includingtheCroatianInstituteforSpatialDevelopment,inCroatia;theMinistryofEnvironmentandEnergyinGreece;andtheMinistryofTransport,CommunicationandWorksinCyprus.Indeed,MSPisacross-sectorprocessanditsimplementationinvolvesawidernumberofauthoritiesactingatthenational(mainlyothersectororcross-sectorMinistries)andsub-nationallevelswhererelevant(e.g.theItaliancoastalregionsorthespatialplanninginstitutesofCroatiancoastalcounties).
CoordinationmechanismsexistorarebeingcreatedtothisscopeanddefinitionofrolesandresponsibilitywithintheMSPprocessisinprogress.ThroughtheLegislativeDecree17.10.2106n.201,ItalyestablishedtheInter-MinisterialCoordinationTablechairedbythePresidencyoftheCouncilofMinistries(DepartmentofEuropeanPolicies)andtheTechnicalCommitteecoordinatedbytheMinistryofInfrastructuresandTransport.ThefirstisinchargeofdefiningthemarineareasforthedevelopmentofMSPplansandcoastalareasforsea-landinteractionsanalysisaswellasdefiningguidelinesforthe
3 msp-platform.eu;accessedon10.11.2017.Seeinparticularcountryfiches(http://msp-platform.eu/msp-practice/countries)describingthestatusofMSPimplementationineachMemberStateandthewidedatabaseofpractices(http://msp-platform.eu/msp-practice/database)includingalsothosedevelopedintheEasternMediterranean.
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implementationofMSPandelaborationofrelatedplans.ThesecondwillelaborateMSPplansaccordingtotheguidelineselaboratedbytheInter-MinisterialCoordinationTable,includingStrategicEnvironmentalAssessment(SEA)andNatura2000-reatedevaluationprocedures.InJuly2012,CyprusCouncilofMinistersestablishedaWorkingGrouponMSPthenextendedtoICZMinOctober2013.Inthesamecountry,therecentlyapproved(lateSeptember2017)MSPBillestablishestheMSPCommitteeinvolvinganumberofministries,departmentsandservicesofCyprusGovernmentandbeinginchargeofthepreparationoftheMSPplan.AsfarasMSPisconcerned,thisCommitteewillreplacetheabove-mentionedWorkingGrouponMSPandICZM,whichhoweverwillremaininplaceforissuesdealingwithintegratedcoastalzonemanagement.InGreece,consultationonspatialplanningwithsectoralMinistries,regionalauthoritiesandstakeholdersingeneralcanbeensuredbytheNationalSpatialPlanningCouncil.
Moreover,countriesareconcretelydevelopingotherMSP-relatedactivities,as:
§ Settingoutofguidelines;§ DevelopmentofMSPmethodologies;§ Datacollectionandstructuring,includinganalysisofdataavailabilityandgaps;§ Stocktakingofmaritimeusesandactivities;
§ Elaborationofoverarchingvision/strategicelements,asforexamplethevision„SustainableuseanddevelopmentoftheseasofCyprus”partofthe„StrategyofCyprusforanationalintegratedmaritimepolicy”approvedinAugust2014ortheSlovenianSpatialDevelopmentStrategycurrentlybeingrevisedalsotoincludemoremaritimeaspects;and/or
§ IdentificationofthenumberofexpectedMSPplansandrelatedgeographicscope.AtthecurrentstageofMSPimplementation,thenumberandextentofplansthatmightbedevelopedisnotknownforalltheEasternMediterraneanEUcountries.Thefollowingplanscanbeexpectedforsomeofthesecountries:threeMSPplansforItaly:WesternMediterranean,AdriaticSea,IonianandCentralMediterranean;onenationalstrategicspatialplanforSloveniainlinewiththeSpatialPlanningAct;threeplansforCroatia,asdefinedbytherecentlyamendedPhysicalPlanningActtransposingtheEUMSPDirective:StateLevelSpatialDevelopment,SpatialPlanofthecontinentalbelt,SpatialplanoftheEcologicalandFisheriesProtectionZone..
However,MSPinitiativesandprojectsarestillunbalancedbetweentheEUandnon-EUcountries,andinparticularbetweenthenorthernandtheeastern-southernshoresoftheEasternMediterranean.Initialactionshavebeenalsotakeninsomenon-EUcountries,asforexampletheIsraelMarinePlanelaboratedbyagroupofresearchersandplannersattheCentreforUrbanandRegionalStudiesattheFacultyofArchitectureandTownPlanningofTechnion–IsraelInstituteofTechnology4(Portman,2015)orthedesignandtestingofamethodologyformarinevulnerabilityassessment,basedontheEcosystemApproach(EcAp),tobepotentiallyusedwithinanMSPprocessinBokakotorskaBay(Montenegro)5.
Moreover,severalEasternMediterraneancountries(althoughmainlyEuropeanones)havebeeninvolvedsofarinanumberofprojects(e.g.PlanCoast,SHAPE,ADRIPLAN,THAL-CHOR),mostofthem
4 http://msp-israel.net.technion.ac.il/en;accessedon10.11.20175 http://msp-platform.eu/practices/ecap-base-marine-vulnerability-assessment-basis-msp-montenegro;accessedon10.11.2017
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fundedbytheEU,whichhavedevelopedcustomizedMSPmethodologies,practices,toolsandservices.SomeoftheseandexperiencefromtheUNESCO-IOConMSPhavebeenusedinpilotcasestotesttheminMediterraneanconditions(e.g.UNEnvironment/MAP–PAP/RAC„PavingtheroadtoMSPintheMediterranean”).Uptakeofprojects’resultsbyformalMSPprocessesshouldbeincreasedtofosterMSPimplementationintheEasternMediterranean,alsoinacross-borderperspective.ThespecificexperienceoftheAdriatic-Ionianregionpointsouttheimportanceofprogressivelybuildingonpreviousprojects’results(fromPlanCoasttoSHAPEtoADRIPLANtoSUPREME)todelivertoolsandpracticesreadyusablebythestatutoryMSPprocess.
AlthoughMSPcanbeseenprimarilyasacountry-basedprocess,thatthereforeneedstofocusonnationalpriorities,cross-bordercooperationisessentialtoensurethatMSPplans(andICZMprocesses)arecoherentandcoordinatedacrossthecoastalzonesandthemarineregions,asalsorequiredbyart.11oftheEUMSPDirectiveasfarasEUMemberStatesareconcerned(andarticle12forCooperationwiththirdcountries).EasternMediterraneancountriesareexpectedtoworktogetheracrossborderstodealwithsomecommonenvironmental,socialandeconomicchallenges,startingfromtheirspecificidentification,inlinewiththeobjectivesandminimumrequirementssetoutintheDirective2014/89/EU,asto:
i) supportsustainabledevelopmentandgrowthinthemaritimesector,contributingamongelsetosustainableenergyatsea,maritimetransport,fisheriesandaquaculture,andtourism,applyinganecosystem-basedapproach;
ii) contributetothepreservation,protectionandimprovementoftheenvironment,includingresiliencetoclimatechangeimpacts;and
iii) promotethecoexistenceofrelevantactivitiesanduses.
Somecross-borderaspectsrelatedtothesegeneralchallengesareclearlyMSP-relatedandalreadyidentified,inoneortheotherway,inthecontextoftheBarcelonaConventionsystemascallingforcoordinatedaction.Attheverypreliminarylevel,examplesofpossiblecommonchallengescanbeidentified,basedalsoontheanalysisconductedfortheelaborationofthe„Backgrounddocument–ThewaytoaregionalframeworkforICZMintheMediterranean2017–2021”usedtounderpintheelaborationoftheCommonRegionalFrameworkforICZMandtheConceptualFrameworkforMSPaswellasSUPREMEInitialAssessment(seepar.4.9.3)e.g.:
§ Reductionofoverfishingandimprovementofsustainablemanagementoffisheryandfishresources6;
§ AchievementofGoodEnvironmentalStatus(GES)targetstoensureproperenvironmentalprotectionandallowitssustainableuse;
§ Managementofmaritimetrafficspecificallyincongestedorstrategicallyimportantareas(e.g.theAdriaticSea,theAegeanSeaandtheconnectiontotheBlackSea,theroutesconnectingto
6 Accordingtotheindicatorofexploitationstatus(F/FMSY),themajorityof78examined(86%)stocksareharvestedabovethelevelthatcanensurethestocksustainably,whileonlyaminority(14%)ofstocksareexploitedsustainablyintheMediterranean(UNEnvironment/MAP,2017).
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theSuezchannel),includingfurtherreductionofriskofshipcollisionsandenvironmentalaccidents7;
§ Managementofconflictsthatmightarisefromtheexploitationofsubmarinenaturalgasandoilresources8;
§ Increasecross-bordercollaborativeandcoordinatedapproachtoincreasetheresilienceoftheMediterraneanmarineandcoastalnaturalandsocioeconomicsystemstotheimpactsofclimatechange9.
7 Althoughshipaccidentsrateshavegonedowngloballyandregionally,severalstudies,basedonthedailytrafficcrossingtheIstanbulStraitandtheBosphorus,identifiedtheEastMediterranean/BlackSeaareaasoneofthetopareaspresentingthegreatestprobabilityofashippingaccidentoccurring(UNEnvironment/MAP,2017).
8 44%oftheMediterraneaniseithercontractedordesignatedforoil&gasexploration–thisposesariskthatthosezones,especiallytheonesintheEasternMediterranean,maybeexploredatonepoint,potentiallyleadingtoincreasedpollution(UNEnvironment/MAP,2017).
9 TheIPCCAR5considerstheMediterraneanRegionas„highlyvulnerabletoclimatechange”andstatesthatit„willsuffermultiplestressesandsystemicfailuresduetoclimatechanges”.Atthesametime,responsestoclimate-relatedpressuresandhazardsintheregionareoftenlimitedtoshort-termandreactivelocalemergencymeasures.RegionalClimateChangeAdaptationFrameworkfortheMediterraneanMarineandCoastalAreas(UNEnvironment/MAP,2017a).
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3. MSPundertheBarcelonaConvention
3.1 Legalandpolicyframe
TheMediterraneanActionPlan(MAP)hascomealongwaysinceitsapprovalin1975.Itsmainpolicyachievementis,inthecontextoftheRegionalSeasProgramme,theadoptionofaframeworkConventionfortheProtectionoftheMarineEnvironmentagainstPollution(BarcelonaConvention,BC,signedin1976),renamedlaterasConventionfortheProtectionoftheMarineEnvironmentandtheCoastalRegionoftheMediterranean(asamendedin1995),anditsrelatedsevenlegalProtocols10,embracingall21CountriesborderingtheMediterraneanSeatogetherwiththeEuropeanUnion.TheBarcelonaConvention,withitsrelatedProtocols,istheonlyregionalmultilaterallegalframeworkfortheprotectionoftheMediterraneanmarineandcoastalenvironment,settingtheobligations„toprevent,abate,combatandtothefullestextentpossibleeliminatepollutionoftheMediterraneanSeaArea“and„toprotectandenhancethemarineenvironmentinthatareasoastocontributetowardsitssustainabledevelopment“(BC,Art4).
MAPthereforecontributedinsettingoutalegalandinstitutionalframeworkforcooperationinaddressingcommonchallengesofmarineenvironmentaldegradation,whileMAPsecretariat(includingitsRegionalActivityCentres–RACs)remainsthetechnicalmechanism,assistingtheMediterraneanGovernmentsintheireffortstoimplementtheirrespectivecommitmentsfortheprotectionofthemarineandcoastalenvironmentintheRegion,multilaterallyorunilaterally.
WhileMSPisarelativelynewtermwithintheBarcelonaConventionframe,severalBCProtocolsregulatekeymaritimesectors.Thisparticularlyrefersto:theProtocolfortheprotectionoftheMediterraneanSeaagainstpollutionresultingfromexplorationandexploitationofthecontinentalshelfandtheseabedanditssubsoil(OffshoreProtocol);theProtocolforthePreventionandEliminationofPollutionintheMediterraneanSeabyDumpingfromShipsandAircraftorIncinerationatSea(DumpingProtocol);theProtocolconcerningcooperationinpreventingpollutionfromshipsand,incasesofemergency,combatingpollutionoftheMediterraneanSea(PreventionandEmergencyProtocol)andtheProtocolconcerningthepreventionofpollutionoftheMediterraneanSeabytransboundarymovementsofhazardouswastesandtheirdisposal(HazardousWastesProtocol).
10ProtocolfortheprotectionoftheMediterraneanSeaagainstpollutionfromland-basedsourcesandactivities(LBSProtocol,adoptedin1996andenteredintoforce11May2008);ProtocolconcerningthepreventionofpollutionoftheMediterraneanSeabytransboundarymovementsofhazardouswastesandtheirdisposal(HazardousWastesProtocol,adoptedin1996enteredintoforce19January2008);Protocolconcerningcooperationinpreventingpollutionfromshipsand,incasesofemergency,combatingpollution oftheMediterraneanSea(PreventionandEmergencyProtocol,adoptedin2002andenteredintoforce17March2004);ProtocolforthePreventionandEliminationofPollutionintheMediterraneanSeabyDumpingfromShipsandAircraftorIncinerationatSea(DumpingProtocol,adoptedin1995butnotyetinforce.Itisinforcesince1978the1976DumpingProtocol),ProtocolfortheprotectionoftheMediterraneanSeaagainstpollutionresultingfromexplorationandexploitationofthecontinentalshelfandtheseabedanditssubsoil(OffshoreProtocol,adoptedin1994enteredintoforce24March2011);ProtocolconcerningspeciallyprotectedareasandbiologicaldiversityintheMediterranean(SPA/BDProtocol,adoptedin1995enteredintoforce12December1999);ProtocolonIntegratedCoastalZoneManagementintheMediterranean(ICZMProtocol).
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Inaddition,planningofthemarinespaceisaconceptalreadytakenonboardbytheICZMProtocol.SpatialplanningofthecoastalzoneisregardedasanessentialinstrumentoftheimplementationofthesameProtocol.OneofthemainobjectivesofICZMisto„facilitate,throughtherationalplanningofactivities,thesustainabledevelopmentofcoastalzonesbyensuringthattheenvironmentandlandscapesaretakenintoaccountinharmonywitheconomic,socialandculturaldevelopment”(ICZMProtocol,Art.5).PlanningisrecalledalsoinotherpartsoftheProtocol,asinthecaseofarticlesdealingwiththeprotectionofwetlands,estuariesandmarinehabitats(Art.10)ortheprotectionofcoastallandscape(Art.11).
AccordingtoArt.3,theareatowhichtheProtocolapplies(i.e.thecoastalzone)istheareabetween:
§ theseawardlimitofthecoastalzone,whichshallbetheexternallimitoftheterritorialseaofParties;and
§ thelandwardlimitofthecoastalzone,whichshallbethelimitofthecompetentcoastalunitsasdefinedbytheParties.
ThegeographicalscopeoftheProtocol(seeBox1)includesboththelandandtheseaanditfollowsthatplanningshouldbeequallyappliedtobothcomponentsofthecoastalzones.
IthasalsotobeconsideredthattheICZMProtocolispartoftheEuropeanlegalsystem,duetoitsratificationbytheEuropeanUnionwithDecision2010/631/EUof13September201011.
