Opinion of the Economic and Social Committee on the 'Communication from the Commission to the Council and the European Parliament on the integrated management of coastal zones'
Date: 1996-07-11
Institutions: European Economic and Social Committee
Subjects: coastal region, environmental protection, integrated development programme, sustainable development, town and country planning













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51996AC0890

Opinion of the Economic and Social Committee on the 'Communication from the Commission to the Council and the European Parliament on the integrated management of coastal zones'  


Official Journal C 295 , 07/10/1996 P. 0074 





Opinion of the Economic and Social Committee on the 'Communication from the  Commission to the Council and the European Parliament on the integrated management of coastal  zones` (96/C 295/15)On 29  January 1996, the Commission decided to consult the Economic  and Social Committee, under Article  198 of the Treaty establishing the European Community, on the  above-mentioned communication. The Section for Regional Development and Town and Country Planning, which was responsible for  preparing the Committee's work on the subject, adopted its Opinion on 21  May 1996. The rapporteur  was Mr J. Bento Gonçalves. At its 337th Plenary Session (meeting of 11  July 1996), the Economic and Social Committee adopted  the following Opinion by 98 votes, with one abstention. 1. Introduction 1.1. This is a subject of considerable interest. It concerns vast areas of the European Union, both  coastal (maritime) areas and remote upstream areas (inland mountain, rural and other areas) spread  out over a variety of regions and third countries. In many cases, this calls for an analysis of trans-frontier implications of the impact of problems  on coastal zones, particularly environmental conservation. An integrated approach of this type should, however, be more comprehensive, in keeping with, inter  alia, the guidelines set out in the Commission document 'Europe 2000+ - cooperation for European  territorial development` (). 1.2. Economic growth in coastal zones should be on a sustainable basis. Difficulties appear mainly  to be in defining and harmonizing sustainable growth models given the conflicting interests  involved. When these models are being defined, economic objectives -  although important - should  not be given any greater priority than other objectives. The Committee supports the integrated approach set out in the Commission communication, stressing  the need to boost coordination in the various areas of action between the different levels of local  and regional administration in the areas concerned. 1.3. Coastal zones represent the interface between land and sea. The socio-economic systems which  evolve in these zones can have an impact which is either positive (sustainability of systems;  conservation of the environment and the landscape; preservation or enrichment of fish stocks; and  aquaculture development) or negative (damage to the environment; water pollution; overpopulation in  certain areas; seasonal fluctuations in employment; and floods). The effects of these should be  investigated thoroughly. 1.3.1. Productive structures have been set up in coastal zones, and these should now be  rationalized to promote sustained development. Such is the case with tourism structures; better  social, environmental and even economic use should be made of these structures, gearing them to  long-term, sustained activities which could contribute to the creation of more stable jobs. Innovative initiatives in new technologies should also be encouraged, allowing economic activities  to be redirected, leading to diversification into activities which create stable employment. 1.3.2. Environmental problems in coastal zones cannot be isolated from what is happening upstream,  mainly in the most depressed mountain areas through which watercourses flow, where the land is no  longer being worked and the population is moving away. 1.4. The fragile nature of the ecosystems in coastal areas is highly susceptible to the damaging  effects of both internal and external factors. This affects the biodiversity in the areas  concerned. The Section feels that another aspect to the problem is the specific protection of these  eco-systems. 1.5. Coastal zones are highly heterogeneous geographical entities which cannot be defined simply by  population or surface-area criteria. In countries which experience torrential rain, the impact on land conservation of constructing  river dams, dikes and breakwaters in these areas assumes key importance; such rain causes erosion  which may well alter the outline of the coast, jeopardizing not only the local population's safety  but also the sustainability of local development and employment models. 1.5.1. In some coastal zones, erosion is causing the coastline to recede, placing established urban  areas at risk. The effect of storms and other disasters on the equilibrium of coastal zones should  also be taken into account. 1.5.2. Another effect which must also be examined is caused by the accumulation of sediment in  wetlands and coastal areas which are endogenous producers of phytoplankton and major polluting  agents. Such pollution jeopardizes the use of these areas and is leading to a situation where the  land is increasingly being turned into polder-like areas, the future use of which will have to be  carefully planned. The demonstration programme should also look at waste treatment, protection of the land involved,  decontamination, desalination and various economic uses for the sediments. Farming could find a use  for these cleaned-up areas, producing quality products in such a way that the type of farming  respects the quality of the land and its environment. 2. Comments on the diagnostic elements 2.1. The problems have been correctly identified. The communication recognizes that advocating  conservation of natural resources and the environment is a priority on two levels: 1) for cultural  and natural heritage and 2) for the support needed to ensure sustainable economic and social  development in communities in Europe's coastal zones. 2.2. Environmental problems in coastal areas should be tackled in such a way as to a) take into  account their impact on the sea/shore areas and b) identify the impact of economic activities in  these areas and in the relevant upstream and maritime areas, on the biodiversity of ecosystems and  landscapes. 