Opinion of the Economic and Social Committee on the "Proposal for a European Parliament and Council Recommendation concerning the implementation of Integrated Coastal Zone Management in Europe"
Date: 2001-03-28
Institutions: European Economic and Social Committee
Subjects: coastal region, environmental policy, sustainable development, town and country planning

29.5.2001

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Official Journal of the European Communities

C 155/17

Opinion of the Economic and Social Committee on the ‘Proposal for a European Parliament
and Council Recommendation concerning the implementation of Integrated Coastal Zone
Management in Europe’

(2001/C 155/05)

On 11 September 2000 the Commission decided to consult the Economic and Social Committee, under
Article 262 of the Treaty establishing the European Community, on the above-mentioned proposal.

The Section for Economic and Monetary Union and Economic and Social Cohesion, which was
responsible for preparing the Committee’s work on the subject, adopted its opinion on 13 March 2001.
The rapporteur was Mr Bento Gonçalves.

At its 380th plenary session of 28 and 29 March 2001 (meeting of 28 March), the Economic and Social
Committee adopted the following opinion by 100 votes in favour and one abstention.

1.

Introduction

2. General comments

1.1.
The draft European Parliament and Council Rec-
ommendation concerning the implementation of Integrated
is based
Coastal Zone Management
principally on the Communication from the Commission
containing the Report on the progress of the ICZM Demon-
stration Programme (2), and on the Communication from the
Commission on ICZM — A strategy for Europe (3).

in Europe (1)

(ICZM)

1.1.1.
The recommendation puts forward proposals on
integrated national and Community strategies for ICZM,
focusing on the Treaty objectives. The primary aim is to
promote sustainable development while conserving available
resources as part of an environmentally-aware approach.

1.1.2.
The Demonstration Programme covered a number
of projects implemented in 35 representative coastal regions
in Europe and six horizontal thematic studies.

1.2. Historical importance

1.3.
Throughout history, coastal zones have attracted
human settlement and sustained development. They continue
to offer considerable development potential to modern socie-
ties, performing major, multi-faceted functions: agricultural
production, fish farming, fishery catches,
leisure activities,
nature and biodiversity conservation, biotechnology-based
production, etc.

2.1.

The draft recommendation highlights:

a)

b)

c)

d)

e)

f)

g)

the social, economic, environmental and cultural import-
ance of coastal zones for the EU;

the continuing and severe deterioration of Europe’s
coastal zones, as demonstrated by the European Environ-
ment Agency’s report;

the need to implement an environmentally sustainable,
economically equitable, socially responsible and culturally
sensitive management scheme for such zones in order to
maintain the full integrity of these resources;

the insistence of all earlier Commission communications
on this subject (4)
integrated management must
ensure that all the relevant players are involved;

that

the need to ensure coherent actions at European level,
including cooperative interregional action, to help resolve
problems affecting cross-border coastal zones, integrating
them for this purpose into actions under the Interreg
Community initiative;

earlier Council resolutions (5)
concerted European action;

identifying the need for

the Commission communication’s proposal (6)
for an
ICZM Demonstration Programme, which has in the
meantime been implemented;

(1) COM(2000) 545 final.
(2) COM(1997) 744.
(3) COM(2000) 547 final.

(4) COM(1997) 744 final and COM(2000) 547 final.
(5) Council Resolutions 92/C 59/01 and 94/C 135/02.
(6) COM(95) 511 final.

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h)

the fact that in accordance with the subsidiarity and
proportionality principles set out in Community legis-
lation, and given the diversity of conditions in the coastal
zones and the relevant legal structures in the Member
States, the action requires Community-level guidance in
order to be effective.

2.1.1.
ICZM is a dynamic, on-going and interactive process
aimed at promoting sustainable management of coastal zones,
by seeking to strike a lasting balance between their inherent
ecological vulnerability and all the benefits of exploiting their
various aspects.

The recommendation and the communication pre-
2.1.2.
sent a European strategy to flesh out the content of the
EU Demonstration Programme (1), on which the Committee
commented in its opinion of 11 July 1996 (2). The comments
on the present proposal carry forward the Committee’s
positions on the Demonstration Programme, which arose from
an initiative by, and cooperation between, the Environment,
Fisheries and Regional Policy DGs, and involving the Joint
Research Centre.

3.