Inthisperspective,MSPcanbeconsideredastheintegrativepartoftheimplementationofICZMinthemarinepartofthecoastalzone–correspondingtotheexternallimitoftheterritorialseaofParties–andspecificallyforitssustainableplanningandmanagement.Land-seainteractionscouldberegardedaspartofthedefinitionsgiveninArt.2andarethebasisoftheprinciplesoutlinedinArt.6.
Box1:GeographicalscopeofMSP
11CouncilDecisionof13September2010concerningtheconclusion,onbehalfoftheEuropeanUnion,oftheProtocolonIntegratedCoastalZoneManagementintheMediterraneanoftheConventionfortheProtectionoftheMarineEnvironmentandtheCoastalRegionoftheMediterranean.
GeographicalscopeofMSPin:
§ Directive2014/89/EUèmarinewaters,meaningthewaters,theseabedandsubsoillocatedontheseawardsideuptotheboundariesoftheareaofapplicationofMemberStatejurisdictionalrights,correspondingtothecontinentalshelf,thedeclaredEconomicExclusiveZoneEEZ,FisheryProtectionZoneFPZ,EcologicalProtectionZoneEPZ,ProtectedEcological-FisheryZonePEFZandincludingthecoastalwatersanditsseabedandsubsoil(thatarethesurfacewatersonthelandwardsideofaline,everypointofwhichisatadistanceofonenauticalmileontheseawardsidefromthenearestpointofthebaselinefromwhichthebreadthofterritorialwatersismeasured),extendingwhereappropriateuptotheouterlimitofthetransitionalwaters.
§ ICZMProtocol(bymeansofinterpretation)èthemarinewaterswithintheseawardlimitofthecoastalzone,meaningthewaters,theseabedandsubsoilwithintheexternallimitoftheterritorialseaofPartiesandincludingtheinternalwatersandthetransitionalwaters.
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GiventhedefinitionofthecoastalzonesintheICZMProtocol,almostallotherProtocolsoftheBarcelonaConventionarerelatedinoneortheotherwaytoit.ICZMcanandshouldprovidesupporttotheimplementationofseveraloftheseProtocolsandtherelevantobjectivesandprovisionsoftheseProtocolsshouldbetakenintoaccountinallICZMprojects,plansandstrategies.Giventheselinks,theapplicationofMSP,atleast,withintheframeworkandthegeographicalscopeoftheICZMProtocol,cancontributetothegoalsdefinedbyotherProtocols,asinthecaseofidentification,planningandmanagementofprotectedareasaccordingtotheSPA/BDProtocolortheprotectionoftheMediterraneanSeaagainstpollutionresultingfromexplorationandexploitationofthecontinentalshelfandtheseabedanditssubsoil(OffshoreProtocol).
InadditiontotheProtocols,severalspecificActionPlans,relatedtothemarineenvironment,havebeenelaboratedandapprovedbytheContractingParties(seeBox2).
SincetheaforementionedActionPlansprovideforconcretetargets,actionsandmeasuresthathaveanimpactontheactivitiesundertakenonoraffectingthecoastalandmarineareas,theseshouldbetakenintofullconsiderationwhendevelopingandapplyingMSP.
Takingintoconsiderationalltheabove,theContractingPartiestotheBarcelonaConventionanditsProtocols,attheirnineteenthOrdinaryMeeting(COP19,Athens2016),recommendedtostrengthenMAPactivitiesinthefieldofMSPinordertocontributetoGESoftheMediterraneanSeaandCoasts,investigateinmoredetailconnectionsbetweenlandandseaareasandproposecoherentandsustainablelandandsea-useplanningframeworksrelatingwithkeyeconomicsectorsandactivitiesthatmayaffectthecoastalandmarineresources.TheelaborationofaConceptualFramework(CF)forMSPasanemergingissueintheentireMediterraneanRegion,interlinkedwithICZMandtherelatedProtocol,wasenvisagedbytheUNEnvironment/MAPProgrammeofWork(PoW)approvedfor2016-2017.ItsmainaimistointroduceMSPwithintheBarcelonaConvention,asthemaintool/processfortheimplementationofICZMinthemarinepartofthecoastalzoneandspecificallyforplanningandmanagingmaritimehumanactivitiesinlinewiththeEcologicalObjectivesandGESandrelatedtargetsadoptedbytheBarcelonaConventionContractingParties,thuscontributingtothebalancebetweenenvironmental,socialandeconomicdimensionsofsustainabledevelopment.The20thMeetingoftheContractingPartiestotheBarcelonaConvention(COP20–Tirana,Albania2017)adoptedtheConceptualFrameworkforMarineSpatialPlanningasaguidingdocumenttofacilitatetheintroductionofthismanagementtoolintotheBarcelonaConventionframework(seeChapter3.5).
ImplementationofMSPinEUMemberStatesfallsundertheEUlegislation.InadditiontotheEUDirective2014/89/EU,establishingaframeworkformaritimespatialplanning,theprincipleofthedutyofsincereco-operationisfundamentalfortheimplementationofMSP.SincetheTreatyofLisbon,thisprinciplethatcanbefoundinArticle4(3)TEU,accordingtowhichtheUnionandtheMemberStatesshall,infullmutualrespect,assisteachotherincarryingouttaskswhichflowfromtheTreaties,takeanyappropriatemeasure,generalorparticular,toensurefulfilmentoftheobligationsarisingoutoftheTreatiesorresultingfromtheactsoftheinstitutionsoftheUnion,facilitatetheachievementoftheUnion’stasksandrefrainfromanymeasure,whichcouldjeopardisetheattainmentoftheUnion’sobjectives.
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Box2:RelevantActionPlansthatneedtobetakenintoaccountfortheimplementationofMSPbytheCPs.Source:www.unep.org/unepmap/action-plans.
Pollution§ MediterraneanOffshoreProtocolPlan§ RegionalPlansadoptedintheframeworkoftheLBSProtocolonthereductionoreliminationof
substancesortheirinputs:§ RegionalPlanontheeliminationofAldrin,Chlordane,Dieldrin,Endrin,Heptachlor,MirexandToxaphene§ RegionalPlanonthephasingoutofDDT§ RegionalPlanonreductionofBOD5fromurbanwastewater§ RegionalPlanonthereductionofinputsofMercury§ RegionalPlanonthereductionofBOD5inthefoodsector§ RegionalPlanonthephasingoutofHexabromodiphenylether,Heptabromodiphenylether,
TetrabromodiphenyletherandPentabromodiphenylether;PhasingoutofLindaneandEndosulfan;PhasingoutofPerfluorooctanesulfonylacid,itssaltsandPerfluorooctanesulfonylfluoride
§ EliminationofAlphahexachlorocyclohexane,Betahexachlorocyclohexane,Chlordecone,Hexabromobiphenyl,Pentachlorobenzene
§ RegionalPlanonMarineLitterManagementintheMediterranean
SpeciallyProtectedAreasandBiologicalDiversity§ RegionalWorkingProgrammefortheCoastalandMarineProtectedAreasintheMediterraneanSea
includingtheHighSea§ ActionPlanfortheconservationofCartilaginousFish(Chondricthyans)intheMediterranean§ ActionPlanfortheconservationofmarinevegetationintheMediterraneanSeafortheperiod2012-
2017§ ActionPlanfortheconservationofMediterraneanMarineTurtlesintheMediterraneanSeaforthe
period2014-2019§ ActionPlanfortheconservationofBirdspecieslistedinAnnexIItotheSPA/BDProtocolinthe
Mediterraneanfortheperiod2014-2019§ ActionPlanfortheconservationofCartilaginousFishesintheMediterraneanSeafortheperiod2014-
2019§ ActionPlanfortheconservationofHabitatsandSpeciesassociatedwithseamounts,underwatercaves
andcanyons,aphoticengineeringbenthicinvertebratesandchemo-syntheticphenomena,intheMediterraneanSea
§ Roadmaptowardsacomprehensive,ecologicallyrepresentative,effectivelyconnectedandefficientlymanagednetworkofMediterraneanMarineProtectedAreasby2020
IntegratedCoastalZoneManagement§ ActionPlanfortheimplementationoftheICZMProtocol2012-2019
SustainableConsumptionandProduction§ ActionPlanonSustainableConsumptionandProduction
ClimateChangeadaptation§ RegionalClimateChangeAdaptationFrameworkfortheMediterraneanMarineandCoastalAreas
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Alsointhelightofthedutyofsincereco-operationandinaccordancewiththeprovisionsoftheEUTreaties(Article3etseq.),accordingtowhichtheEUensurescompliancewithandtheproperimplementationofinternationaltreatiesinpromotingtheirdevelopment,MSPcanonlybeappliedconsistentlyandinthelightoftheprinciplesandobjectivesoftheBCSystem,astheyhavebeendevelopedandimplementedovertheyearsintheircontinuousevolution,alsothroughtheadoptionandimplementationoftherelatedsevenProtocolsenhancingtheConvention'soveralleffectiveness,includingtheICZMProtocol.
InordertosupportandassistContractingPartiestomeettheirobligationsundertheBarcelonaConventionanditsrelatedProtocols,theComplianceCommitteeoftheBarcelonaConvention,asasubsidiarybody,hasbeenestablishedwiththeaimtofacilitate,promote,monitorandsecurecompliancewiththeBClegalframework.
Therefore,thelinkbetweentheMSPoftheEUDirective2014/89/EU,establishingaframeworkformaritimespatialplanning,andtherespectiveUNEnvironment/MAPactivitiesisbasedontheunderlinedprinciplesoftheBarcelonaSystem,designedtoachievetheobjectiveofprotectingandenhancingthemarineenvironmentsoastoachieveand/ormaintainaGoodEnvironmentalStatusoftheMediterraneanSeaandCoastsandcontributetowardsthesustainabledevelopmentoftheMediterranean.
Wearethusseeingarapidevolutionofthelegalframeworkthat,inavirtuouscircle,triggersaprocessofcorrectandconsistentinterpretationandapplicationofallitslegalcomponents.Theimplementationofindividualcomponentscouldfacilitatetheobjectiveofconsistencyintheapplicationoftheentirelegalsystem(European,RegionalwiththeRegionalSeasConventionsandinternational).
Forthesereasons,throughtheimplementationofMSP,theunderlyingprinciplesoftheBarcelonaConventionSystemand,inparticular,oftheICZMProtocol,shallbefullyandcompletelyenforcedandimplementedwithintheEU.
3.2UnitedNationsConventionontheLawoftheSea
ThelegalframeworkforMSP,undertheBC,inparticularinrelationtotheUnitedNationsConventionontheLawoftheSea(UNCLOS)andRegionalSeasConventions(RSC)provisions,callsforthenecessityofamulti-scaleapproachtoacknowledgespecificitiesoftheMediterraneanbasinanditsmarineregions,alsofromalegalpointofview.
AllEUMemberStatesintheMediterraneanhaveratifiedUNCLOS.
3.2.1ApplicationofUNCLOSintheEasternMediterranean
TheUnitedNationsConventionontheLawoftheSeaidentifiesseveralmarinespacesbetweenareaswithinnationaljurisdiction,i.e.theTerritorialSea,theContinentalShelf,theExclusiveEconomicZone(EEZ)andtherelatedEcologicalProtectionZone(EPZ),EcologicalandFisheriesProtectionZone(EFPZ),FisheriesProtectionZone(FPZ),aswellasareasbeyondnationaljurisdiction.Italsoprovidessectorialapproachesandfocusesonshipping,fishing,wastedumpingandmineralsmining,regulatingtheregimeofinternationalStraitsandChannels.UNCLOSprovidesthelegalframeworkforallactivitiesintheoceansandseas,includingtheconservationandsustainableuseofmarinebiodiversitybeyondareasof
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nationaljurisdiction.UNCLOSobligesStatestoprotectandpreservethemarineenvironment(includingrareorfragileecosystems),withparticularrequirementsonco-operationbetweenPartiesonaglobalandregionalbasisforformulatingandelaboratingthenecessaryinternationalrules(UNCLOS,Articles192,194and197).
Finally,itisworthmentioningthatUNCLOS(PartXII,Articles205and206),alsoprovidesmeasuresonthesocalledenvironmentalassessment,inparticularbyprovidingthatwhereStateshavereasonablegroundsforbelievingthatplannedactivitiesundertheirjurisdictionorcontrolmaycausesubstantialpollutionoforsignificantandharmfulchangestothemarineenvironment,theyshall,asfaraspracticable,assessthepotentialeffectsofsuchactivitiesonthemarineenvironment,includingadutytonotify.ThisdutyencompassesplannedactivitiesunderthejurisdictionorcontrolofStateswhichmaycausesignificantandharmfulchangestothemarineenvironmentbeyondnationaljurisdiction.
TheseprinciplesareforeseenintheSEADirective2001/42/ECandintheProtocolonStrategicEnvironmentalAssessmenttotheConventiononEnvironmentalImpactAssessmentinaTransboundaryContext(SEAProtocol,Kyiv2003),ratifiedbytheEUon21November2008andtransposedinEUlegislationthroughtheSEADirective.
3.2.2TheExclusiveEconomicZones
TakingintoaccounttheobjectivesoftheSUPREMEprojectinthelegalcontextoftheEuropeanUnion,thegeographicalscopeofspatialplanningisthatspecifiedinDirective2014/89/EU,whichalsoincludestheExclusiveEconomicZones(EEZ).
IntheExclusiveEconomicZones(EEZ)(UNCLOS,PartV)–anareabeyondandadjacenttotheTerritorialSea,extendingseawardstoadistanceofnomorethan200nauticalmiles(370km)outfromitscoastalbaseline–acoastalStatehasbeengivensovereignrightsforthepurposeofexploringandexploiting,conservingandmanagingthenaturalresources.IntheEcologicalProtectionZones(EPZ),adoptedbysomeCountriesmorerecently,acoastalStatehasbeengiven,asaminus,sovereignrightsonlyforthepurposeofconservingandmanagingthenaturalresources.ThecoastalStatehasspecificmanagementresponsibilities,especiallyasconcernsthelivingresourcesofthezone.Inthelightofthesemanagementresponsibilities,acoastalState,whichhasclaimedanExclusiveEconomicZoneoranEcologicalProtectionZonecannotpursueapolicyofinactionwithrespecttoitslivingresources.
Hereinafter,asummarizedframeworkofthesituationintheEasternMediterraneanarea,graduallychanged,untiltheproclamationduringthelastperiodbythemajorityofthecoastalStatesofeitherExclusiveEconomicZones(EEZ)orFisheryZones(FZ),aswellastherecentlyemergingregimeofEcologicalProtectionZones(EPZ)andcombinationsofecologicalandfisheryzones:
§ ItalyhasnotestablishedanExclusiveEconomicZone(EEZ),buthasadoptedlawn.61/2006,whichprovidesforanEcologicalProtectionZonebeyondtheouterlimitoftheterritorialseafortheprotectionandpreservationofmarineenvironmentandarchaeologicalandhistoricalheritage.In2011wasadoptedafirstimplementingPresidentialDecree(n.209/2011)fortheestablishmentofanEcologicalProtectionZone,coveringtheNorth-WestMediterraneanSea,LigurianandTyrrhenianSeas.Inthisdefinedareaaretobeapplied,alsowithrespecttoforeignflaggedshipsandtoforeignnationalswithintheEPZ,therulesofinternational,Europeanandnationallawsrelatedtoprevention,responseandcontrolofallkindsofmarinepollution,
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includingpollutionfromshipsandballasttanks,pollutionbydumpingofwaste;pollutionasaresultofexplorationandexploitationofthesea-bedandsubsoil(thesocalled„offshoreactivities”);pollutionofatmosphericorigin;protectionofbiodiversityandinparticularmarinemammals.
