Opinion of the Committee of the Regions on "Towards a European Integrated Coastal Zone Management (ICZM) Strategy General Principles and Policy Options"
Date: 2000-04-12
Institutions: European Committee of the Regions
Subjects: coastal region, cooperation policy, development policy, regional policy, town and country planning

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Official Journal of the European Communities

8.8.2000

Opinion of the Committee of the Regions on ‘Towards a European Integrated Coastal Zone
Management (ICZM) Strategy General Principles and Policy Options’

(2000/C 226/11)

THE COMMITTEE OF THE REGIONS,

having regard to the reflection paper on ‘Towards a European Integrated Coastal Zone Management
(ICZM) Strategy — General Principles and Policy Options’ and the accompanying document ‘Lessons
from the European Commission’s Demonstration Programme on the Integrated Coastal Zone Manage-
ment (ICZM)’ prepared by the Demonstration Programme’s team of thematic experts on ICZM;

having regard to its Bureau’s decision of 15 September 1999, under the fifth paragraph of Article 265,
instructing Commission 4 for Spatial Planning, Urban Issues, Energy and the Environment to draw up
the relevant opinion;

having regard to the opinion of the Committee of the Regions on the Communication from the
Commission on the Integrated Management of Coastal Zones (CdR 114/96) (1);

having regard to the draft Opinion (CdR 359/99 rev. 1) adopted by Commission 4 on 2 December 1999
(rapporteur: Ms McNamara (IRL, EA)),

adopted the following opinion at its 33rd plenary session of 12 and 13 April 2000 (session of 12 April).

1.

Introduction

— to maintain the biological diversity and productivity of
coastal ecosystems and to improve the quality of the
coastal environment.

The coastal zone is an area of land and sea territory the
1.1.
size of which is determined by its management needs. It varies
significantly in terms of area, geomorphology, hydrology,
biodiversity,
land use, administrative, cultural and socio-
economic systems. The dynamics and physical diversity of the
coastal zone is compounded by the fact that it rarely adheres
to, or coincides with existing administrative boundaries.

1.2.
The extensive geographical area of the coastal zone
and the number of resources contained within it results in
huge pressures for development and a range of competing
uses that are not often compatible. Integrated Coastal Zone
Management (ICZM) therefore seeks to manage the resources
and uses in such a way that will allow the maximum number
of competing uses while, at
the same time, preventing
irreversible damage to the natural ecosystems and processes
which are responsible for the coastal zone.

ICZM is a process of co-ordination and co-operation
1.4.
between all managers (at all spatial
levels of authority,
including the national level) and users of the coastal zone
resources. It therefore requires a number of prerequisites for
its effective operation. These include an understanding of its
interregional nature, a recognition of its value, a programme
of relevant actions and measures, a framework in which ICZM
can occur, a comprehensive database, appropriate expertise
and adequate funding.

2. Gist of the document

ICZM is a continuous process which seeks, through

1.3.
more efficient and holistic management:

The document prepared by the European Commission

2.1.
has two stated purposes:

— to establish and maintain the sustainable use and develop-
ment of the resources of the coastal zone so as to improve
the quality of life of human communities dependent on
these resources; and

— To compile and diffuse the principal policy lessons emerg-

ing from its Demonstration Programme on ICZM.

(1) OJ C 182, 24.6.1996, p. 12.

— To stimulate debate and develop consensus on a European
ICZM strategy, designed to reverse the trend towards
unsustainability that is presently pervasive in coastal zones
across Europe.

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2.2.
The Demonstration Programme has enabled a review
of policy in coastal zone areas across Europe, and has indicated
that good management can take many forms. The document
specifies seven general principles that should apply to all future
ICZM initiatives. A European ICZM Strategy is identified as a
method that embodies these seven principles, and at the same
time, promotes the sustainable development of the coastal
zone. The document also discusses the various policy options
for a European ICZM Strategy including the role of the EU,
intersectoral co-ordination and a legal framework.