2.3. It is difficult to determine and measure exactly how these areas - which cover both land and  sea -are used. This must, however, be done so that integrated management and planning models can be  set up. In fact, as the communication states: 'The natural coastal systems and the areas in which  human activities involve the use of coastal resources may therefore extend well beyond the limit of  territorial waters, and several kilometres inland.` Nevertheless, because there is considerable  interaction between maritime products and resources on the one hand, and the way that man exploits  land resources on the other, it will be important to establish lines of demarcation between the  two, which correspond as far as possible to specific biological or landscape-management units. 2.3.1. The ways that coastal areas are exploited (fisheries, fisheries- and farming-associated  industries, aquaculture, farming, tourism, marinas, urban development, heavy industry normally  located near ports, oil and gas extraction and processing, port activities, etc.) affect and  determine to what extent the cultural identities of these areas and the resources associated with  them are preserved or damaged. An integrated, non-sectoral approach should be adopted to study  this. 2.3.2. Also to be noted is the often serious impact on the environment of a) the fact that there  are not enough basic sewage-treatment plants in coastal zones and upstream, b) effluent from farms,  and c) the construction next to rivers and wetlands of nuclear power stations and industries  producing pollutant and even toxic waste. 2.4. The Commission communication sets out a number of relevant indicators on how far coastal zones  extend and the size of their populations. 2.4.1. The criteria for assessing coastal zones based on population density only 'illustrate the  "coastal" and "land" character of the Member States`, but give no indication about the interaction  between productive activities and the landscape of coastal regions. Nevertheless they do provide interesting indicators on how to tackle the problem of damage to, or  destruction of, landscapes, reduced biodiversity and water pollution. However, it should again be  stressed that variations in these indicators are greatly influenced by the kind of productive  activity carried out not only by the local community, but also by other economic agents involved,  even if they are not located in the area, and by port-based operations. 2.4.2. When a particular effect is observed in a landscape or environment, it is not always  directly linked to its cause and it is even less certain that the effects of certain activities  will show up immediately. This is particularly true of the landscapes of coastal areas where the  effects of river and sea transport cause considerable damage as a result of a number of factors.  Thus, interactions can be established between human activities and associated models of sustained  development. 2.4.3. Moreover there are considerable differences between the Member States in terms of  landscapes, ecosystem and the impact on the biodiversity of coastal regions, particularly in the  countries of northern Europe; this has not been properly taken into account in the Commission's  approach. 2.4.4. It would therefore be valuable to study the evaluation criteria for coastal regions in  greater depth, from the dual perspective of land and sea, in the sense that they are integral  components. The importance of coastal ecosystems, in both economic and purely biological terms, demonstrates  the need to think carefully about which criteria to apply so as to ensure their conservation and  improve their natural environment. 2.5. The Commission is right in its comments about seasonal variations in population pressure on  ecosystems and on the landscapes of coastal zones, and in its reference to the negative effect of  'intensive tourism`. The full extent of these effects should be investigated: employment, culture, intensive  urbanization, damage to ecosystems, landscapes and economics. 3. Insufficient coordination and concertation 3.1. Identifying existing measures 3.1.1. As mentioned in Annexes I and II of the Commission document, there are various legal,  financial and planning instruments which directly or indirectly affect coastal zones; however,  there is no integrated approach to the policies to be developed. The poor results obtained in work  on a European coastal map confirm this conclusion. 3.2. Insufficient coordination 3.2.1. Isolated measures have failed to achieve their objectives and the lack of coordination in  implementing them accentuates how fragile are the many facets of socio-economic development in  these zones. 3.2.1.1. The success of an integrated approach to environmental problems depends on the  implementation of preventative and development instruments, entailing in particular: - better integration of environmental problems in the Structural Funds; - mandatory assessment of the environmental impact of plans and programmes; - adoption of more comprehensive economic assessment instruments which take into account the  environment and natural resources; - coordination of Community and national policies, taking account of spatial planning strategies  designed to secure and implement sustainable development; - achievement of partnership and coordination by mobilizing, educating and informing the public; - involvement of the scientific community. If these instruments are to be more effective, there must be maximum coordination and concertation  between the policies and agents responsible for their application and innovative legal forms must  be devised, allowing structures for permanent dialogue to be set up and encouraging consensus-based  solutions to potential conflicts. The Economic and Social Committee feels that non-Member States as well as the local and regional  authorities concerned should also be involved in the study on the integrated management of coastal  zones. Account should be taken of this concern in EU support programmes for non-Member States, as  long as they comply with EU standards. 4. Demonstration programme on the integrated management of coastal zones 4.1. This programme constitutes an initial step towards applying previous Resolutions () and  reflects a positive trend in this connection. In addition, the demonstration programme is likely to help define integrated management strategies  for coastal zones; account should be taken of the guidelines set out in point 3.2.1.1. The poor results obtained in previous initiatives on the environment and natural resources in  coastal zones warrant the importance of the programme proposed by the Commission. 