§ TheEcologicalProtectionZoneandContinentalShelfwasdeclaredbytheRepublicofSloveniawithAct22October2005;
§ CroatiaadoptedadecisiontoestablishaProtectedEcological-FisheryZone,forbothfishingandecologicalpurposes,in2003,whichimplementationwaspostponedwithregardtoMemberStatesoftheEuropeanUnion;
§ Egyptin1983,Syriain2003,Cyprusin2004,Lebanonin2011declaredanExclusiveEconomicZone(EEZ).
WhileFishingZoneorEcologicalProtectionZonearenotmentionedintheUNCLOS,theyarecompatiblewithinternationallaw,alsoonthebasisofthegeneralprinciplethattherighttodolessisimpliedintherighttodomore(inmaiorestatminus);encompassingonlysomeoftherightsthatcanbeexercisedwithintheEEZ.
UNCLOSiscomplementedbyotherinternationalrelatedlegalinstruments,onthecontextofUnitedNationsspecializedagencies,organizationsandprogrammesandofintergovernmentalorganizations,includingtheonesgivenintheBox3(seebelow).
AnotherimportantissuetobeaddressedistheEEZ/FZ/EPZ/PEFZwithintheMAPBarcelonaConventionsystem.ItisinterestingtounderlinetherulesconcerningtheapplicationofContractingParties’lawsonenvironmentalprotectionalsobeyondtheouterlimitoftheterritorialsea.Inparticular:
§ Article1oftheBarcelonaConvention,statingthat„thegeographicalcoverageoftheConventionistheMediterraneanSeaAreaasthemaritimewatersoftheMediterraneanSeaproper.”
§ Article1,letterkoftheProtocolconcerningthepreventionofpollutionoftheMediterraneanSeabytransboundarymovementsofhazardouswastesandtheirdisposal(HazardousWastesProtocol),whichstatesthatareaunderthenationaljurisdictionofaState(referredforexampletoArt.5)meansalsomarineareawithinwhichStateexercisesadministrativeandregulatoryresponsibilitiesinaccordancewithinternationallawinregardtotheprotectionofhumanhealthortheenvironment.
§ Article2oftheProtocolconcerningcooperationinpreventingpollutionfromshipsand,incasesofemergency,combatingpollutionoftheMediterraneanSea(PreventionandEmergencyProtocol)specifyingthatthegeographicalcoveragetowhichtheProtocolappliesistheMediterraneanSeaArea.
§ Article2oftheProtocolfortheprotectionoftheMediterraneanSeaagainstpollutionresultingfromexplorationandexploitationofthecontinentalshelfandtheseabedanditssubsoil(OffshoreProtocol)onthegeographicalcoveragetowhichtheProtocolapplies,specifyingthatistheMediterraneanSeaAreaincludingthecontinentalshelfandtheseabedanditssubsoil.
§ Articles2and5oftheProtocolconcerningspeciallyprotectedareasandbiologicaldiversityintheMediterranean(SPA/BDProtocol),specifyingthegeographicalcoveragewhichappliesin„theareaoftheMediterraneanSeaasdelimitedinArticle1oftheConvention”,includingtheseabedanditssubsoil(Art.2)andenablingestablishmentofSpeciallyProtectedAreas(Art.5)inthemarineandcoastalzonessubjecttothesovereigntyorjurisdictionoftheParties(includedEEZ/FZ/EPZ/EFPZ)(Art.5a)andinthezonespartlyorwhollyonthehighseas(5b).
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Box3:LegalinstrumentscomplementarytoUNCLOS12
12http://www.isa.org.jm
TheInternationalSeabedAuthority(ISA)isanautonomousinternationalorganizationestablishedundertheUNCLOSandthe1994AgreementrelatingtotheImplementationofPartXIoftheUnitedNationsConventionontheLawoftheSea,withtheroleregardingmarinescientificresearchandtheprotectionofthemarineenvironment.TheAuthorityistheorganizationthroughwhichStatesPartiestotheConventionshall,inaccordancewiththeregimefortheseabedandoceanfloorandsubsoilthereofbeyondthelimitsofnationaljurisdiction(theArea)establishedinPartXIandtheAgreementorganizeandcontrolactivitiesintheArea,particularlywithaviewtoadministeringtheresourcesoftheArea12.
ISAguidelinesprovideforAreasofParticularEnvironmentalInterest(APEIs),which,inparticular,stipulatethatpriortotheissuanceoftest-miningandexploitationpermits,preservationreferenceareaswillbedelineated„inwhichnominingwilloccurtoensurerepresentativeandstablebiotaoftheseabedinordertoassessanychangesinthefloraandfaunaofthemarineenvironment”(ISBA/4/C/4/Rev.1,annex4,sect.5.6).„Thepreservationreferencezone[s]shouldbecarefullylocatedandlargeenoughsoasnottobeaffectedbythenaturalvariationsoflocalenvironmentalconditions.Thezone[s]shouldhavespeciescompositioncomparabletothatofthetestminingarea[s].Itshouldbelocatedupstreamofthetestminingarea[s]andshouldbeoutsideoftestminingarea[s]andareasinfluencedbytheplume”(InternationalSeabedAuthority1999,p.226).
Hence,thefullrangeofhabitatandcommunitytypes,potentiallyfoundinminingclaimareas,mustberepresentedinpreservationreferenceareas,andthescaleofpreservationreferenceareasmustbelargeenoughthatthesecommunitytypesare„stable”,i.e.,sustainable.Furthermore,theinterestsofallstakeholders(includingtheISA,signatoriestotheUNCLOS,nodulemining,claimholders,non-governmentalorganizations,andthesciencecommunity)willbeincorporatedintothedesignprocess.Inaddition,preservationreferenceareasshouldbeestablishedassoonaspossiblesothatsound,ecosystem-basedmanagementprinciplescanbeincorporatedintominingstrategiesandintothepositioningoffutureclaimareas.
InternationalMaritimeOrganization(IMO),1948UNAgency,hastheroletoadoptlegislationinmattersconcerningmaritimesafety,efficiencyofnavigationandpreventionandcontrolofmarinepollutionfromships,includingthedesignationofParticularlySensitiveSeaArea(PSSA).
The1973/1978theInternationalConventionforthePreventionofPollutionfromShips(MarpolConvention)wasdevelopedbyIMOtominimizepollutionoftheoceansandseas,includingdumping,oilandairpollution.TheobjectiveofthisConventionistopreservethemarineenvironmentinanattempttocompletelyeliminatepollutionbyoilandotherharmfulsubstancesandtominimizeaccidentalspillageofsuchsubstances.
The1945UnitedNationsEducational,ScientificandCulturalOrganization(UNESCO),itsManandtheBiosphereProgramme(MAB)andthe1972WorldHeritageConventionidentifysitesofoutstandingculturalornaturalimportancetothecommonheritageofhumanity.TheIntergovernmentalOceanographicCommission(IOC),inparticulartheOceanBiogeographicInformationSystem,isimportantforthepreservationoftheoceanenvironment.TheWorldConservationMonitoringCentreoftheUnitedNationsEnvironmentProgramme(UNEnvironment-WCMC)andtheGlobalOceanBiodiversityInitiative(GOBI)havethekeyroletoestablisharepositoryforscientificandtechnicalinformationandexperiencerelatedtotheapplicationofthescientificcriteriaontheidentificationofecologicallyorbiologicallysignificantmarineareas(EBSAs),andtodevelopaninformation-sharingmechanismwithsimilarinitiatives,suchasFAO’sworkonvulnerablemarineecosystems(VMEs).In1997,theMethodologicalGuidetoIntegratedCoastalZoneManagementwasadopted.
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BesidestheUNFishStocksAgreement,theUnitedNationsFoodandAgricultureOrganization(FAO)incollaborationwithrelevantinternationalandregionalorganizations,includingRegionalFisheriesManagementOrganizations(RFMOs),hasthetasktoguaranteethesustainabilityoffisheries,bymanagingtheimpactsoffisheriesonspeciesandthewiderthroughoutimplementingtheecosystemapproach,eliminatingillegal,unreportedandunregulated(IUU)fishing;minimizingthedetrimentalimpactsoffishingpractices;mitigatingandmanagingby-catchessustainablyandreducingdiscards,inordertoattainasustainableexploitationlevelofmarinefisheryresourcesandtherebycontributingtoagoodenvironmentalstatusinmarinewaters.
Thecreationofmarineprotectedareas(MPAs)inparticularareasclosedtocertainfishingactivitiescouldconstitutevaluablemeanstoreducetheimpactoffishingonvulnerablemarinehabitatsandspecies.
Underthesameumbrellaare:§ 1995FAOCodeofConductforResponsibleFisheries§ In2005theICCATRecommendation04-12onmanagementmeasuresconcerningrecreationalfishery
intheMediterranean(GFCM,2005)
TheUnitedNationsGeneralAssemblyResolution64/72,paragraphs113through130,onresponsiblefisheriesinthemarineecosystem,addresstheimpactsofbottomfishingonvulnerablemarineecosystemsandthelong-termsustainabilityofdeep-seafishstocks,inareasbeyondnationaljurisdiction,callingonStatesand/orregionalfisheriesmanagementorganizations(RFMOs),consistentwiththeFAOGuidelinesfortheManagementofFisheriesandconsistentwiththeprecautionaryapproach,toconductimpactassessments,conductfurthermarinescientificresearchandusethebestscientificandtechnicalinformationavailabletoidentifyareaswherevulnerablemarineecosystemsareknownorlikelytooccur,eitheradoptconservationandmanagementmeasurestopreventsignificantadverseimpactsonsuchecosystemsorclosesuchareastofishing,andadoptmeasurestoensurethelong-termsustainabilityofdeep-seafishstocks(bothtarget-andnon-targetstocks),andnottoauthorizebottom-fishingactivitiesuntilsuchmeasureshavebeenadoptedandimplemented(seealsoCBDCOP10,DecisionX/29).
The1991ConventiononEnvironmentalImpactAssessmentinaTransboundaryContext(EspooConvention),enteredintoforcein1997,whichsetsouttheobligationsofPartiestoassesstheenvironmentalimpactofcertainactivitiesatanearlystageofplanning;tonotifyandconsulteachotheronallmajorprojectsunderconsiderationthatarelikelytohaveasignificantadverseenvironmentalimpactacrossboundaries.
UndertheUNEnvironmentumbrella,the1992ConventiononBiologicalDiversity(CBD)hasafundamentalroleincontributingtointernationalactionontheprotectionofsensitiveandrepresentativeecosystems,includingthroughtheestablishmentofMPAs,andinsupportingtheidentificationofEcologicallyorBiologicallySignificantMarineAreas(EBSAs)and,ingeneral,globalcooperation.ItcontainsaspecificrequirementunderArticle14(1)(a)and(d),toconductEIAsforactivitiesunderaContractingParty’sjurisdictionorcontrolwhicharelikelytohavesignificantadverseeffectsonbiodiversity–bothterrestrialandmarine–andforareaswithinandbeyondnationaljurisdiction.
Underthesameumbrellaare:§ 1995JakartaMandateonMarineandCoastalBiologicalDiversity(DecisionII/10)1998(DecisionIV/5)§ IntegratedMarineandCoastalAreaManagement(IMCAM)approachesforimplementingthe
Conventiononbiologicaldiversity§ DecisionX/29onmarineandcoastalbiodiversity,adoptedbyCOP10(Nagoya,Japan,18-29October2010)§ „NagoyaProtocolonAccesstoGeneticResourcesandtheFairandEquitableSharingofBenefitsarising
fromtheirutilizationtotheConventiononBiologicalDiversity”(theABSNagoyaProtocol,2010),worthittomanagemarinegeneticresources.
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13
13Seehttp://www.cms.int/
The1996AccobamsAgreementontheConservationofCetaceansintheBlackSea,MediterraneanSeaandcontiguousAtlanticareatopreserveallspeciesofcetaceansandtheirhabitatswithinthegeographicalAgreementareabytheenforcementofmorestringentmeasures.
The1971RamsarConventiononwetlands,theframeworkfornationalactionandinternationalcooperationfortheconservationandwiseuseofwetlandsandtheirresources.
TakingintoaccountthattheMediterraneanregionisuniquebecauseofitsspecialtypeofclimateanditsverylonghistoryofhumanuse,in1991wasestablishedtheMediterraneanWetlandsRegionalInitiative(MedWet),whichbringstogether26Mediterraneanandperi-MediterraneanCountriesthatarePartiestotheConventiononWetlands.TheMedWetMissionistoensureandsupporttheeffectiveconservationofthefunctionsandvaluesofMediterraneanwetlandsandthesustainableuseoftheirresourcesandservices.
TheMediterraneanWetlandObservatory(MWO)wasestablishedin2008,withthemainobjectivetoactasawetlandmanagementtoolservingtheMedWetInitiative'scountries,andthereforetohelptoimprovepoliticaldecisionsregardingtheconservationandsustainablemanagementofwetlands,particularlyintermsoflegislation,governanceandbestpractices.
The1979ConventionontheConservationofMigratorySpeciesofWildAnimals(CMSorBonnConvention)13aimstoconservemigratoryspecies,theirhabitatsandmigrationroutesonaglobalscalethroughouttheirrange,complementingandcooperatingwithanumberofotherinternationalorganizations,especiallypromotingconcertedactionamongtheRangeStatesofmanyofthesespecies.
AnumberoflegallybindingAgreementshavebeenconcludedtodateundertheauspicesofCMS,interaliawiththeaimtoconserveCetaceansoftheMediterraneanSea.
ImportantMarineMammalAreas(IMMAs),definedasdiscreteportionsofhabitat,importanttomarinemammalspecies,thathavethepotentialtobedelineatedandmanagedforconservation,recognizedbyCMStoaddresstheneedsofMigratorySpecies.
The2000AdriaticandIonianInitiative(AII)betweenAlbania,Bosnia-Herzegovina,Croatia,Greece,Italy,Montenegro,SerbiaandSlovenia.
In2012,theEuropeanCouncilrequestedtheEuropeanCommissiontopresentanewEUStrategyfortheAdriaticandIonianRegion(EUSAIR),adoptingaspecificCommunicationandarelatedActionPlanon17June2014.
TheEUSAIRisajointInitiativeinvolvingseveralEuropean,national,regionalandstakeholders,policiesandfundingprogrammes,amacroregionalmultilevelandfocusedcooperationasaninnovativemodeofterritorialcooperationamongregionsandnations,withbalancedandsustainabledevelopmentasasharedgoal.
EUSAIRaimstopromotesustainableeconomicandsocialprosperityoftheRegionthroughgrowthandjobscreation,byimprovingitsattractiveness,competitivenessandconnectivity,whilepreservingtheenvironmentandensuringahealthyandbalancedmarineandcoastalecosystems,contributingtotheEUintegrationoftheparticipatingWesternBalkancandidateandpotentialcandidatecountries,bybringingtogethercountrieswithmuchsharedhistoryandgeography.
TheEUSAIRbuildsonthealreadyexistingMaritimeStrategyfortheAdriaticandIonianSeasasanintegralpartofthenewbroadermacro-regionalstrategy.