4.2.
Experience has demonstrated that the level of manage-
ment must be appropriate to the scale of the coastal zone
under consideration. Thus the COR emphasises that a general
framework for ICZM would involve a guiding set of principles
at a trans-national level, the framing of policy at an interre-
gional level, and a greater focus on definition and implemen-
tation of policy (including detailed ’plans’ or strategies) at a
regional and local level.

3. General comments

The COR welcomes the Reflection Paper as an oppor-
3.1.
tunity to contribute to the development of an European ICZM
Strategy.

3.2.
The Demonstration Programme has highlighted the
fact that, whilst coastal zone problems are common across
Europe, solutions are generally specific to particular areas. The
COR therefore emphasises that local and regional authorities
are a vital component in ICZM. Local and regional authorities
are best equipped to deal with implementation of ICZM
policies.

3.3.
The COR advocates the mainstreaming of the lessons
learnt from the Demonstration Programme. The COR believes
that the ongoing development of a European ICZM Strategy is
essential in order to promote good management in the coastal
zone, particularly given its interregional nature. The COR
stresses the importance of a European ICZM Strategy involving
a coherent set of principles, measures,
initiatives and a
programme of support to guide local and regional authorities
in the implementation of ICZM practices.

4. The importance of a local and regional dimension

The COR stresses that local and regional authorities
4.3.
are best placed to deal with the implementation of ICZM, as
they tend to be closest to the coastal problems and are
experienced in dealing with issues and policies that require a
multi-sectoral approach. Local and regional authorities are
ideally placed to increase awareness of ICZM issues and their
key role in spatial planning will prove invaluable in the
development of ICZM plans.

Furthermore the COR emphasises that

4.4.
local and
regional authorities can cater for local needs, by providing
local solutions to what generally are area-specific problems.
The varied nature of the coastal zone ensures that blanket
policies will be ineffective. Local and regional authorities are
in the best position to provide local ICZM polices.

4.5.
The COR advocates the creation of European co-
operation networks between coastal local and regional auth-
orities. A network similar to the Sustainable Cities Network,
which would allow discussion of common problems and
dissemination of potential solutions, should be considered.

5. The value of an European Union dimension

The Committee of the Regions underlines the value of
5.1.
a European Union dimension in the process of ICZM, as it will
allow certain advantages in the establishment of coherent
ICZM policies in the Member States and their regions. How-
ever, there are a number of issues that will have to be addressed
if a European ICZM Strategy is to be a success.

4.1.
The COR believes that the next stage in the develop-
ment of a European ICZM Strategy is the establishment of a
framework in which the effective operation of ICZM can take
place. As the Demonstration Projects have shown there are a
number of different frameworks that are suitable and appli-
cable to specific areas. Each framework must be tailored to the
requirements of the coastal zone in question, and therefore an
effective strategy in one Member State or an individual region
may not be appropriate to another.

The COR believes that the role of the EU will be to
5.2.
provide guidance at a macro level. There is no one approach
to Integrated Coastal Zone Management and therefore the
level of management must reflect the extent of the coastal
zone under consideration. At a European level, broad policies
are required with actual coastal zone management plans only
necessary at a regional and local level.

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The COR suggests that

5.3.
the EU needs to take a
proactive role in facilitating the development of Coastal Zone
Management procedures across Europe including the possible
formulation of broad policy principles. Action at EU level is
required to support regional and local administrations in the
implementation of ICZM. To this end the COR advises that
the establishment of a programme of support similar in nature
to Interreg IIC should be considered in order to facilitate the
development of co-operation regions and networks, in zones
such as the North Sea areas, Baltic Sea area, Atlantic Arc area
and Mediterranean area.

— continuing and supporting research and education into
ICZM including for example, the ongoing development of
demonstration methodologies and frameworks;

— providing technical assistance and expert knowledge and
facilitating interregional frameworks, trans-national co-
operation, and exchange of experience;

— increasing awareness of both the benefits of, and need for,

Integrated Coastal Zone Management.

