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Lecture on policy aspects of MSFD 20120912
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Transcript of Lecture on policy aspects of MSFD 20120912
Policy aspects of the Marine Strategy Framework Directive (MSFD)
Martin PastoorsHKZ17, 12 September 2012
Marine Strategy Framework Directive is going to come
MSFD is a complex policy
Understanding policy aspects & institutional ambiguity
Three topics
Context of the Marine Strategy Framework Directive
Marine Policy in Europe
Regional approaches and coordination
Marine Policy in Europa
European Institutions
Council of Ministers
European Commission
European Parliament
Court of Justice
Council of Ministers: (co-) decides on legislation
European parliament (EP): co-legislator, control function
736 members from 27 countries (2014: 751 members)8 political delegations
Court of Justice: Legal ruling over EU laws
European Commission (EC)
• Proposals for legal acts• Implementing EU policy and laws• Representing EU
EC directorates related to the sea
Complex decisionmaking
DGsDGsDGs
Committees
Member States
Regions
European Commission
European Council
Court of Justice
European Parliament
Regional Conventions
Global treaties
NGOs
Sectors (industry)
Research
Marine policy domains
Integrated Maritime Policy
(IMP)
Common Fisheries Policy
(CFP)
Marine Strategy Framework
Directive (MSFD)
Natura2000
Transport Energy Regions Labour conditions
Spatial planning
Water Framework Directive
Integrated Maritime Policy (IMP)
• DG MARE ‘Communication’• Vision, not law• “policy framework that will allow
for the optimal development of all sea-related activities in a sustainable manner”
• Action: marine spatial planning, coordinating research, ...
• No direct effects on Member States
Common Fisheries Policy (CFP)
• DG MARE ‘Regulation’• EU competentence• GVB 1982, 1992, 2002, 2012 (?)• Aim: sustainable fisheries• Member States implement EU
policy• Pillars
– Conservation– Structure– Market– International
‘Regional approach’: Regional Advisory Councils (RACs)
Marine Strategy Framework Directive (MSFD)Kaderrichtlijn Mariene Strategie (KRM)
• DG ENV ‘Directive’• Aim for 2020:
– Good Environmental Status (GES)
• Member States need to develop regulations
• Regional coordiantion• 11 descriptors (themes) with
indicators• Measures via other policy
domains (e.g. CFP)
MSFD Marine regions
Natura2000
• DG ENV ‘Directives’– Bird Directive (1979)– Habitat Directive (1992)
• Aim: maintain biodiversity• Member States need to develop
regulations• Regional coordination ?• Method: Marine Protected Areas• Measures via other policy
domains (e.g. CFP)
Overview policy domains
Name Acronym Type DG
Integrated Maritime Policy IMP Communication MARE
Common Fisheries Policy CFP Regulation MARE
Marine Strategy Framework Directive
MSFD Directive ENV
Natura2000 N2000 Directive ENV
Marine Governance:Game, players and rules
Playing on multiple boards...
Integrated Maritime
Policy
Marine Strategy
Framework Directive
Common Fisheries Policy
Natura2000
Institutional ambiguity
MSFD and institutional ambiguity
1. Establishment of marine regions (who has competence and authority)
2. A framework directive vis-a-vis other (common) marine policies and directives (Member States in charge?)
Context of the Marine Strategy Framework Directive
Marine Strategy Framework Directive (MSFD)Kaderrichtlijn Mariene Strategie (KRM)
• DG ENV ‘Directive’• Aim for 2020:
– Good Environmental Status (GES)
• Regional coordination• 11 descriptors (themes) with
indicators• Member States need to develop
regulations• Measures via other policy
domains (e.g. CFP)
Status of the directives
• MSFD– Commitment for actions
• WFD (Water Framework Directive)– Commitment for results
MSFD Initial Planning Cycle
MSFD ‘speak’
Good Environmental Status Environmental status of marine waters where these provide ecologically diverse and dynamic oceans and seas which are clean, healthy andproductive ....