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Summingup,alltheprovisionsoftheBarcelonaConventionanditsrelatedProtocols–whichregulateindetaileachactivityforprotectionoftheenvironmentandpreventionofpollution–shallbeappliedandimplementedalsointheestablishedEEZ/FZ/EPZ/EFPZ.Therefore,theestablishmentofthesezonesbyContractingPartiesconstitutesanenhancementofthemanagementoftheMediterraneaninachievingtheBCobjectives,enlargingthemarineareaswherethenationaljurisdictionpowersareappliedandimplemented.However,itshouldbeunderlinedthatprovisionsoftheBCapply,regardlessoftheEEZ,evenfortheactivitiesbeyondnationaljurisdiction.
ThespecificRoundTableonBlueGrowth,incoordinationwiththeEUSAIRparallelPillar,promotestheparticipationofcivilsocietyinvolvedinthissectorwiththeaimtopromotemaritimeandmarinegrowthintheAdriaticandIonianRegionbyfosteringsustainableeconomicdevelopmentandjobcreationaswellasbusinessopportunities.
In2016,duringDubrovnikmeeting,thehighestpoliticalbodyoftheAIIwasreformed,foreseen„AdriaticandIonianCouncil/EUSAIRMinisterialMeeting“heldwithintheEUSAIRForumtoavoidduplicationsandpoolingresources.
TheCouncilofEuropeLandscapeConvention,adoptedin2000andenteredintoforcein2004,promotestheprotection,managementandplanningofEuropeanlandscapesandorganisesEuropeanco-operationonlandscapeissues.
In2004,theInternationalConventionfortheControlandManagementofShips'BallastWaterandSediments(enteredintoforceon8September2017)wasadoptedtopreventthespreadofharmfulaquaticorganismsfromoneregiontoanother,byestablishingstandardsandproceduresforthemanagementandcontrolofships'ballastwaterandsediments.
The2009FAOAgreementonPortStateMeasurestoprevent,deterandeliminateillegal,unreportedandunregulatedfishing(IUU).TheUnitedNationsFoodandAgricultureOrganization(FAO),incollaborationwithrelevantinternationalandregionalorganizations,includingRegionalFisheriesManagementOrganizations(RFMOs)andtheGeneralFisheriesCommissionfortheMediterranean(GFCM),whichhasthetasktoguaranteethesustainabilityoffisheries,bymanagingtheimpactsoffisheriesonspeciesandthewiderthroughoutimplementingtheecosystemapproach,eliminatingillegal,unreportedandunregulated(IUU)fishing;minimizingthedetrimentalimpactsoffishingpractices;mitigatingandmanagingby-catchessustainablyandreducingdiscards,inordertoattainasustainableexploitationlevelofmarinefisheryresourcesandtherebycontributingtoagoodenvironmentalstatusinmarinewaters.
The2009HongKongInternationalConventionfortheSafeandEnvironmentallySoundRecyclingofShips,aimedatensuringthatships,whenbeingrecycledafterreachingtheendoftheiroperationallives,donotposeanyunnecessaryrisktohumanhealthandsafetyortotheenvironment.
Underthesameumbrella:§ ResolutionMEPC.196(62),adoptedon15July2011,Guidelinesforthedevelopmentoftheship
recyclingplan§ ResolutionMEPC.210(63),adoptedon2March2012,Guidelinesforsafeandenvironmentallysound
shiprecycling
The2016IUCNGlobalStandardfortheIdentificationofKeyBiodiversityAreas(KBAs),setsoutgloballyagreedcriteriafortheidentificationofKBAsworldwide.
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3.3 CurrentpolicyinitiativesregardingMSPintheframeworkofBC
ThemostrelevantcurrentactivitiesregardingMSPintheframeworkofBCaretheCommonRegionalFrameworkforICZMandConceptualFrameworkforMSP.
ThepreparationofaCommonRegionalFramework(CRF)forICZMintheMediterraneanisforeseenbytheICZMProtocol(Art.17and18).Morerecently,UNEnvironment/MAPMid-TermStrategy(MTS)2016-2021,intheDecisionIG.22/1ofthe19thMeetingoftheContractingParties(COP19)(Athens,Greece,9-12February2016),indicatesthedefinitionoftheCRFforICZMasoneofitskeyoutputs.Inaddition,UNEnvironment/MAPProgrammeofWork(PoW)approvedfor2016-2017envisagesthepreparationofaConceptualFramework(CP)forMarineSpatialPlanning(MSP)asanemergingissueintheentireMediterraneanRegion.Bothoutputsareinterlinked,whichmakesitnecessarytoclarifytheirrelationshipandestablishaclearhierarchybetweenthem.
Followingthesecommitments,anin-depthstudyoftheexistinggeneralcontextfortheimplementationofICZMintheMediterraneanRegionwascarriedoutduringaWorkshoptodiscusstheFirstDraftoftheRegionalFrameworkforICZMandMSP,organisedinAthens,Greece,on5-6April2017,withparticipationofnominatedexpertsfromthirteenMediterraneancountriesinordertoprovideinitialcommentstothefirstdraftofthedocument.TheorganisationoftheworkshopwassupportedbytheItalianMinistryoftheEnvironmentandfortheProtectionofLandandSea.ThemainoutputsofthePAP/RACNationalFocalPoints(NFPs)meeting,whichwasorganisedatthePAP/RACpremisesinSplit,Croatia,on3-4May2017,werethedefinitionofa„GeneralStructureandElementsoftheCommonRegionalFrameworkforICZM“,inordertosetupthe„AnnotatedContentsoftheCommonRegionalFramework(CRF)forICZM“,andtheConceptualFrameworkforMSP.AnExtraordinaryMeetingofPAP/RACNFPs,supportedbytheItalianMinistryoftheEnvironmentandfortheProtectionofLandandSea,wasorganisedinAthens,Greece,on28-29June2017,anditsmainoutcomewastheapprovalofboththeAnnotatedStructureoftheCRFforICZMandoftheConceptualFrameworkforMSP.TheprocessoffinalizationofthesetwodocumentsalsotookintoconsiderationabackgrounddocumentpreparedbyPAP/RACexperts(„TheWaytoRFforICZMintheMediterranean“),whichincludesanassessmentandanevaluationofthecurrentsituation,theobstaclesinimplementation,theneedsforthefutureandfirstrecommendations,inordertoprovideapointofviewforsupportingtheContractingParties.Theserecommendationswereputtingemphasismostlyonstrengtheningtheenablingenvironmentforimplementation(legislation/institutions,governance,knowledge)ofCRFforICZM.
AsaresultofanextensiveconsultationprocesswiththeCPs,itwasfeltthatthedevelopmentofthefulltextofsuchacomplexandcomprehensivedocumentastheCRFforICZMisneedingmoretime,resourcesandconsultationopportunitiesthaninitiallyenvisagedbytherelevantCOP19Decision.Thus,thePAP/RACNFPspreferredtoadoptastep-wiseapproachandtoproposesolelyanAnnotatedStructureoftheCRFforICZMasabasisforthedevelopmentofthefulldocumentduringthenextbiennium.ThisAnnotatedStructure(seeFigure2)providesguidanceonthecontentsoftheindividualpartsoftheCRFalignedwiththeICZMProtocolprovisionsaswellasfortheirfulldevelopment.TheAnnotatedStructureasaguidingdocumentforthepreparationofaCRFforICZMintheMediterraneanwassubmittedforadoptiontothe20thMeetingoftheContractingPartiestotheBarcelonaConvention(COP20–Tirana,Albania,2017).
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Figure2:TheAnnotatedStructureoftheCRMforICZM
ICZMoffersauniquepossibilitytoimplementonthesamegeographicalareaallcommitmentsrelatedtodifferentsectorialpoliciesinacoherent,coordinated,complementary,synergeticandthereforeintegratedwayandthuscontributetoitssustainabledevelopment.TheapplicationofMSPwithintheframeworkandthegeographicalscopeoftheICZMProtocolcancontributetothegoalsdefinedbyotherProtocols,asinthecaseofidentification,planningandmanagementofprotectedareasaccordingtotheSPA/BDProtocolortheprotectionoftheMediterraneanSeaagainstpollutionresultingfromexplorationandexploitationofthecontinentalshelfandtheseabedanditssubsoil(thesocalledOffshoreProtocol).Therefore,animplementationofCRFforICZMcouldhaveamultipleaddedvalueatdifferentlevels.Amongelse,itcould:
§ contributetoGESandultimatelysustainabledevelopmentoftheconcretecoastalzones;§ reducestressonthemarinepartofacoastalzoneoriginatingfromitsterrestrialpart;§ contributetoabetterunderstandingandmanagingoftheLSIatallpossiblelevelsandofall
possibleforms;
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§ ensuremorecoherenceandcomplementarityofplanningprocessesregardingthelandandtheseapartsofcoasts;
§ facilitatetransboundarycooperationoncross-borderissues;§ providepolicyguidance,tools,methodologiesandgoodpracticestonon-EUMediterranean
countries,thuscontributingtoamoreeffectiveprotectionoftheircoastalandmarineenvironment.ThiswouldbebeneficialtoboththeirMediterraneanneighboursandtheEU-relatedpolicies.
TheCFforMSPisevenmoredirectlyconnectedtothecurrentexercise.ContentsoftheCFhavebeendevelopedbuildingalsoonexperiencefromalargenumberofprojects.TheycanbeusedasachecklisttoverifythatneededelementsoftheMSPprocessaretakeninconsideration,referringtoabovementionedandothermethodologiesforspecificdetails.However,innocasesuchguidelinesshallbeconsideredprescriptive,aseachMSPprocessneedstobetailoredaccordingtospecificcharacteristicsofitsgeographicscope,objectivesandexpectedresults.Thechallengeistocapitalizeavailableexperiencesratherthandevelopnewstep-by-stepmethodologies.ThemainaxesandprinciplesoftheCFareasfollows:
§ UseEcApasaguidingprincipleforMSP;§ Applyanadaptiveapproach;§ Applyamulti-scaleapproach;§ Ensureintegration;§ Takeintoaccountland-seainteractions;§ Provideforfourdimensions(3spatialandtime);§ Baseprojectsonknowledge;§ Seeksuitabilityandspatialefficiency;§ Facilitateconnectivity;and§ Strengthencross-bordercooperation.
TheCFforMSP,basedontheanalysisofexistingmethodologies,suggestsalsosomeconcretestepsandsub-stepsasasortofachecklisttofacilitateeffortsofCPstodeveloptheirownMSPpolicies,keepinginmindthateachMSPprocessneedstobetailoredaccordingtospecificcharacteristicsofitsgeographicalscope,objectivesandexpectedresults.
3.4 The2030AgendaforSustainableDevelopmentanditsSustainableDevelopmentGoals
The2030AgendaforSustainableDevelopmentandits17SustainableDevelopmentGoals(SDGs)wereadoptedbyworldleadersinSeptember2015atahistoricUNSummitheldinNewYork,USA.Overthenextfifteenyears,withthesenewGoalsthatuniversallyapplytoall,countrieswillmobilizeeffortstoendallformsofpoverty,fightinequalitiesandtackleclimatechange,whileensuringthatnooneisleftbehind.WhiletheSDGsarenotlegallybinding,governmentsareexpectedtotakeownershipandestablishnationalframeworksfortheachievementofthe17Goals.Countrieshavetheprimaryresponsibilityforfollow-upandreviewtheprogressmadeinimplementingtheGoals,whichwillrequirequality,accessibleandtimelydatacollection.Regionalfollow-upandreviewwillbebasedonnational-levelanalysesandcontributetofollow-upandreviewatthegloballevel.
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Inrecognitionofthegrowingimportanceoftheroleofoceansinsustainabledevelopment,SDGGoal14aimstoconserveandsustainablyusetheoceans,seasandmarineresources;theUNEnvironmentwillplayakeyroleincontributingtotheimplementationofthatgoalincoordinationwithotheractors.Astheimportanceoftheregionaldimensionisincreasinglyrecognizedfortheimplementationofglobalagendas,theRegionalSeaProgrammesareconsideredtobetheunitsofmarineecosystemsthatcanfunctionallyprovideservicestohumanbeingssurroundingtheseseas.Therefore,therewillbeaclosecoordinationbetweenMediterraneancountriesandMAPinsupportoftheimplementationandmonitoringofrelevantSDGs(UNEP/MAP,2017).
TheoverarchingSDG14willorientateMSPimplementationinEasternMediterraneanandmoreingeneralintheentireMediterraneanBasin,applyingthereforetoprovisionsincludedintheEUMSPDirectives,aswellasintheguidelinesprovidedbytheCFforMSPdevelopedintheframeworkoftheBarcelonaConvention.
3.5 TransboundarycooperationinMSPintheMediterranean
Cross-bordercooperationinMSPisessentialatalllevels;itisunderlinedbytheEUMSPDirectivecallingforamaritimeplanningprocesstobepromotedthroughthecooperationamongMemberStates,enhancingeffectivecross-border/transboundarycooperationbetweenMemberStates(Art.11)andwithneighbouringThirdCountries(Art.12),inaccordancewithrelevantUNCLOSprovisions.Infact,theMSPisaprocessbasedoncoordinatedactionsthroughcoherentmaritime-relatedpoliciesandrelevantinternationalcooperation,toguaranteethatmaritimespatialplansarecoherentandcoordinatedacrossthemarineregionconcerned.
TheMediterraneanBasinisasemi-enclosedsea(UNCLOS,PartIX)wherethecooperationoftheborderingStatesishighlyneededto:
a) coordinatethemanagement,conservation,explorationandexploitationofthelivingresourcesofthesea;
b) coordinatetheimplementationoftheirrightsanddutieswithrespecttotheprotectionandpreservationofthemarineenvironment;
c) coordinatetheirscientificresearchpoliciesandundertakewhereappropriatejointprogrammesofscientificresearchinthearea;
d) invite,asappropriate,otherinterestedStatesorinternationalorganizationstocooperatewiththeminfurtherstrengtheningsuchjointactions.
InthecontextofMSPimplementation,thecooperationshallbepursuedinparticularthroughexistingregionalinstitutionalcooperationstructuressuchasRegionalSeaConventions.Itistobepointedoutatthisstagethat–asprovedbyexperience–multilateralcooperationisalwayseasierthanbilateraloneamongcountrieshavingunsettledpendingissuesorevenconflictsamongthem.
Thougheasytoexpresssuchawishandguidance,oneshouldkeepinmindthatamajorprerequisitefortheimplementationofsuchacommitmentismutualtrust.Thelong-lastingmultilateralcooperationoftheMediterraneancountriesintheframeworkoftheBCsystemhaspavedthewaytoacertaindegreetothisend.Formorethan40years,theBC,amongothers,promotescooperationbetweenandamongCPsinEnvironmentalImpactAssessment(EIA)proceduresrelatedtoactivitiesundertheirjurisdictionor
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controlwhicharelikelytohaveasignificantadverseeffectonthemarineandcoastalenvironmentofotherCPsorareasbeyondthelimitsofnationaljurisdiction,onthebasisofnotification,exchangeofinformationandconsultation(Art.4,para3,lett.doftheBC).Inaddition,andintheframeworkoftheICZMProtocol,internationalcooperationandscientificdataexchangeisrequiredfor:
§ theactivityinthefieldofmonitoringandobservation(Art.16),trainingandresearch,technicalandscientificcooperation(Art.25-27);
§ thedevelopmentofpoliciesandtheadoptionofmeasuresforthepreventionofnaturalhazards,preventionandmitigationofthenegativeimpactsofcoastalerosion,andresponsetonaturaldisasters(ICZMProtocol-PartIV,Art.22-24);
§ theimplementationofenvironmentalassessments(SEA,TEIA),takingintoconsiderationthecumulativeimpactsonthecoastalzonesandtheircarryingcapacities,inparticularadoptingbymeansofcooperationguidelinesforthedeterminationofproceduresfornotification,exchangeofinformationandconsultationatallstagesoftheprocess(Art.4para3,lett.dofBCandArt.19and29oftheICZMProtocol).