5.4.
The COR believes that the EU has an important role in
developing and maintaining cross-border co-operation among
Member States and with third countries in relation to ICZM.
Proper management of the coastal zone requires trans-national
agreements and co-operation networks. The COR believes that
the EU is in the best position to facilitate such agreements.

5.5.
The COR stresses that a comprehensive review of all
EU policies that affect the coastal zone is necessary including
any initiatives that have an EU dimension. These include
spatial planning policy as outlined by the ESDP, socio-
economic policies such as the CAP, the Fisheries Policy and
support programmes for coastal tourist resorts, environmental
polices such as pollution and nature conservation programmes
and all Structural Funding that affects development in the
coastal zone. The COR submits that all policies should be
assessed or audited to ensure that they do not have a negative
impact on the coastal zone. Furthermore the COR advocates
the appropriate mainstreaming of ICZM principles and stra-
tegies into all EU policies after the Demonstration Programme
has been completed.

To provide a coherence for future ICZM policies at
5.6.
an EU level
the COR suggests the establishment of an
interdisciplinary team, representing the policy interests of the
relevant Directorate Generals and led by the most appropriate
DG (e.g. DG Environment). Its responsibilities would involve
the on-going development of an EU ICZM Strategy and the
further integration and mainstreaming of ICZM principles into
other appropriate policy fields.

5.7.
The COR underlines the supporting role of the EU in
relation to ICZM, which is envisaged in a number of ways,
including inter alia:

— facilitating the implementation of ICZM by the establish-
ment of a programme of support in order to facilitate the
development of co-operation regions and networks;

6. A need for commitment to Integrated Coastal Zone

Management

The COR stresses that there needs to be an increase in
6.1.
the general awareness of the importance of the coastal zone,
and in particular its proper management. For this to take place
the COR believes that there needs to be a commitment on
behalf of all current managers to the process of Integrated
Coastal Zone Management, at international, national, regional
and local
levels. Active and continuous participation is
required, as opposed to a supporting role. The necessity of
ICZM needs to be recognised and resources have to be
committed. The COR believes that local and regional auth-
orities must engender this commitment and take a share of the
responsibility for it.

The COR understands that ICZM is a complicated
6.2.
procedure which necessitates the involvement of all managers
and users,
including national governments, state bodies,
regional and local authorities, NGOs, relevant commercial
sectors and the public. However, the prerequisite for the
proper management of the coastal zone is a commitment from
all managers and users to the process of Integrated Coastal
Zone Management. To this end the COR advocates the creation
of enabling mechanisms within local and regional authorities
and national administrations in order to establish synergy and
allow the involvement of all relevant sectors and individuals.

7. The need to define the coastal zone

The COR advocates the physical definition of the
7.1.
coastal zone at a local
level where necessary in order to
establish its management needs. This will involve the collection
and collation of all available data on the coastal zone, its
physical extent, its administration and its users. The COR sees
a number of advantages in physically defining the coastal zone
as it will enable the following:

— assisting in the provision of resources particularly in
support of regional and local administrations in solving
coastal problems;

— the identification of existing management problems and

shortcomings;

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— the identification of existing coastal zone managers and
existing administrative systems responsible for the coastal
zone;

— the creation of greater co-operation between existing

coastal managers and existing administrations;

play an important role in future coastal zone management
procedures. The COR believes that their awareness of the
benefits of, and need for, coastal zone management must be
increased and they must also be educated in the implemen-
tation of ICZM practices.

— the creation of a framework for ICZM including new
management structures, which are specific to particular
coastal areas;

9. Conclusions

7.2. Whilst the COR recognises that the boundaries of the
coastal zone are determined by natural processes and systems,
there must be a cut-off point in defining these boundaries. The
COR therefore suggests that a balance should be struck
between the natural processes and existing management
systems when defining the coastal zone. For example in the
preparation of a draft policy for ICZM in Ireland it was
ascertained that there were nine coastal cells around the
country formed by natural coastal processes. These were
subsequently divided into 13 coastal cells as a result of a study
of the existing administrative boundaries and the relative ease
to produce strategic plans for 13 rather than nine cells. The
COR advocates that the definition of the coastal zone should
occur at a local/regional level as local and regional authorities
are likely to have the best knowledge of the appropriate
boundaries.