Specific comments

3.1. A Common Vision (I)

3.1.1.
would, however, suggest broadening its scope:

The Committee generally agrees with this point. It

a)

b)

c)

to ensure that economic opportunities are available to
the zones in question and to promote initiatives leading
to lasting jobs, provided that objectives reflecting the
unique environmental features of coastal zones and their
biophysical fragility are adhered to;

to ensure that action to exploit these zones economically
respects the social and cultural identity of local communi-
ties;

to guarantee that adequate amounts of open land are set
aside and developed for future enjoyment by the entire
community, under balanced and sustainable environmen-
tal and landscape policies which also give consideration
to the use of environmental exploitation approaches;

(1) COM(95) 511 final.
(2) OJ C 295, 7.10.1996.

d)

e)

given the physical and environmental vulnerability of
coastal zones, to promote and safeguard the integrity of
the ecosystem, and sustainable management of both fish
stocks on the continental shelf and the flora and fauna of
the coastal zone and surrounding areas;

to extend the integrated management approach so as to
incorporate the more remote inland sea areas and the
hinterlands of coastal areas, throughout Europe.

3.2. Principles (II)

The Committee would make the following comments:

a)

b)

c)

d)

e)

the Commission emphasises that the coastal zone man-
agement model must be applied in a broad, long-term
perspective, drawing in all
the social and economic
players in these zones. The duration and impact of
phenomena particular to coastal zones are not immedi-
ately clear. Their effects are also influenced by upstream
human actions. Climate change too can trigger reactions
which jeopardise the dynamics and stability of coastal
zones, as in the case of the currently rising sea levels,
caused by higher temperatures, which disrupt the coastal
equilibrium;

the proposal argues that coastal zone management should
be interactive and adaptive in response to new data
generated by analysis of how coastal zones work;

coastal zone phenomena are influenced, or even deter-
mined, by upstream activities. Management strategies
must therefore take account of local factors: economic
players, local populations, existing ecosystems and their
level of stability/fragility, possible upstream influences,
aggressive impacts within the coastal zone (including
transport of polluting or hazardous materials; over-
fishing; and discharge of effluents harmful to biodiversity);

all these factors must be addressed and quantified in
input/output terms in order to plan coastal zone activities
with the involvement of all the relevant players;

the management model, while essentially being environ-
ment-based and taking account of
the fragility and
vulnerability of coastal zones, must not stray too far from
economic and social aspects, as mentioned earlier. An
this is the Rance estuary model, which
example of

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harnesses wave power to generate electricity and also
uses the silt to produce raw materials for the building
industry and organic compost fertilisers for agricultural
use. Other comparable European experiences might be
identified, as the related know-how should be brought to
bear in other areas (e.g. the Netherlands’ experience with
using advanced technologies to restore polders);

f)

coastal zone management must be based on systems
under which factors harmful to the physical environment,
biodiversity or the balance of terrestrial and marine
ecosystems can be monitored permanently. Appropriate
analytical methods, satellite remote sensing systems and
Geographical
Information Systems (GIS) are essential
tools in integrated management of coastal zones.

3.3. National Stocktaking (III)

4. Recommendations/suggestions for consideration in

formulating ICZM planning options

ICZM must be specially concerned with protecting
4.1.
water in both the sea and water courses flowing into it. Water
is the sector which will come under the greatest human
pressure, influencing the development of all socio-economic
sectors. In consequence, management of water quality and its
use as a resource will be one of the 21st century’s strategic
issues and must be taken on board in ICZM.

4.1.1.
Climate change, triggered by rising ambient tempera-
tures (the greenhouse effect), is increasing evaporation rates
and loss of water reserves; the Committee considers that ICZM
should look closely at the approach to water savings in rivers
and up-stream reservoirs. This should include testing new crop
systems which minimise water consumption.

3.3.1.
lows:

The Committee suggests amending point 2 as fol-

‘Stocktaking should cover all administrative levels (local,
regional and national), as well as identify the responsibili-
ties and functions of the “social partners” who are represen-
tative of citizens and their socio-economic organisations’.

4.1.2.
Scientists acknowledge the close link between stormy
sea conditions, floods and rising air temperatures, which will
affect the territorial stability of coastal zones. The Committee
believes that ICZM must include spatial planning and land-use
standards which reflect these new circumstances, without
prejudice to the need for a land-use policy for coastal zones.

3.3.2.
In describing and analysing coastal areas, all aspects
of overall regional development policies — including the rural
element — must be explored and if possible brought into
association: economic, social, research, education, vocational
training and job creation, and resource and waste management
policies.

There has been a marked rise in the use of marine plants
4.2.
and animals in biotechnological research for the treatment of
a wide range of diseases. The Committee is convinced that
ICZM should be largely directed to conserving marine organ-
isms in coastal areas.

3.3.2.1.
All the data gathered must be processed with a
view to an integrated approach to coastal areas, providing the
foundations for a comprehensive policy helping to consolidate
economic, social and environmental sustainability.

4.3.
ICZM must be more than a political commitment: it
should be put into practical effect. The Commission should
implement long-term strategies incorporating economically,
socially and ecologically sustainable development.

3.4. National Strategies (IV), Cooperation (V) and Reporting (VI)

3.4.1.
The Committee generally welcomes the guiding
principles as set out in the proposal. The future reports
should also contain all physical and financial implementation
indicators, including ex-ante and ex-post evaluations.