Furthermore,inordertoachievegoodgovernanceamongactorsinvolvedinand/orrelatedtocoastalzonesandtopromoteconsistencyandcoherenceofacrossmarineregionsandidentifiedsub-regions,CPhaveagreedtoelaborateaCRFforICZM(see3.2),thusfurtherstrengtheningtrans-boundarycooperation,inparticularbetweentheCPssharingamarineregion.ThroughthedefinitionofCRFtheywouldjointlyelaboratemeasurestostrengthenregionalcooperationusingcoordinatedmechanismsfor:
§ Processestoaccelerateachievementofresultsagreedandoutcomes/outputssetout;§ Indicatorsasessentialtoolsfortrackingprogress,supportingpolicyevaluationandinforming
thepublicanddecisionmakers;§ MethodsandpracticestoachieveObjectivesandtheGeneralPrinciplesoftheICZMProtocol.
ItshouldbenotedthattransboundarycooperationobstacleswillbeconsiderablymovedawaywhenthecontinentalshelfwillbedelimitatedinallMediterraneancountriesand–ultimately–anEEZwillbedeclaredbyall.ThisisnotyetthecaseforsomeoftheEasternMediterraneancountries,factthatexplainswhytherelevantcommitmentinthelegaltextsisaccompaniedbythephrase„whereappropriate”or„totheextentpossible”.
Overall,transboundarycooperationamongCPsintheframeworkoftheBarcelonaConventionisfundamentalinordertoaddressMSPintheMediterraneanSeaatstrategiclevel.
3.6 Ecosystem-basedApproach
Theecosystem-basedapproachcanbedefinedastheintegratedmanagementofland,waterandlivingresourcesthatprovidessustainabledeliveryofecosystemservicesinanequitableway.Itgoesbeyondexaminingsingleissues,species,orecosystemfunctionsinisolation.Instead,itrecognizesecologicalsystemsforwhattheyare:richmixesofelementsthatinteractwitheachothercontinuously.Thisisparticularlyimportantforcoastsandseas,wherethenatureofwaterkeepssystemsandfunctionshighlyconnected.
Directive2014/89/EUestablishingaframeworkforMSPclearlyrecallstheimportanceofapplyingtherequirementoftheecosystem-basedapproach,bothinthepreambleandunderthearticleprovisions;
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i.e.Art.5„Whenestablishingandimplementingmaritimespatialplanning,MemberStatesshallconsidereconomic,socialandenvironmentalaspectstosupportsustainabledevelopmentandgrowthinthemaritimesector,applyinganecosystem-basedapproach,andtopromotethecoexistenceofrelevantactivitiesanduses.”Therefore,theecosystem-basedapproachmustbeatthecoreoftheMSPprocess.Atthesametime,theecosystem-basedapproachisthebaseoftheMarineStrategyFrameworkDirective(MSFD)whichforeseesthateachMemberStatedevelopsastrategyforachievingormaintainingtheGoodEnvironmentalStatus(GES)oftheMarineEnvironmentby2020.AchievingtheGESis,atthesametime,thegoalofEcAp–theMediterranean-wideprocessadoptedbytheBCCOP17DecisionIG.20/4,thatisfullyincoherencewiththeEUMSFD,andassuchisstreamlinedintoallMAPpolicies.
Theecosystem-basedapproachalsoplaysaroleofalinkbetweenMSPandMSFD.Itisarticulatedessentiallyontwolevels:
1) Thestrategiclevel,representedbytheintegrationandapplicationofthemeasuresandobjectivessetoutintheMSFD,whichrepresentstheIntegratedMaritimePolicyEnvironmentalPillarandisthereforetheinterconnectionandinterrelationshipbetweendifferentsectoralregulations.
2) Thefunctional–procedurallevel,consistingoftheapplicationoftheSEADirectiveworkingtools,asamethodologythatcanconcretelyarticulatethewaytheecosystem-basedapproachneedstobeintegratedandusedtodefinetheMSPplans.
IntheMediterranean,EcApistheoverarchingguidingprincipletoallpolicyimplementationanddevelopmentundertakenundertheauspicesoftheUNEnvironment/MAPBarcelonaConvention.EcApistobeintegratedinallofitspoliciesandactivitiesasitmakesexplicitthelinkbetweenthestatusofnaturalresourcesystemsandservicestheyprovide;itseekstomaintaintheintegrityandfunctioningofecosystemsasawhole;andrecognizesthattheimpactsofhumanactivitiesareamatterofsocialchoice.
EcApreferstoaspecificprocessundertheUNEnvironment/MAPBarcelonaConvention,asitsContractingPartieshavecommittedtoimplementtheecosystem-basedapproachintheMediterraneanwiththeultimateobjectiveofachievingthegoodenvironmentalstatus(GES)oftheMediterraneanSeaandCoast.ThisprocessaimstoachieveGESthroughinformedmanagementdecisions,basedonintegratedquantitativeassessmentandmonitoringofthemarineandcoastalenvironmentoftheMediterranean.
MainstreamingtheEcApprocessintotheworkofUNEnvironment/MAPBarcelonaConventionandachievingtheGESoftheMediterraneanSeaandCoastthroughtheEcApprocesshavebeensupportedbytheEU-fundedprojectsEcAp-Med14(2012-2015)andEcAp-MedII15(2015-2018).
14ImplementationoftheEcosystemApproachintheMediterraneanbytheContractingPartiesintheContextoftheBarcelonaConventionfortheProtectionoftheMarineEnvironmentandtheCoastalregionoftheMediterraneananditsProtocols.
15Mediterraneanimplementationoftheecosystemapproach,incoherencewiththeEUMSFD.
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ThroughDecisionIG.17/6theCPstotheBarcelonaConventionhavecommittedtoprogressivelyapplyEcAptothemanagementofhumanactivitieswiththegoalofeffectingarealchangeintheMediterraneanmarineandcoastalenvironment.DecisionIG.17/6outlinesaroadmapfortheimplementationofEcAp,consistingofseveralsubsequentsteps,suchasthedevelopmentofecologicalobjectives,operationalobjectivesandrespectiveindicators,thedevelopmentofGESdescriptorsandtargets,monitoringprogrammes,andfinallythenecessarymanagementmeasuresandprogrammestoachieveGES.
DecisionIG.20/4on„ImplementingtheEcosystemApproachRoadmap”,followinguponDecisionIG.17/6,validatedtheworkdonesofarregardingthe11ecologicalobjectives,operationalobjectivesandindicatorsfortheMediterranean.ItalsomandatedtheSecretariattoprepareanEcApMonitoringProgramme,todetermineGESandtargetsandtoprepareanin-depthsocio-economicanalysisofhumanactivitiesthatimpacton,orbenefitfrom,thequalityandecologicalhealthofcoastalandmarineecosystems.Finally,itaskedtointegrateEcApintheoverallworkofUNEnvironment/MAPBarcelonaConventionandmandatedtheSecretariattoestablishanEcApgovernanceframework.
Asmostrelevantmilestoneofthe18thOrdinaryMeetingoftheContractingParties(COP18,Istanbul,2013),DecisionIG.21/3onthe„EcosystemApproachincludingadaptingdefinitionsofGoodEnvironmentalStatus(GES)andtargets”(theEcApDecision)expressestheagreementonregionallycommontargets,listsofindicatorstoachieveGESintheMediterranean,andanintegratedlistofMediterraneanGES,targetsandindicators(seeTable3).
Table3:GESandtargetsadoptedbyCOP18,UNEP(DEPI)/MEDIG.21/9–DecisionIG.21/3.Source:SPA/RACwebsite.
EO Indicators GESdefinitions Targets
1.Biodiversity 15 17 302.Nonindigenousspecies 4 4 65.Eutrophication 5 5 107.Hydrography 5 4 48.Coast 3 3 39.Pollution 6 6 910.Marinelitter 3 2 3
AspecifictimelinewasadoptedinthisEcApDecisiononhowtodevelopandimplementanIntegratedMediterraneanMonitoringandAssessmentProgrammebythe19thMeetingoftheContractingParties,followingthe6-yearEcApcyclesstructure(withsecondEcApcycleintheMediterraneanof2016-2021).ItwasalsoagreedthataftertheinitialphaseofimplementationoftheIntegratedMonitoringandAssessmentProgramme(2016-2019),thedraftIntegratedMediterraneanMonitoringandAssessmentProgramme(IMAP)willbereviewedandincasenecessaryamended,inlightoflessonslearntduringthefirstyearsofitsimplementation(seeFigure3).
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Figure3:CalendaroftheEcApimplementationprocess.
Source:SPA/RACwebsite.
Furthermore,aconsiderablenumberofsectorialpoliciesandrelatedtoolshavebeendevelopedwithintheBCsystemaddressingpollution,biodiversity,socio-economicaspects,marinelitter,keyeconomicsectors,etc.,whoseimplementationcontributetotheprotectionofthecoastalzone.
AchievingEcologicalObjectives(EOs)andGESrequiresanintegratedapproachinordertoaddresscombinedpressuresandcumulativeimpactsincoastalandmarineareas.TheICZMProtocolprovidesforreachingGES,inparticularwithregardtothetargetssuchas:
i) negativeimpactsduetonewstructurewithnoinfluenceonthelargerscalecoastalsystem;
ii) physicaldisturbancetosandycoastalareasinducedbyhumanactivitiesshouldbeminimized;
iii)naturaldynamicnatureofcoastlinesisrespected,andcoastalareasareingoodcondition;and
iv) integrityanddiversityofcoastalecosystem,landscapes,andtheirgeomorphologyarepreserved.
Infact,theICZMProtocolunderlinestheecosystemapproachasoneofitsleadingprinciples.Therefore,itisnotsurprisingthatthesameprofoundrelationshipexistsbetweenICZMandtheEcApprocess.TheICZMProtocolconstitutestheidealinstrumenttopromoteandputintopracticeEcApinthecoastalzones.AchievingEOsandaGESrequiresanintegratedapproachinordertoaddresscombinedpressures
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andcumulativeimpactsinmarineandcoastalareas.ICZMprovidestheadequatetoolstoaddresstheseissuesincoastalzonesandpromotesconsensusamongallpartiesinvolvedintheuseofcoastalresources,whileMSPdoesthesameformarineareas.TheybothapplyStrategicEnvironmentalAssessment(SEA)andEnvironmentalImpactAssessment(EIA)andtakeintoaccountcumulativeimpactsthatcannotbeaddressedthroughsectoralapproachesandregulations.
TheecosystemapproachasaconceptfortheintegratedmanagementofMPAsensuresabalancebetweenequitableconservationandsustainableuseofcoastalandmarineresourcesinordertoachieveandmaintaintheconnectivitybetweentheterrestrialandmarinesideofthecoastalareaandbetweenMPAsandthesurroundingcoastalandmarinearea.SuccessfulintegrationofICZM-MSPandMPAsdependsonsustainedmanagementprocessesandprogramsthatwillproduceperceivedbenefitsandtangibleresultsfromthefieldthatcontributetoimprovedqualityoflifeandecosystemintegrity.Tothisend,ICZM-MSPisarelevantframeworktoinitiateandmaintainanopendialogue,involvingallthestakeholders,regardingtheidentificationofthreatsandopportunitiesaffectingthemanagementofMPAs.EcologicallycoherentnetworksofMPAswithinICZM-MSPapproachprovideaspatialmanagementtooltoprioritizebiodiversityconservationandensuremaintenanceandenhancementofenvironmentalgoodsandservices,whichareessentialobjectivesofICZMandMSP.
OnemuststressthefactthatICZMgoesbeyondtheGESofwaters(marineorsurface)andecosystems.Therefore,thereisaneedtoexpandtheEcAptoincludeadditionalobjectives(orjustindicatorsunderEO8)thatcouldbefocusedonachievingGESofthelandpartofthecoastalzone,inamannercorrespondingtorequirementsand/orspecificarticlesoftheICZMProtocol.
IdentificationofprocessesandcriteriaforintegrationoftheEcAp,ICZMandMSPisimportant.AsmentionedintheCFforMSP,therelationshipbetweenEcApandMSPisinfactatwo-wayrelation,asthesecondcancontributetotheoverallobjectiveofachievingtheGES,alsothroughtheidentificationofrelatedspatialmeasures.Suchplanningofmaritimeactivitycan:
§ reducemarine-basedsourceofpressureaffectingthemarineenvironmentthroughspatialefficiencyandcontroloftemporaldistributionofhumanactivities;
§ reduceconflictsbetweenmaritimeusesandprotectionofareaswithhighnaturalisticandecologicalrelevance;
§ identifyareastobeprotectedinordertopreserveprocessesandfunctionsthatareessentialinachievingtheGES;
§ identifyenvironmentalhotspotareasatseawheremoreintensemeasuresarenecessary;§ avoidunsustainableusesinprotectedareasandidentifysynergiesthatcanprovidewin-to-win
solutionsforsocio-economicdevelopmentandenvironmentalprotection;
§ identifyconnectingelementsamongrelevanthabitatsthroughbluecorridors.
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4. KeyissuesimportanttoMSPimplementationintheEasternMediterranean
MSPaimstoprevent,solve,oratleastlimit,bothcurrentandfutureconflictscausedbyhumanactivitiesaswellastotakeadvantagesofco-existenceofdifferentmaritimeactivitiesandopportunitiesofco-use/multi-useofthesamemarineareaandresources.ConflictsbetweenusesintheMediterraneanSeaarealreadycausingsignificantenvironmentalproblemsincludingoverexploitationoffishingresources,habitatdegradation,biodiversitylossandinsomeofitsareasenvironmentalpollution.
MainchallengesintheEasternMediterraneanarenotthatdifferentascomparedtothoseintheWesternMediterraneanasregardsMSP.BasedonInitialassessmentperformedbytheSUPREMEproject(SUPREME,2017),differencesinpracticebetweenthetwopartsofthebasinappearmostlyforthefollowingreasonscharacterisingtheEasternMediterraneancountries:
§ ThesouthernEuropeanMediterraneancountriesarenotallofthemmembersoftheEU;therefore,theydonotallsharethesocalled„acquiscommunautaire”(theaccumulatedlegislation,legalacts,andCourtdecisionswhichconstitutethebodyoftheEuropeanUnionlaw).
§ EasternMediterraneanEU-MSaremuchlesshomogenousthantheWesternMediterraneanEU-MSasregardstheireconomyandinstitutions.
§ Thereisnotfullgeographicalcontinuityand/orvicinitythatwouldalloworencourageEasternMediterraneancountriestotakejointventuresforthemarineenvironmentandspatialplanning.Yet,theyhaveagoodandlong-standingexperienceinsharingmethodologiesandnegotiatingregionalrelatedpoliciesthankstotheBarcelonaConventionsystemaswellasEUSAIR.