4.1.1. This Opinion demonstrates that there are three key reasons which sum up and justify the EU's  interest in solving the problems of coastal zones: a) it is impossible for each Member State, acting in isolation, to solve existing problems (natural  and cultural heritage, transfer of pollutants and sediments, tourism flows, safety at sea,  employment and unstructured urban growth); b) some EU and Member State major policy approaches and actions upset the equilibrium of coastal  zones, with less coordination and thus conflict between regional, agricultural, transport,  aquaculture, fisheries, energy, environmental, industry, tourism and port policies; c) there has to be an exchange of experience and know-how in these policy areas; d) the objectives have to be more comprehensive, taking account of ecological, archaeological and  biological research work, thus involving the scientific community in these programmes. 4.1.2. The programme should ensure that the local populations are involved through their local  agents and the authorities, port authorities and maritime safety authorities, as suggested by  Figure 8 in the Commission document on the schematic content of the demonstration programme. 5. Conclusions 5.1. The Commission will have to clarify the demonstration programme more objectively with a view  to defining who can carry the programme out and in which regions it is to be implemented. From the  outset, all coastal regions, as identified by the Commission, should have the same opportunities  for applying. 5.2. Clear selection criteria should also be established for the coastal zones eligible for the  demonstration programme. 5.2.1. The ESC feels that the programme will have to cover coastal areas with diverse  characteristics. 5.2.2. Experience gained in implementing projects including the 'Rance Bay agreement` will also  provide relevant data, both positive and negative - including the most stubborn obstacles - for the  Commission's proposals, covering: - coordination and management; - impact on different areas of work and projects already implemented; - contributions from and involvement of the scientific community; - extent of the general public's and representatives bodies' involvement; - contributions from local, regional and central authorities; - action by and contributions from regional business and trade unions; - economic analysis of the cost of actions and the impact of projects on creating new business and  job opportunities. 5.3. The programme should contain guidelines on publicity/information campaigns and their  objectives so as to build up synergy for motivating the local populations involved. 5.4. The demonstration programme will have to provide for the development of innovative approaches  to a) inter-regional cooperation involving both Member and non-Member States and b) spatial  planning and urban development policy. 5.4.1. The programme should also help the European coastal zone policy to be more coherent,  transparent and objective without, however, becoming less effective. It should be based on the  principle of dealing with the cause of damage to the environment and on the polluter-pays  principle, integrating coastal zone environmental policies in other regional development policies. 5.4.2. In addition, the programme should boost research and innovation, bringing in new  technologies, innovative activities and creating new areas of work, leading to new types of stable  work. 5.4.3. In response to the multiplicity and specific nature of the activities to be carried out,  which are particular to coastal zones, the programme should schedule training action at all levels:  in schools and universities and at the workplace. 5.4.4. The demonstration programme may ensure that more detailed information is obtained about  management and coordination, enabling national, regional and supranational data banks to be set up  to provide back-up for the definition of strategies on sustainable land planning policies in  coastal zones. 5.5. Finance for these actions is based on various legal instruments and financial programmes for  solving coastal zone problems. 5.5.1. It is most important that these initiatives succeed, and this justifies the Council either  creating a new horizontal type of financial instrument or making the legal framework for  implementing the current financial instruments more flexible. 5.5.2. The Economic and Social Committee recognizes the importance of problems in EU coastal areas  and also the need to adopt an innovative approach to inter-regional and cross-frontier actions.  Solving the problems involves establishing a clear framework of standards, adopting a horizontal  approach to financial and legal aspects. - Greater coordination between the Commission's own services is deemed essential to the  initiative's success. Setting up an ad hoc group might offer a valid solution. - In order to clarify the above issues and to adapt the legal framework for deploying financial  resources, it is recommended that consideration be given to publishing a regulation or directive on  this specific subject. 5.6. The Economic and Social Committee welcomes and endorses the proposal set out in the  Commission's communication and hopes that this initiative will be allocated adequate financial  means for it to be a success. On the basis of information provided by the implementation of the demonstration programme, the  Commission should present specific proposals allowing integrated management strategies to be  defined for coastal zones. 5.7. The Commission communication is however neither very ambitious nor innovative in terms of its  objectives and the financial resources to be allocated thereto. The ESC urges the Commission to  study its intentions in greater depth and to integrate these aims into a strategic proposal for  land planning in and management of coastal zones, also involving up-stream areas and sea areas. Heed should be given to the benefits of cooperation with neighbouring countries which share sea  areas. Done at Brussels, 11  July 1996. The President of the Economic and Social Committee Carlos FERRER () OJ No C 133, 31. 5. 1995, p. 2; OJ No C  301, 13. 11. 1995, p.  10.  () Resolution of 25. 2. 1992, OJ No C 59 of 6. 3. 1992 and OJ No C 135 of 18. 5. 1994.