Descriptor Qualitative descriptors for determining good environmental status; i.e. themes
Indicator Operationalizing descriptors; things you can ‘measure’
Target Target value for an indicator
Measure Means to change the system and achieve targets
MSFD: what came before?
2008MSFD agreed
2008Request for scientific advice to ICES/JRC
2010ICES/JRC specify indicators
and potential targets
July 2010EC: criteria and
standards
2012National Initial Assessments
NL Initial Assessment
Ministerie van Infrastructuur en Milieu. 2012. Ontwerp Mariene Strategie voor het Nederlandse deel van de Noordzee 2012-2020.
Stakeholder involvement
• Varying involvement• Shipping, Oil&gas, Wind energy, NGOs
actively involved• Fisheries and Tourism limited involvement
Ounanian, K., Delaney, A., Raakjær, J., and Ramirez-Monsalve, P. 2012. On unequal footing: Stakeholder perspectives on the marine strategy framework directive as a mechanism of the ecosystem-based approach to
marine management. Marine Policy, 36: 658-666.
Policy involvement
• Common Implementation Strategy (CIS)– Marine Environmental Policy Makers from
Member States.
MSFD = management by indicator
• Science:– Defining good environmental status– Defining indicators
• Policy– Selecting indicators– Getting the indicator at the right level
• Stakeholders– Comment on proposals
Governance aspects of MSFD
• Command-and-control policy• Regional coordination (new!)• Emphasis on ecological targets• Integration limited• Instrumental participation process
(reflecting not shaping)
Regional approaches and coordination of MSFD
Baltic Sea: HELCOM
• Helsinki Convention• 8 EU Member States
+ Russia• Baltic Sea Action Plan
(2007)– Eutrophication– Biodiversity– Maritime activities– Hazardous substances
HELCOM coordination of MSFD
• Strong link between Baltic Sea Action Plan and MSFD
• Low institutional ambiguity
North Sea: OSPAR
• 1992 Oslo Paris convention
• 2010 Northeast Atlantic Environmental Strategy– Biodiversity– Eutrophication– Oil and Gas– Radiation– Integrated management
OSPAR coordination of MSFD?
• OSPAR adapted to MSFD requirements• Different implementation phases in
Member States• Institutional ambiguity
– OSPAR vs. Member States– Who deals with what topics?
Mediterranean Sea: Barcelona convention
• Many non-EU countries• 2008 Mediterranean
Action Plan (MAP)– Ecosystem approach– 7 steps
• No formal link to MSFD
Barcelona Convention and MSFD?
• Substantial Institutional Ambiguity• Many non-EU countries• Will MAP be adapted to MSFD?• Will EU-regional coordination develop?
Black Sea: Bucharest Convention
• 1992 Convention• 1996 Strategic Action
Plan• 2009 new Strategic
Action Plan– Ecosystem approach
• No references to MSFD
Bucharest Convention and MSFD?
• Many non-EU countries• Will the Convention be coordinating?• Role still needs to be decided / developed
Comparing Regional Conventions
EU countries Mismatch with GES objectives
Institutional Ambiguity
HELCOM Majority Low Low
OSPAR Majority Low Low-moderate
Barcelona Minority Moderate High
Bucharest minority High Moderate
Van Leeuwen, J., Van Hoof, L. J. W., and Van Tatenhove, J. 2012. Institutional ambiguity in implementing the European Union Marine Strategy Framework Directive. Marine Policy, 36: 636-643.
Summary
Multi-level decision-making
Marine policy domains
Integrated Maritime Policy
(IMP)
Common Fisheries Policy
(CFP)
Marine Strategy Framework
Directive (MSFD)
Natura2000
Transport Energy Regions Labour conditions
Spatial planning
Water Framework Directive
Regional coordination
Complex?
Contact
phone +31 317 487 849 mobile +31 610 939 549Email [email protected] Internet www.cmp.wur.nl Blog www.martinpastoors.nl Twitter @martinpastoorsLinkedIn nl.linkedin.com/in/martinpastoors