Opinion of the Committee of the Regions on the 'Communication from the Commission on the integrated management of coastal zones`

(96/C 182/03)

At its 12th Plenary Session (meeting of 21 March), THE COMMITTEE OF THE REGIONS,

- Having regard to the Commission decision of 21 November 1995 to consult the Committee of the Regions;

- Having regard to the COR decision of 18 July to instruct Commission 5 to draw up this Opinion;

- Having regard to the communication from the European Commission (COM(95) 511 final);

- Having regard to the Commission 5 Opinion CdR 3/96 fin. (Rapporteur: Mrs Haijanen (FI),

unanimously adopted the following Opinion.

1. Background

On 25 February 1992 () and 6 May 1994 (), the Council adopted resolutions relating to Community policy on European coastal zones. The resolutions highlight the need for a Community strategy for integrated management and planning of coastal regions based on the principle of subsidiarity.

Part 5.6 of the Fifth Environmental Action Programme sets the goal of sustainable development for coastal regions and their resources. The programme emphasizes the need for a strategy for coastal regions.

A report drawn up in 1995 by the European Environment Agency on the reform of the Fifth Environmental Action Programme states that the Union and Member States' policies will have to take increasing account of the integrated management of coastal regions in the coming years.

The Commission communication 'Europe 2000+` on European regional development cooperation reiterates the need for an integrated approach in coastal regions. It underlines the crucial role of regional planning in determining the future of Europe's coastal regions.

2. Introduction

The Commission adopted a communication on the integrated management of coastal regions on 31 October 1995.

The Council adopted a resolution on the communication on 18 December 1995.

The aim of the communication is to promote sustainable development in coastal regions. The communication reviews the problems of coastal regions and notes that insufficient coordination in decision-making makes it more difficult to solve these problems.

The communication provides for the implementation of a demonstration programme to test cooperation models for the integrated management of coastal zones which, as it progresses, would provide a basis for debate on the development of coastal zones at Union and other levels. The participants in the programme represent all the levels involved in the integrated management of coastal zones.

Financing for the demonstration programme would be made available from existing financial instruments and programmes.

3. General comments: need and basis for Community action on coastal zones

3.1. The Commission identifies three reasons for action at Community level:

- the transnational nature of many of the problems of coastal zones;

- the influence of Union policies and action on the development of coastal zones;

- the need for an exchange of know-how and experience.

3.2. The Committee of the Regions endorses the view put forward in the communication that the problems of coastal regions are not merely national. Integrated management of the coastal regions could make a significant contribution to preventing the deterioration of the seas. This calls for transnational and interregional cooperation among Member States and with third countries.

3.3. Although Europe's coastal regions and the land-use pressures they face are extremely varied, the general trend seems to be that the attraction of coastal zones as places to live, coupled with the steady increase of urbanization, shipping and tourism, etc., are adding to the pressures in many regions. Furthermore, the livelihood of coastal inhabitants and their right to a clean environment are threatened.

3.4. EU action affects coastal regions through, for example, fishing policy, trans-European networks, the Structural Funds and other financial instruments. There is a need for coordination of Union actions and objectives directed at coastal regions, as well as evaluation of the cumulative effects of these actions and those going on in different sectors.

3.5. There are also many ways in which the Union can support the Member States at national, regional and local levels in preventing problems in coastal zones, for example through the exchange of experience and transnational cooperation. Interregional cooperation in coastal matters is of vital importance.

3.6. The problems of coastal zones are most clearly evident at regional and local level. They are essentially regional and local in origin, despite the fact that they may also have a national and even Europe-wide dimension. The responsibility of regional and local authorities for the integrated management of coastal zones within the framework of national legislation and guidelines is crucial.

3.7. Coastal regions differ in terms of natural, climatic and other conditions. Island regions and marshlands constitute special types of coastal environment. The land-use pressures on coastal regions also vary quite considerably. Some coastal zones are struggling with the problems of growing urbanization and tourism while others face economic decline. The methods used to solve these problems also vary.

3.8. The Committee of the Regions notes that the diversity of coastal regions should serve as the starting-point for discussion of action to promote the integrated management of coastal regions. This diversity is best taken into account by emphasizing the regional and local viewpoint, that is by applying a bottom-up approach.