§ TheContinentalShelfofmostofthemisnotdelimitatedbyagreements(UNCLOS,Art.83).
§ EEZhasnotbeendeclaredsofarinmostoftheEasternMediterraneancountries.§ TherearedifferencesamongtheEasternMediterraneancountriesregardingavailabilityand
accessibilityofrelateddata.
ThesedifferencesaffectthewaythatthemajorissuesareexperiencedintheEasternMediterraneanandnottheissuesthemselves.ThemajoraspectsofMSPthatoccurinbothpartsoftheMediterraneanarefurtherelaboratedinthefollowingchapters.
4.1UNEnvironment/MAP’sEcosystemApproach
TheEcosystemApproach(EcAp)isanoverarchingprinciple,guidingtheimplementationofallpoliciesundertakenundertheauspicesofUNEnvironment/MAPBarcelonaConvention,withtheultimateobjectiveofachievingtheGoodEnvironmentalStatus(GES)oftheMediterraneanSeaandCoast.TheimplementationoftheEcosystemApproachRoadmap,asadoptedbytheBCCOP15DecisionIG.17/6,includingthroughtheadoptionofelevenecologicalobjectivesandcorrespondingGESdefinitions,targetsandindicatorsisinsynergywiththeEUMarineStrategyFrameworkDirective(MSFD),as
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mentionedalreadyinapreviouschapter.Also,theDirective2014/89/EUestablishingaframeworkforMSPclearlyrecallstheimportanceofapplyingtherequirementoftheecosystem-basedapproach(EBA),bothinthepreambleandunderthearticleprovisions,inlinewiththegoalsoftheMSFDaimingtoachievetheGESofEUmarinewaters.Atthesametime,thegoalsofMSFDandEcApmustbeanintegralpartofthestrategicobjectivesofMSP.MSPcanbeconsideredasoneofthetoolstoimplementtheEcAp/EBAasastrategicapproachtowardssustainabledevelopmentintheMediterraneanthatintegratesallofitsthreecomponents,i.e.environmental,socialandeconomicsustainability.MSPshouldguaranteethatthesecomponentsareinbalance.
4.2 LinkstoICZM
AlthoughMSPisnotanalyticallymentionedintheProtocolonICZMintheMediterranean(UNEnvironment/MAP/PAP,2008),itsconceptissomehowrecalledbythesamedocument(Art.2and3;alsoArt.5,6,10and11;seealsochapter3).ThescopeoftheICZMProtocolincludesthemarinearea,withinthelimitsoftheterritorialsea.Therefore,planningoftheseaspacecanbeconsideredaspartoftherequirementsofthelegallybindingICZMProtocol.
ICZMandMSPsharecommonprinciples,howevertheycanbedifferentprocesses,whichstillneedtobecoherentandcomplementary.ICZMcanbedefinedasadynamic,multi-disciplinaryanditerativeprocesstoimplementthesustainablemanagementofcoastalzones.Itstressestheneedforintegration/cooperationamongdifferentgovernancebodiesandpolicysectorsdealingwithandactiveonthecoast,aswellasforinformedparticipationandcooperationofallstakeholders.ThesamecouldbeappliedtoMSPaswell,asregardsthesustainablemanagementofthemarineareas.ICZMmayresultinstrategiesandmanagementplans,anditusuallyleadstotheallocationofspacetospecificactivitiesthroughspatialplanning,inthewaythatMSPdoesforthesea.
Land-seainteractionswerealwaysinthefocusofICZM.However,itsactivitiesinthepastwerefocusedpredominantly(butnotexclusively)onthelandpartofthecoasts.BytheadoptionoftheICZMProtocol,inclusionoftheterritorialseainICZMiscompulsory.MSP,ontheotherhand,doesnotextenditsremitfurtherinlandthanthehigh-watermark,althoughithastotakeland-seainteractionsintoconsideration,aswell.BothICZMandMSPneedafullrangeofprocesses(strategy,planning,management,accompanyingmeasures)andlinksamongthemselvestobeeffective.MSPfacesmoreuncertainties,sincewestillknowlessabouttheseasthanaboutthelandwherewelive,anditisamorecomplexissuegiventhatithastoprovideforthreelevels/dimensions(surface,watercolumnandseabed),thetimefactorbeingimportantforbothICZMandMSP.
Startingfromtheoverarchingprincipleofecosystem-basedapproach,consistencymustbeensuredintheimplementationofMSP,ICZMandMSFD.
4.3 Adaptiveapproach
ThevarietyofdefinitionsoftheMSPisreflectedbythevarietyofavailablemethodologies;i.e.thereisnotasingleapproachfittingtoallmarinecontextsandrespondingtoallstrategicobjectives.MSPshouldbeshapedandbasedonthespecificitiesofindividualmarineareasthatareconcretely
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approachedinitsimplementation.However,therearecommonstepsthatareconsideredinmostofMSPinitiativesandguidingdocuments.
ItiswidelyacknowledgedthatMSPisnotonlyconcernedwithminimisingconflictsbetweenon-goingactivitiesinagivenmaritimespace,butisactuallydesignedtoavoidsuchconflictstohappenanddevelopsynergies,inthefirstinstancebyanticipatingfuturedevelopments.MSPisclearlyafuture-orientedprocess,whichmusttakeinconsiderationpotentialfutureoptionsoftheevolutioninthemarinespaceinquestion,betheyeconomic,technicalorecological,strategicorexternallydriven,orshortorlongterm.Moreover,allexperienceshighlightthatMSPisnotalinearexercisebut(amongotherbecauseitisanewfieldwithahighdegreeofuncertaintyduetomissingknowledgeandexperience)itisaninteractiveprocessaimingtoperiodicallyadaptandimprovethemaritimespatialplansandtheprocessitself,learningfromthemonitoringandevaluation,understandingprosandconsofthepreviousstepsandcycles,andincorporatingintheprocessnewelementsandparametersemerginginfuturestages.Thisapproachmustbeintegratedfromtheoutsetintheplanningprocess,payingalsodueattentiontoworriesexpressedonseveraloccasionsintheEasternMediterraneanbystakeholdersasregardspossibleadditionaluncertaintiesforinvestments.
Theadaptiveapproachalsoenablesdealingwiththeuncertaintyrelatedtothefutureevolutionoftheconsideredmarineareaandthewidercontext,includingtheuncertaintyofclimatechangeeffects.
4.4 Cross-bordercooperationandmulti-scaleapproachtoMSP
AlthoughMSPcanbeseenprimarilyasacountry-basedprocess,cross-bordercooperationisessentialtoensurethattheplansarecoherentandcoordinatedacrossthecoastalzonesandthemarineregionsandthatdevelopmentinitiativesofonecountryarenotjeopardizingsustainabledevelopmentofneighbouringcountries.Thisimpliescooperationatthemethodological(commonmethods,dataandinformationsharing,toolssharing,MSPpracticesexchange,capacitybuilding),strategic(commonvision,sharedprinciplesandpossiblecommonobjectives)andimplementation(e.g.planningofmarineborderingareas,etc.)levels,totheextentpossible.
Moreover,itiswell-knownthataconsiderablenumberofproblemsandchallengeshaveatransboundarydimensionandmightrequiretheadoptionofacommonregionalorsub-regionalapproach.IntheEasternMediterranean,andingeneralintheentireMediterraneanBasin,aspecificgovernanceframeworkhasyettobefullydevelopedforpromotingandsupportingcross-borderandcross-sectorialMSP.Thismusttakeadvantageofexistinginitiatives,startingfromtheBarcelonaConventionframeworkfortheentireMediterranean,andalsoprofitingfromtheexisting(EUSAIR)andupcomingregionalstrategies.Forexample,MSPisclearlyacross-cuttingelementofallthe4pillars(BlueEconomy,Connectingtheregions,Environmentalquality,Sustainabletourism)oftheEUSAIRandtherelatedActionPlan.
DifferentscalesrequiredifferentMSPapproachesandprocesses,inparticularintermsofobjectives,vision/strategy,levelsofanalysis(assessmentofexistingconditions,stocktakingofcurrentmaritimeuses,developmentofscenarios,analysisofcurrentandfutureconflictsandsynergies,analysisofcurrentandfutureimpacts,elaborationoftheplan,etc.).MSPis,therefore,atypicalmulti-scaleprocess,thatneedstotakeintoaccountspecificcountryneedsinitsimplementation.
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4.5 Integration
MSPisacross-cuttingprocess,involvingallsectorsdealingwithmanagementanduseoftheseaanditsresources,andrequiringverticalandhorizontalcooperationamongdifferentinstitutions.EasternMediterraneanEUcountriesareintheprocessofdefiningtheinstitutionalandlegalframeworkrequiredforMSPimplementation.Althoughsignificantstepshavebeenmade,planningandmanagementofmaritimeactivitiesarestillsector-basedandcharacterisedbyfragmentedcompetencesandresponsibilities.Institutionalandlegalprocessesneedtobecontinuedandextendedinnon-EUcountriesofthesub-basin.
4.6 Stakeholderinvolvement
Properandeffectivestakeholderinvolvement(andcommitment,ultimately)shouldbeconsideredasakeyenablingfactorforMSP,inparticularinthevisioning,strategic,evaluation-revisionphases.AsitconstitutesoneofthesensitivepointsfortheimplementationofMSPinseveralEasternMediterraneancountries(eveninsomeEU-MS),existinginitiativesandplatformsforstakeholderinvolvementshouldbeanalysedtoassesswhethertheyareproperandsufficientmodelstobeappliedwithintheformalMSPprocess.Strengthsandweaknessesshouldbeconsequentlyhighlighted.Basedonthisanalysis,existinginitiativesandplatformsforstakeholderengagementshouldbereinforcedandbecomeacommonandinstitutionalisedprocess.Theultimategoalshouldgobeyondstakeholderinvolvementandpursuetheirrealengagement.
4.7 Project-basedinitiativesandMSPpractices
TheMediterraneancontextcanbenefitfromawidenumberofcross-borderprojectsfocusingonMSPorindirectlydealingwithrelatedaspects,eveniffewoftheminvolvenon-Europeancountries.Theproject-basedexperienceiswidefortheEasternMediterranean,andinparticularfortheAdriatic-Ionianregion(e.g.,SHAPE,PlanCoast,CONSTANCE,PEGASO,ADRIPLAN,Coconet,MESMA,MEDTRENDS,MED-IAMER,CO-EVOLVE,AMARE,SECURESEA,PavingtheRoadtoMSPintheMediterranean,etc.).However,uptakeofprojects’resultsbyformalMSPprocessesisstilllimited.
4.8 Dataavailabilityandaccessibility
Dataavailabilityisakeyenablingelementforaknowledge-based,transparentandconscious(e.g.ofuncertaintyandgaps)MSPprocess.SeveraldifferencesintermsofdataavailabilityoccurbetweennorthernandsouthernMediterraneancountries;geological,oceanographicandecologicalfeaturesofsouthernwatersarestillpoorlyknown.Moreover,ingeneralmostknowledgeisavailableformarineareasclosetothecoastline,whiledataonoffshoreareasislimitedorverylimited.UnderstandingtherealdatagapsthatmighthampertheMSPprocessisanimportantissue,notonlyintermsofspatialcoveragebutalsoinrelationtotimeseriesthatareessentialtounderstandevolutionofmarineandmaritimeprocesses.
Inadditiontodataavailabilityperse,ensuringtransparentandopenaccesstoaccurateandcompleteinformationiscertainlyimportantforboth,WesternandEasternMediterraneancountries.Thereisalso
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anobviousneedtoimprovedisseminationofinformationandcross-sectorialknowledge-basedpolicyandplan-making.Evidence-basedMSPrequiresharmonisedandup-to-datemarineandmaritimedata.Indeed,dataavailabilityandinteroprabilityarecross-cuttingelementswhichassumerelevanceforotherissuesaswell,e.g.cross-bordercooperation,stakeholderinvolvement,verticalandhorizontalcooperationandcoordinationwithinacountry.
4.9 SpecificissuesidentifiedwithintheInitialAssessment
Inadditiontotheaboveoverallconsiderations,andthoughoperationalexperienceinMSPinthispartoftheBasinisstilllimited,thefollowingspecifickeyissuesfortheEasternMediterraneanarehighlightedinthe(provisional)countryfactsheetsoftheInitialAssessment(SUPREME,2017):
4.9.1Typesofconflicts–Potentialforsynergies
IntheEasternMediterranean,coastalandmarineareasaresubjecttomanypressuresbecauseofthehighconcentrationofhumanactivitiesandland-usetypes(whichareoftenincompatiblewiththenaturallandscape).
Twomajortypesofconflictsareoccurring:
§ conflictsbetweenhumanusesandthemarineenvironment(user-environmentconflicts),whichinsomecountriesarethepredominanttype;and
§ conflictsamonghumanuses(user-userconflicts)claimingthesamespaceornaturalresourcesandseekingprofit–inmostofthecases,ontheexpensesoftheenvironment.
ThissituationhighlightstheimportanceofMSPastheappropriatetooltoprovidesustainableandintegratedsolutions.ItisinterestingtonotethatthelegislationofsomeoftheEasternMediterraneancountries(likeCroatia,Greece,Slovenia)foreseesalreadythatspatialplanningreferstoboth:landandsea.Spatialplansmusttakeintoaccountregionalpoliciesaswelltrendsthatmightcausepotentialincreasesincoastalconflictsduetothedevelopmentofsomekeysectors(e.g.aquaculture,coastaltourismandenergy)orthedeclineofothers(e.g.intensivefisheries).
Atthesametime,inEasternMediterraneantherehavebeenafewcasesofreportedsynergies:e.g.,fishingforlitter&fishingactivities(Croatia,Slovenia);timelyaddressingthepotentialconflictbetweenmaricultureandothercoastalsectorsinZadarCountybyzoningforeseeninaspatialplan(Croatia).Theimportanceofmobilisingstakeholderstocooperateamongthemselvesforwin-winsolutionshasbeenunderlinedonseveraloccasions.
Additionalpossibilitiesofcomprehensivesolutionsatsub-regionallevelareofferedinthecontextoftheAdriatic-IonianMarco-regionStrategyInitiative(EUSAIR).
4.9.2Governance–Institutionalissues
TheEUMSPDirectivehastriggeredchangesanddevelopmentinthisfield.ThreeEasternMediterraneanEUMShavealreadycompletedthetranspositionprocess(Croatia,CyprusandItaly),one(Slovenia)
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considersthattheDirectiveprovisionsarecoveredbypreviouslyexistingnationallegislation,onemore(Greece)hasdraftedthelawneededbutithasnotyetbeenapprovedbytheirrespectiveParliament.
AlmostallEasternMediterraneanEUcountrieshavereportedinoneortheotherwaythatpoliciesappliedarefragmentary,aswellastheactionsofthedifferentsectoralauthorities,whilethereareoftenbureaucraticbehaviours.MSPcouldprovideaplatformforlong-termstrategicvisioning,in-timereactionstovariousMSPrelatedchallengesandpossiblesynergies.
Somecountriesexpressedtheviewthattheissuesrelatedtothemaritimeplanningshouldbefocusedondevelopmentofthecomprehensiveandcoherentlongterm,multi-levelandcross-sectoralgovernancestructures.Infact,puttinginplaceappropriatecooperationschemesandconsultation/participationprocessesisaprerequisitetoensurecoordination,consensusandsynergies.