8. The need for resources

The COR reiterates that ICZM requires resources in
8.1.
order for proper implementation to occur. Resources are
particularly necessary for the development and support of
ICZM delivery mechanisms, data collection and collation, and
education.

8.2.
The COR notes that data collection and collation will
be a crucial component in establishing an ICZM framework.
Acquiring information and collating it into a format which is
relevant and accessible can be an expensive procedure in terms
of both monetary and time costs. Much of the information is
already available but is either not accessible or not known.
The COR therefore suggests that costs can be reduced by
ascertaining the information available and, after deciding
what
is missing, collecting the necessary data. Research
and information needs must be defined through a genuine
partnership between research organisations and coastal man-
agers.

8.3.
The COR considers that resources will also be essential
for education and raising awareness of Integrated Coastal Zone
Management, particularly amongst existing current coastal
zone managers. It is likely that the existing managers will

The Committee of the Regions

welcomes the Reflection Paper and believes that the
9.1.
ongoing development of ICZM principles is essential for the
creation of an EU ICZM Strategy in order to protect the coastal
zone, to promote its sustainable development and to develop
systems to foster interregional co-operation;

the role of

stresses the importance of

9.2.
local and
regional authorities in the implementation of ICZM, given
their experience in dealing with multi-sectoral problems and
the fact that coastal zone problems and solutions are generally
area-specific. The varied nature of the coastal zone ensures
that local and regional authorities are in the best position to
provide local solutions to local problems. The creation of
co-operation networks between coastal
local and regional
authorities is advocated to allow discussion of common
problems and dissemination of potential solutions; the various
interest groups or user groups and the local population should
also be involved.

9.3.
underlines the value of a European Union dimension
in the development of a European ICZM Strategy and suggests
that the EU should have a guiding and supporting role at a
macro level. This role will allow the facilitation of cooperation
regions and networks between Member States and with third
countries. The EU is in the best position to enable cross-border
cooperation in relation to the establishment of a ICZM
Strategy, given the opportunities that the new Interreg IIIB will
provide.

stresses that a comprehensive review of all EU policies
9.4.
that affect the coastal zone is necessary,
including other
initiatives with an EU dimension. This includes the ESDP, the
CAP, the Fisheries Policy and support programmes for coastal
tourist resorts, environmental policies such as pollution and
nature conservation programmes and all Structural Funding
that affects development in the coastal zone.

9.5.
advocates the establishment of an interdisciplinary
team representing the policy interests of the relevant Director-
ate Generals. Its responsibilities would involve the on-going
development of an EU ICZM Strategy and the further inte-
gration and mainstreaming of ICZM principles into other
appropriate policy fields.

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9.6.
emphasises the need for commitment from all man-
agers and users to the process of ICZM. Enabling mechanisms
within local and regional authorities and national adminis-
trations have to be created in order to establish synergy and
allow the involvement of all relevant sectors and individuals.

when defining the coastal zone. The definition of the coastal
zone should occur at a local/regional level as local and regional
authorities are likely to have the best knowledge of the
appropriate boundaries, managers, administrations and exist-
ing problems;

9.7.
advocates the physical definition of the coastal zone at
a local level where necessary in order to establish its manage-
ment needs and suggests that a balance should be struck
between natural processes and existing management systems

9.8.
reiterates the necessity for proper resources in order to
enable ICZM to occur, in particular for the development and
support of ICZM delivery mechanisms, data collection and
collation, and education.

Brussels, 12 April 2000.

The President

of the Committee of the Regions

Jos CHABERT