3.9. The management of coastal regions requires up-to-date information on natural and climatic conditions in these areas and on the effects of different measures on each other and on the environment. There is also a continuing need for Union support for the development of environmental information systems.

4. The Commission communication: evaluation

4.1. The Committee of the Regions notes that the analysis in the Commission communication of problems relating to the coastal zones and their causes is excellent.

4.2. The Commission's proposal for a demonstration programme is the correct approach. An experimental programme of this kind could be used to support the interregional exchange of experience and good practices.

4.3. The diversity of coastal regions should be the starting-point in considering the number of projects and how they are to be carried out. This requires that emphasis be placed on the viewpoint of regional and local administration. The best results are likely to be achieved if different kinds of coastal regions are chosen to participate in the programme.

There should be a sufficient number of projects to ensure that the objectives will be achieved in the best possible way.

4.4. The limited number of the projects proposed by the Commission would not be conducive to a thorough investigation of problems in coastal regions.

4.5. The Committee of the Regions considers that the content of the demonstration programme should be flexible enough to deal with different circumstances. Similarly, the roles of different parties and levels of administration should be considered on a case-by-case basis. Consideration should be given not only to the diversity of coastal conditions but also to differences in Member States' administrative systems and the tasks of different levels. A bottom-up, rather than top-down, approach should be applied. In this context it would be useful to draw upon the experience gained from the implementation of the US law on the management of coastal regions.

4.6. Good pilot projects are to be found particularly at regional and local level. A joint project transcending national boundaries may also provide useful experience and information for other regions. In planning the projects, cooperation between the Commission and the representatives of regional and local government would undoubtedly be worthwhile.

4.7. Transnational cooperation between regional and local authorities in the coastal zones of Member States and third countries is essential and should be supported. Such cooperation already exists in Europe in many areas, for example among countries bordering the Baltic Sea, the Mediterranean and the North Sea. The sharing of experience and good practices could be a key contribution of the programme.

4.8. Regional planning offers a good means of achieving the integrated management and sustainable development of coastal regions. Planning at regional and local level makes it possible to assess the effects of land use on the environment, the economy and social and cultural conditions. Participation by citizens in this process is essential. The officials and experts who operate in the coastal regions should also take part in this process. The importance of regional planning should be borne in mind when selecting the pilot projects.

4.9. The short timetable for the projects requires that the regions chosen for the programme should have a minimum level of know-how. There should be a sufficient number of regions with the capability to participate in the integrated management of coastal zones. This would allow an exchange of information on good practice and the transfer of experience to regions which are just starting action in this field.

4.10. The Commission proposal to use existing sources of funding to finance the demonstration programme is, as such, flexible and reasonable. Problems could arise as a result of differences between the scheduling and decision-making systems governing different types of funding.

5. Conclusions

The Committee of the Regions:

5.1. notes that Community action is needed to support regional and local administrations in solving the problems of coastal regions. Community action should be based on the subsidiarity principle and recognition of the diversity of coastal regions;

5.2. stresses the importance of integrated regional and local planning in solving coastal problems;

5.3. notes the importance of EU support for cooperation between regional and local communities in coastal matters. Support should also be given to cooperation across national borders and with third countries outside the EU;

5.4. endorses the Commission proposal concerning the launching of a demonstration programme;

5.5. points out that in launching the demonstration programme a bottom-up approach complying with the spirit and practice of Agenda 21 should be stressed and that the importance of regional and local levels should be emphasized in the integrated management of coastal regions. This requires that the content of the programme and the tasks of the different levels involved should not be predetermined but should instead be decided upon within the projects themselves according to the circumstances in the region concerned;

5.6. suggests that, in selecting the programme and projects, special attention be paid to the diversity of the regions and to benefiting from existing good practices;

5.7. notes that the financing of the programme should be arranged so that it supports the objectives of the programme and does not unnecessarily restrict the choice of the most interesting projects. Cooperation with representatives of regional and local communities is required in selecting the projects.

Done at Brussels, 21 March 1996.

The Chairman

of the Committee of the Regions

Pasqual MARAGALL i MIRA

() OJ No C 59, 6. 3. 1992, p. 1.

() OJ No C 135, 18. 5. 1994, p. 2.