Itisworthytonotethat,intheprocessoftransposition,ItalyhassetoutaTechnicalCommittee,chairedbytheMinistryofInfrastructureandTransport(asaCompetentAuthority)andcomposedofrepresentativesoftheMinistriesinvolved.Itoverseestheelaborationofthemaritimespatialplansforeachmarinesub-region,inaccordancetotheguidelinestobedevelopedbytheInter-MinisterialCoordinationTableforMaritimeSpatialPlanningsetoutbyaLegislativeDecree.Maritimespatialplansforeachmarinesub-regionwillbeapprovedbytheInter-MinisterialCoordinationTableforMaritimeSpatialPlanningby31December2020.TheInter-MinisterialCoordinationTableforMaritimeSpatialPlanningmonitorsandevaluatesthecompatibilityandcomplementaritybetween:
a) theplanningprocessasdefinedwithintheguidelines;and
b) themaritimespatialplansdevelopedbytheTechnicalCommittee.
4.9.3Transboundarycooperation
Maintransboundaryissuesincludesectorslikemaritimetourism,transportation,energyproduction,fishingactivities,andextractionofnon-livingresources.Also,severaltransboundaryissuesarerelatedtoadministrativeandcooperationsector.
Themostimportanttrans-boundaryissuesandconcernsforCroatia,Greece,ItalyandSloveniaaresummarisedinTable4.
MostoftheEasternMediterraneancountrieshavealreadyagreementssignedandexperienceofcooperationwithsomeoralltheirneighbours.Yet,therearestillinsomepartsofthesub-regionpendingissuesandsensitiveareascausingdisputesandcallingforsolutions.ThecontinentalshelfofsomecountrieshasnotbeendelimitatedbyagreementsandmostofthecountrieshavenotyetproclaimedanEEZ(seeChapter3.2.2).Withallduerespecttothedifficultiesandfullyrecognisingthattheseissuesaretoberesolvedindifferentcontexts,onecannotavoidpointingoutthatafutureproclamationoftheirEEZbytheEasternMediterraneancountrieswouldfacilitateconsiderablytransboundarycooperationontechnicalissuesandimplementationoftheMSPDirective.
Moreover,althoughnotdirectlypertinenttoMSP,theprocessofmaritimespatialplanningintheMediterraneanwillhavetotakeintoconsiderationtheurgentneedforcooperationinthesectorofsafetyatsea,havingadditionalcharacteristicstheselastyearsduetothepresentmigrationandrefugees’crisis.
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Table4:Transboundaryissues,asreportedintheInitialAssessment.Source:(SUPREME,2017)
ItalyMaintransboundaryissuesincludesectorslike:§ maritimetourism;§ transportation;§ shipping;§ energyproduction;§ fishingactivities;and§ extractionofnon-livingresources.
Greece§ Definitionoflimits/borders(international,
national,administrativeetc),sothatjurisdictionsinthemarinespacecanbecomeclear;
§ Continuityandcompatibilityofspatialplansincrossborderareas;
§ Internationalenergynetworksandmaritimetransportationnetworks;
§ Pollutionderivingfromeconomicactivities(andtechnologicaldisastersrelatedtothem),spreadinginanunpredictablewaytowardsalldirections,duetothenatureofthesea;
§ Resourceoverexploitation(oflivingornon-livingorganisms)resultinginterritorialinequalitiesamongcrossborderareasandprofessionals;
§ Inefficientecosystemreservation:resultingingreatlossofecosystemservices,affectingallsides.
CroatiaThemostimportanttrans-boundaryissuesandconcernsareenvironmentaleffectsof:§ agriculture;§ industry;§ shipping;§ fisheries;§ tourismandtransportationofoilvessels.
Slovenia§ Maritimetransport(ballastwaters,underwater
noise);§ Marinelitter.
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5. SUPREMEproposalsontheintegrationofprinciplesoftheBarcelonaConventionfortheMSPimplementation
TakingintoconsiderationsrecentinitiativesamongCPswithintheframeworkofBarcelonaConventionsystem,itisclearthattheMSPactivitiesintheMediterraneanshouldbeimplementedinthelightoftheBarcelonaConvention’smainobjectives,whichareto(UNEnvironment/MAP,2015):
§ ensuresustainablemanagementofnaturalmarineandcoastalresources;
§ integratetheenvironmentinsocialandeconomicdevelopment;§ protectthemarineenvironmentandcoastalzonesthroughpreventionandreductionof
pollution,andasfaraspossible,eliminationofpollution,whetherlandorsea-based;
§ protectthenaturalandculturalheritage;§ strengthensolidarityamongMediterraneancoastalStates;§ contributetoimprovementofthequalityoflife.
Figure4:KeyissuescomposingacommonframeforMSPimplementation
intheEasternMediterraneansub-basin
EightkeyissuesrelevantforMSPimplementationintheEasternMediterraneanhavebeenidentifiedanddescribedinchapter4.ProposalsforimplementationofMSPintheframeoftheBarcelonaConventionareillustratedbelowforeachoftheeightissues.AnadditionalissuedealingwithprocessesandtoolsfortheassessmentofenvironmentaleffectsoftheMSPplanisalsoconsidered,includingspecificproposalsforitsimplementation.Theentiresetofproposalshasbeendevelopedconsidering
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alsothespecificinputprovidedbytheInitialAssessmentperformedwithintheSUPREMEprojectandsummarisedinparagraph4.9.TheseproposalsarefullyinlinewiththeConceptualFrameworkforMSP,adoptedatCOP20(Tirana,2017).IdentifiedproposalsarespecificallymeanttoinformSUPREMEprojectandinvolvedpartnersonpossibleapproachestowardsimplementationofMSPintheframeworkofBC.Althoughtheimportanceofeachspecificissuemayvaryfromlocationtolocation,allofthemareconsideredrelevantfortheimplementationofMSPinEasternMediterranean.Indeed,theyaremutuallyinterrelated(Figure4above).SUPREMEcasestudiescouldtestasub-setoftheidentifiedproposals,focusingonthoseapplicableatcasestudyscaleandmorerelevantforthespecificcharacteristicsofthecasestudygeographicarea.
5.1UNEnvironment/MAP’sEcosystemApproach
IntheMediterranean,ecosystemapproach(EcAp;orEBAaccordingthelanguageoftheMSFDandtheMSPDirective)istheoverarchingguidingprincipletoallpolicyimplementationanddevelopmentundertakenundertheauspicesofUNEnvironment/MAPBarcelonaConvention.Therefore,EcAp/EBAshouldguideMSPimplementationintheEasternMediterranean,too.
Morepragmatically,EcApcanbereflectedinMSPatthreestages(MourmourisA.etal.,PAP/RAC,2016):
§ Whendefiningtheareatobemanaged,byensuringtheintegrityofecosystemsandthenecessarybufferzonesandcorridors;
§ WhencontributingtoGES,byensuringcompatibilityoflocatedlandandseausesandlimitsofallowedpressures,aswellasobservingtherespectiveGESdescriptorsandindicators;
§ WhenapplyingEcosystem-BasedManagement(EBM),byrespectingecosystemsdiversityandconnections,evaluatingecosystemsservices,addressingcumulativeimpacts,assessingtrade-offs,applyingadaptivemanagement,networkingandusingappropriatetoolsandmeasures.
Tothisend,EcApindicatorsalreadyapprovedbytheCPsshouldbeusedattheappropriatestages.
ThiscanimplythefollowingspecificproposalsinordertosupporttheMSPimplementation:
§ EstablishclearlinksbetweenMSPobjectivesandecologicalobjectives,targetsandindicatorsdefinedwithinEcApandMSFDimplementationprocesses,alsoapproachingtheissueinacross-borderperspectiveatthescaleoftheentireEasternMediterranean,asfaraspossible.
§ Asfaraspossible,delimittheplanningandmanagementareainordertofacilitatetheassessmentandmanagementofthetwomajortypesofconflictsidentified:conflictsbetweenhumanusesandthemarineenvironment(user-environmentconflicts)andconflictsamonghumanuses(user-userconflicts).ApplicationofEcApdoesnotstopatsea,itinvolveslandtoo.TakingEcApinconsiderationintheMSPprocessalsoimpliesastrongfocusonland-seainteractions(LSI)andinparticularoninteractionsamongterrestrialandmarineecosystems,habitatsandspecies.
§ ConsiderinthefutureMSPplans,thebestavailablescientificknowledgeabouttheecosystemanditsdynamics,andassessmajorinformationgapsandrelateduncertainties.
§ Togetherwithmapsofmaritimeuses,producemapsofkeydescriptorsoftheecosystemandenvironmentalstatusofthesea.Usethesemapsintheplanningprocessofmaritimeusesto:
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analyseconflictswithenvironmentalprotectiongoals,identifymarineareastobepreservedandprotected,andoptimizespaceallocationformaritimeuses.
§ Identifyandpossiblymap(basedondataavailability)theecosystemservicesprovidedbythemarineareaandassesshowtheysupportmaritimeactivities.
§ Evaluateimpactsofhumanactivitiesontheecosystem,as:directandindirect,cumulative,shortandlong-term,permanentandtemporary,positiveandnegativeeffects,alsotakingland-seainteractioninconsideration.
5.2 LinkstoICZM
MSPandICZMshouldbelinkedasmuchaspossible,andinanycaseshouldbeconsistentandcomplementary,sincetheybothseektoaddresstheproblemsoffragmentedgovernanceincoastalandmarineareasandsharesimilarprinciples,e.g.thesustainablemanagementanddevelopmentofcoastal-marineareas,thesustainableuseofmarineresources,theimportanceofstakeholderparticipation,etc.CoordinatedimplementationofMSPandICZMshouldbeensured,includingreferencetoEcAp.Theymayworktogetherinaddressingcommonissuesaslocalsocio-economicdevelopmentofcoastalcommunitiesornatureprotectionacrossland-sea.
ThereisanevidentoverlappingofthepotentialgeographicalscopeofICZM(asdefinedbytheProtocolonICZMintheMediterranean)andMSP(asdefinedbytheDirective2014/89/EU):bothincludeterritorialsea.Inthisperspective,MSPcanbeconsideredthemaintool/processfortheimplementationofICZMinthemarinepartofthecoastalzone,alsotoavoidthisoverlappingbecominganobstacle.Asarguedinchapter3,itshouldbestressedagainthattheapplicationofMSP,withintheframeworkandthegeographicscopeoftheICZMProtocol,canandshouldcontributetothegoalsdefinedbyotherProtocolsoftheBarcelonaConvention,asinthecaseofidentification,planningandmanagementofprotectedareasaccordingtotheSPA/BDProtocol.MSPshouldalsoconsidertargets,actionsandmeasuressetbyActionPlansmentionedinBox2thathaveanimpactontheactivitiesundertakenatsea.
OverallitshouldbehighlightedthattheconsiderationsonthepropermethodofintegrationbetweenICZMandMSPwillbeafundamentalpartoftheactivitiestobecarriedoutinthebiennium2018-2019,duringtheprocessofdefinitionoftheCommonRegionalFrameworkonICZMandoftheConceptualFrameworkforMSP.
Understandingandaddressingland-seainteractions(LSI)iscrucialtoensuresustainablemanagementanddevelopmentofcoastalareasandcoherentplanningoflandandsea-basedactivities.LSIshouldbetakenonboardwhendealingwithMSP,takingintoconsiderationthetwomaintypologiesofinteractions:interactionsrelatedtoland-seanaturalprocessesandinteractionsamonglandandseausesandactivities.Otherrelevantaspects,whichneedtobemanagedandbalancedwhendealingwithLSI,areinteractionsamongpeople(tradition,culture,expertise,education,etc.)andinteractionsofplanningprocessesandplans(andresponsibleinstitutions)forlandandseaareas.CategorizationofLSIelementscanhelpinstructuringproblemsunderstanding,howeveranintegratedperspectiveisrequiredtoaddressallaspectsofLSI.TemporaldynamicofinteractionsisanotherimportantaspecttobetakenonboardinMSP;thisisparticularlyrelevantwhendealingwithnaturalprocessesacrossthecoastinterface.
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5.3 Adaptiveapproach
MSPshouldbeafuture-orientedprocessandshouldbebasedonanadaptiveapproach.Analysisofalternativeoptionsoffuturedevelopmentofthemarineareainquestionandrelatedeffectsonplanningofmarineandmaritimeactivities(includingminimisationofconflictsandcapitalizationofsynergies)areessentialcomponentoftheMSPprocess.Moreover,monitoring,evaluation(alsousingperformanceandresultindicators)andrevisionstepsshouldbepartoftheprocesssinceitsbeginning.ThisimpliesthefollowingsuggestionsfortheMSPimplementation:
§ Promoteactiveadaptivemanagement,whichincludestheevaluationandcomparisonofalternativehypothesis(basedonforecasts,scenarios,differentvisionsandstrategicelements)aboutthefutureevolutionoftheconsideredmarinearea.ActiveadaptivemanagementcanbeveryusefulwhenstrategiesandplansforfuturedevelopmentofsectorsaffectedbyMSParenotdefinedorknown,thusenablingtomanageuncertaintyofthefuture.
§ Developprocess(alsoknownasgovernance)indicatorsaimedatevaluatingtheMSPprocesscompletenessandefficiency.
§ DevelopoutputandimpactindicatorslinkedtoclearobjectivesoftheMSPprocess.Theindicatordevelopmentprocessincludesthedefinitionof:sourcesofinformation,includingtheanalysisofdatacoverageandgaps;baselines;andtargetvalues.ItisimportantfocusingonthoseindicatorswhoseevolutiondependsdirectlyontheMSPPlanimplementation.OtherindicatorswhichdonotfollowwithinthedirectcontrolofMSPauthoritiesmightbeusefultodepicttheoverallcontext.
§ Inanycase,thesystemof(process,outputandimpact)indicatorsunderpinningtheadaptiveapproachshouldbetransparenttoallowproperstakeholderinvolvement,alsointheevaluationphaseoftheMSPplan.
§ Adoptamedium/long-termperspectivetoproperlydealwiththestrategicnatureofMSPandallowtoplaninananticipatorymanner,implement,adaptandplanactionsagainoveraperiodlongenoughtogetconcreteresults.
§ ClimatechangeandrelateduncertaintiesshouldbeconsideredintheMSPprocessandmainstreamedintheMSPplans.Thisimpliestotakeintoaccount:
i) theassessmentofclimatechangeimpactsonthemarineecosystemandresources;ii) theevaluationofclimatechangevulnerabilityofcurrentandfuturehumanactivities;iii)thepossibleinclusionofmitigationactionsintotheMSPplan;and
iv)theidentificationofspecificactionsaimingtoimprovetheadaptationcapacityoftheplanandthespecificmeasuresitincludes.
5.4 Cross-bordercooperationandmulti-scaleapproachtoMSP
MSPshouldbeapproachedatdifferentscales(fromtheMediterraneanBasintosub-nationallevel),combiningtop-downandbottom-upapproaches(andastrategicphasewithoperationalapplications):
§ Mediterraneanscaleaddressingtheentireseabasinthroughcooperationamongcountries(boththeEUandnon-EUMemberStates,totheextentpossible)intheframeoftheBarcelonaConventiontoapproachthestrategiclevelofMSP,including:§ Identificationofelementsforacommonvisionandrelatedobjectives;
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§ Identificationofpriorityareas(e.g.NorthernAdriaticSea,SouthernAdriaticandOtrantochannel,AegeanSea)affectedbytransboundaryproblems;
§ IdentificationofproblemstobeapproachedalsothroughMSPinatransboundarydimension,forexample:managementofinternationalmaritimetransport,sustainablemanagementoffisheryactivitiesandfishingresources,biodiversityprotectionandecosystempreservation,regulatedextractionofnon-livingresources,marinepollution(derivingfrombothland-andsea-basedsources),reductionofriskofshipcollisionsandenvironmentalaccidents;
§ Identificationofinitiatives(e.g.projects)toaddresstransboundaryareasandissues.
Overall,transboundarycooperationamongCPsintheframeworkoftheBarcelonaConventionisfundamentalinordertoaddressMSPintheMediterraneanSeaatstrategiclevel.
§ Sub-regionalscale–whererelevantandpossible–approachingtransboundaryMSPissues(elementsforacommonvision,objectives,prioritiesandinitiatives)insub-Mediterraneanregions(theentireEasternMediterraneanormorelikelysomeofitssub-areas:Adriatic,Ionian,AegeanandLevantineSeas),alsolinkingtosub-regionalstrategiesandplans(EUSAIRinparticular)forcoordinatedimplementation.BoththeMediterraneanandsub-basinaretheproperscalestostartthepossibleapproaching,planningandmanagementofABNJ,beingawareofthecomplexityoftheissue.
§ Nationalscale,fullyimplementingtheMSPprocess–accordingtocommonprinciplesandcoherentlywiththeregionalandsub-regionalapproaches–inmarineareasfallingwithinnationaljurisdiction.
§ Sub-nationalandlocalscales,fosteringMSPapplicationsaimingtoprovideevidenceofconcreteandvisibleenvironmental,socialandeconomicbenefitsofMSP,alsothroughpilotprojects.Activitiesatthesub-nationaland/orlocalscaleshouldalsoconsiderfocusesonpriority(hot-spot)areas,suchas:highlyvulnerableareas,areaswithmajorconflictsamonguses,areaswithhighpotentialforsynergiesamongusesandmulti-useopportunities.
Multi-scaleapproachcouldbereflectedinamulti-governancesystemforMSP,includingacoordinationmechanismattheMediterraneanlevel(e.g.usingandadaptingtheexperienceoftheHelcom-VASABMSPWorkingGroupcreatedfortheBalticSea),withintheframeprovidedbytheBarcelonaConvention16,and,ifneeded,atthescaleofspecificsub-regions,asinparticulartheAdriatic-IonianRegion,takingadvantageofthewell-establishedcooperationintheareaandprofitingfromtheEUSAIRInitiative.
5.5 Integration
Effortstoidentify,strengthenand/orempowermechanismsforhorizontalandverticalcoordinationonMSPatthecountrylevelshouldcontinueandbeimproved.Reinforcedcoordinationshouldconsiderthefollowingaspects:
§ Defineclearlyresponsibilities,aswellasthedecisionmakingandtheconsultation/participatoryprocesses.Inthisrespect,itisnecessarytomapthedifferent(national,sub-nationalandlocal)authoritiesinvolvedintheprocessandclarifyrespectivecompetences.
16TakingintoaccountthatintheMediterraneannotallthecountriesareMemberStatesoftheEU(thuswithcomparablelegislation),butallarePartiesoftheBarcelonaConvention,whichisaninternationallegalinstrumentandthereforelessbindingthantheEUlaw.
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§ Support/strengthenestablishmentofecosystem-basedgovernancesetting,enablingintegrationofconcernsandinterestsacrosssectors,governmentallevelsandstakeholders.
§ TheintegrationofsectoralpoliciesandobjectivesinasinglecomprehensiveintegratedMSPprocessandplan.Integrationamongsectorsisneededtogobeyondsectorpolicies,plansandregulations.
§ MSPshouldprovideaplatformforlong-termstrategicvisioning,whichstrictlyreliesonvertical,horizontalandcross-sectorintegrationandisanessentialelementinfluencingtheentireMSPprocess.
§ Encouragegradualchangeofbehaviourinawin-winperspective,atalllevels.BesideswithintheoverallMSPprocess(seesection5.6),stakeholderscouldbemobilisedtoimprovecooperationonspecificaspectsaimingtodevelopsynergiesandwin-wininitiatives,asforexampledevelopmentofsustainableformsoftourisminmarineprotectedareasalsoprovidingeconomicresourcesformonitoringandenvironmentalprotectionactivitiesorfishingforlitterinitiativesinvolvingfishermen.
§ Placeparticularattentiontosecureintegrationofplanningandmanagementoftheseaandlandcomponentsofthecoastalarea(land-seaintegration).
5.6 Stakeholdersinvolvement
Existingstakeholderinvolvementinitiativesorplatformshouldbereinforcedandbecomecommonandformalisedpracticesratherthanastand-aloneexperience.Incaseofmajorgapsandweakness,newinitiativesshouldbeputinplace.Improvingstakeholderinvolvementandencouragingtheirfutureengagementshouldimply:
§ EstablishmentofsubstantiallinkstotheMSPprocess;§ Involvementoflegitimatestakeholdersrepresentingallrelevantcategories(publicauthoritiesat
differentlevels,researchinstitutions,civilsociety,businesssectors,etc.);§ Involvementofkeyactorsofrelevantcategoriesthatcanreallycontributetothevarioussteps
oftheMSPprocess;§ Visibilityoftherealadded-valueoftheinvolvementprocess;§ Transparent,openandinclusiveinformationsharing;
§ Coherencewithotherinvolvementprocesses(e.g.ICZM,SEA,EcAporMSFD)alsotoavoidexcessivepressureonthesamestakeholderarena,orunnecessaryoverloadonthecoordinatingauthorities.
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5.7 Project-basedinitiativesandMSPpractices
UptakeofvaluableprojectresultsbyformalMSPprocessesshouldbestrengthenedtocapitalizedevelopedknowledgeandtools.Thiscanimply:
§ IdentifyknowledgegapsandneedsofformalMSPprocessesintheEasternMediterraneantofurtherdevelopingcross-borderMSP-relatedprojects,progressivelybuildingonpreviousprojects’resultsasexperiencedintheAdriatic-Ionianregion(PlanCoast,SHAPE,Adriplan,andSUPREME).Usethisprojects’chaintodeliverknowledge,tools,methodologies,andcontentsusefulfortheformalMSPprocesses.
§ ImproveuptakeofprojectresultsandoutputsbyformalMSPprocesses,e.g.throughdedicatedworkshops,directsupportfromprojecttoformalMSPprocesses,identification,descriptionandsharingofMSPpractices(tools,guidelines,methodologies,pilotplans,studies,etc.).
§ StrengthenlinkswiththeEUMSPPlatform,aimingtosupportEUcountriesinimplementingtheMSPDirective,primarilybysharingknowledgeandpractices.Mechanismstoimprovetransferofknowledgeandpracticesshouldbereinforced.
§ Improveinvolvementofnon-EUcountriesinMSP-relatedprojectstostrengthenexchangesofgoodpracticeandmutualcapacitybuildingandtofosterMSPprocessesinsuchcountries.
5.8 Dataavailabilityandaccessibility
Dataavailabilityandaccessibilityarekeyenablingelementsforaknowledge-based,transparentandconsciousprocessofmarinespaceplanning.However,effortsondatagatheringshouldbeproperlytargetedonrealMSPneedstoavoidtheprocesstakingtoomuchtimeandusingtoomanyresources.Suggestionsforthisissueare:
§ IdentifythespecificgapsthatmighthamperMSPandthatrequirespecificactions.Somespecificknowledgeareasmightmeritparticularattention,asforexampleuseofsocio-economicdataintheMSPprocessthatstillneedimprovement,indeednotonlyintheEasternMediterranean.Informationgaprelatedtofishstockandfisheryimpactisanotherexample.The2017MediterraneanQualityStatusReportcanbeanimportantsourceofinformationhighlightingkeydatagapsinrelationtoallthe11EcApEcologicalObjectivesandindicators.
§ Focusonthecollectionofdataandinformation,whicharereallyessentialforMSP.Dataiscrucial.Theupdatingprocessofthenationalmonitoringandassessmentprogrammeswhichisinprogress,inlinewithIMAP,willsignificantlycontributetothecollectionandreportingofquality-assuredandregionallycomparabledata.
§ Takeintoconsiderationanyformof„goodquality”knowledge.Thiscomesprimarilyfromscientificsourcesandinstitutionalizedmonitoringactivitiesanddatasets,butshouldalsocapitalizeprivatesourcesofdataand,whereappropriate,utilisationofcitizenscience.QualitycheckofdataandinformationusedintheMSPprocessmustbehoweverensured,inparticularregardingtheformalMSPprocess,whichrequiredformalandvalidateddata.Datavalidationcouldalsoberequired,dependingonthecontext.Involvementoflegitimatestakeholdercanhelpinsharinggoodsourcesofdata.
§ Improvetransparentaccesstoaccurateandcompleteinformation.Harmonizationandup-datingofrelevantdataandinformationareneeded,tobothsupportingcross-bordercooperationandvertical-horizontalcoordinationwithincountries.
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§ Movefromdataandknowledgetoinformationreallyusefulfortheplanninganddecision-makingprocessrequiredbyMSP.Spatial-basedtoolsareparticularlyusefultothisend.AnumberoftoolsarealreadyavailableandhavebeenappliedintheMediterraneanandothermarineregions;theiruseneedstobecomemoreoperationalandwidelydiffusedamongplannersinvolvedinformalMSPprocesses.Acloserandinteractivecollaborationbetweenplannersandscientistsisrequired.Othertoolsshouldbefurtherdeveloped,alsotoaddressfuturechallengesandinordertocomeagainsttheplanningneedsofdecisionmakers.Forexample,regardingfuturechallenges,couldbeusefulthedevelopmentoftoolstoselectappropriatesitesforoffshorerenewableenergyinstallationsorforpropersitingofoffshoreaquaculturefarms.
§ Create/strengthenplatforms(SDI,Web-portal,etc.)toenabledata/information/toolsharingandaccessibility,i.e.MSPdataplatformsatthecountryandbasin/sub-basinscale,capitalizingexistingexperiencesattheMediterraneanlevel(e.g.SDIMEDgeoportalorPEGASOSDI)orinspecificsub-region(SHAPEAtlasandADRIPLANdataportalfortheAdriatic-Ionianregion).MarineandmaritimedatasharingneedtobeoptimisedacrossthetwoshoresoftheEasternMediterraneansub-basin.
§ Ensurethattheseplatformsalsocontainlanddataorareintegratedwithotherplatformscontaininglanddata,toproperlysupportLSIanalysis.
5.9 ToolsforEnvironmentalassessmentofMSP
StrategicEnvironmentalAssessment(SEA)isanimportantintegralpartofthepreparationoftheMSPplan,providingamechanismforthestrategicconsiderationofenvironmentaleffectsoftheplan,assessmentofdifferentplanningalternativesandidentificationandevaluationofmitigationmeasures.SEAisanimportanttoolforimplementingEcApinMSPasitprovidesaframingfortheevaluationofeffectsonspecies,habitatsandecosystems.ItfollowsthatSEAisaprocesstobeimplementedincloseconnectionandinparalleltotheMSPplanelaboration,asitshouldbeusedtoensuretheplanenvironmentalsustainability.Indeed,SEAaimstoprovideclearinputtotheMSPplan.Tothisend,theSEAprocessshouldstartattheverybeginningoftheMSPprocessandthetwoshouldbeimplementedinaninteractivemanner.
TheSEAprocessincludesthepreparationofanenvironmentalreport,thecarryingoutofpublicconsultations,thetakingintoaccountoftheenvironmentalreportandtheresultsoftheconsultationsindecision-makingandtheprovisionofinformationonthedecision.ThefollowingelementsshouldbeconsideredwhenimplementingSEA:
§ Actualavailabilityofknowledgeandmethodsofassessment,focusingonreallyneededinformationandhighlightingcriticalgaps.
§ AvailabilityandactualapplicabilityofoperationaltoolsthatcansupportSEAimplementationduringtheMSPprocess,asforexample:cumulativeimpacttool,conflictanalysistools,checklisttoolbox,guidelines,modeltoanalysespatialdistributionofmaritimeactivatesandrelatedeffects,etc.
§ ContentandlevelofdetailintheMSPplan,thatshouldenablethelevelofenvironmentalassessmentrequired.
§ Stageinthedecision-makingprocessrelatedtotheMSPplan.
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§ Interestofthepublic,ensuringproperconsultationwithintheSEAprocess,coherentlyandincoordinationwithstakeholderengagementfortheMSPplanelaboration.
§ Relatedtopreviouspoints,theextenttowhichcertainmattersaremoreappropriatelyassessedwithinamoredetailedEnvironmentalImpactAssessment(EIA),whichisoftenrequiredforthelicensingofspecificprojectsadactivitiesafteraMarineSpatialPlanhasenteredintoforce.SEAhasanimportantroleinguidingEIAsbecausethechallengesinreconcilingissuesattheEIAscalerequireamorestrategicapproach.
Atgenerallevel,twomoreaspectsshouldbestressed:
§ AtransboundarySEAprocess,includingtransboundaryconsultation,shouldbeactivatedwhentheimplementationofaMSPplanisexpectedtohavesignificanttrans-boundaryenvironmentaleffects.
§ SEAshouldnotonlyassessimpactonthesea,butconsideralsoimpactsofmaritimeactivitiesonland,basedonmostrelevantLSIidentified.
ForEUMemberStates,itisworthpointingoutthatanyMSPplanlikelytohaveasignificanteffectonaNatura2000siteshallundergoanappropriateassessmenttodetermineitsimplicationsforthesite,andspecificallythehabitatsandspeciesithosts.
Addressingalloftheabove-mentionedproposalsshouldalsobedonetakingintoconsiderationsothermethodologicalguidelinesoftheSUPREMEproject,inparticular„MethodologyfortransboundaryMSPaspects”.
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This document was prepared by the Priority Actions Programme Regional Activity Centre (PAP/RAC) in the framework of the project “Supporting Maritime Spatial Planning in the Eastern Mediterranean“ (SUPREME).
PAP/RAC is established in 1977 in Split, Croatia, as a part of the UN Environment Mediterranean Action Plan (UN Environment/ MAP). PAP/RAC’s mandate is to provide assistance to support Mediterranean countries in the implementation of the Barcelona Convention and its Protocols, and in particular of the Protocol on Integrated Coastal Zone Management in the Mediterranean. PAP/RAC is oriented towards carrying out the activities contributing to sustainable development of coastal zones and strengthening capacities for their implementation. Thereby, it co-operates with national, regional and local authorities, as well as with a large number of international organisations and institutions.
Following the emerging need to introduce MSP in the entire Mediterranean Region, the 20th Meeting of the Contracting Parties to the Barcelona Convention (COP 20, Tirana, Albania, 2017) adopted the Conceptual Framework for Marine Spatial Planning. Therefore, MSP was introduced within the Barcelona Convention System, as the main tool/process for the implementation of ICZM in the marine part of the coastal zone, thus contributing to the balance between environmental, social and economic dimensions of sustainable development.