4.3.1.
The Committee’s view is that ICZM should also cover
action aimed at restoring coastal zones, particularly through
the reintroduction of wild birds and replenishment of marine
fauna resources. Environmental control should be backed up
with monitoring, and estuaries and other coastal zones should
be cleared of pollution (examples of this are the restoration of
the Tagus estuary and the surrounding wetland areas and the
restoration of the Guadalquivir estuary).

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5. Conclusions

The Committee recalls and repeats the conclusions of

5.1.
its earlier opinion on this subject (1), which remain valid.

5.2.
Planning and development in coastal zones depends
on a Community and national level approach to the process.
A range of budgetary resources (Community and national)
must be available for funding ICZM implementation. This will
enable the funds, structural and otherwise, to be tapped,
applying the additionality and complementarity principles.

5.2.1.
The financial package for implementing coastal zone
initiatives should be drawn from the Structural Funds and
from Community initiatives such as Interreg(2), without adding
to its overall volume, under a legal framework similar to that
for the Cohesion Fund. Member State projects should be
submitted in the form of sub-programmes, geared to the
specific objectives of sustainable coastal zone management, as
previously identified by the Demonstration Programme.

5.2.2.
Partnerships should be encouraged, drawing in all the
public and private sectors, through their sectoral associations
(social partners and other citizens’ organisations) with a view
to interesting them in planned initiatives in coastal zones and
their funding.

The Committee supports the creation of a Community-
5.3.
level management and coordination unit for future action in
coastal zones, bringing together the various Directorates-
General involved in the process on an intersectoral basis.

5.3.1.
In addition, each Member State should set up its own
national ICZM unit and corresponding monitoring committee,
comprising representatives of the social partners and of the
scientific community,
implementation
within its territory and coordinating with other countries’
management units at Community level.

to monitor project

5.4.
Given the encouraging results of the Demonstration
Programme (3), the Commission could have submitted more
practical proposals to resolve the numerous problems which
have already been identified, in order to ensure that current
decisions do not restrict future options.

The manifold importance of coastal zones and their
5.4.1.
natural resources (sea- and land-based) means they have a key
role to play in meeting the needs and aspirations of Europe’s
present and future population.

5.4.2. Measures restricting improper and intensive use must
be put in place, as such uses exacerbate unsustainable pressures
which are incompatible with coastal zones’ ecological fragility.

5.4.3.
purpose:

The following means of control are proposed for this

— monitoring of the pressures brought to bear on these

zones;

— adjusting land-use regulations in coastal zones so that
urban development
is kept within sustainable and
environment-friendly limits and ensuring that large natu-
ral open spaces are preserved;

— establishing a clear and robust legal framework to deter
improper use of coastal zones which would destroy their
fragile ecosystems.

Clearer details are needed of

5.5.
the policies to be
implemented by the Member States or third countries or
regions with coastal zones sharing a border with the EU, or
crossed by rivers which flow into such zones. The Committee
considers the importance of training, information and dissemi-
nation of initiatives within ICZM to be evident.

5.6.
The Committee considers that the establishment of an
information exchange centre (of an observatory type) for
countries with coastal zones should be promoted, as part of
ICZM.

5.6.1.
This forum should draw in the economic and social
partners involved in coastal zone issues, including the scientific
and research community, training bodies, local and regional
authorities and representatives of each Member State’s central
authorities, to discuss all questions affecting these zones from
every point of view, against a framework encompassing global
objectives and concrete future action.

(1) OJ C 295, 7.10.1996.
(2) Annex II of the Communication from the Commission to the

Member States C(2000) 1101 of 28.4.2000.

(3) COM(1997) 744.

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5.6.2.
The Committee believes that all Member States
involved in ICZM should prepare reports on the working
methods adopted, the results of initiatives, the degree of
involvement of the social partners, etc. The reports would be
one of the sources of information for discussion at meetings
of the information exchange centre.

Brussels, 28 March 2001.

The Committee

therefore welcomes

5.7.
the work
accomplished with the demonstration programmes and
believes it should continue: the strategy to be employed should
also comply with the overall guidelines of Council Resolution
94/C 135/02.

The President

of the Economic and Social Committee

Göke FRERICHS

Opinion of the Economic and Social Committee on the ‘Proposal for a Council Directive on
minimum standards for giving temporary protection in the event of a mass influx of displaced
persons and on measures promoting a balance of efforts between Member States in receiving
such persons and bearing the consequences thereof’

(2001/C 155/06)

On 25 July 2000 the Council decided to consult the Economic and Social Committee, under Article 262
of the Treaty establishing the European Community, on the above-mentioned proposal.

The Section for Employment, Social Affairs and Citizenship, which was responsible for preparing the
Committee’s work on the subject, adopted its opinion on 7 March 2001. The rapporteur was Mrs Cassina.

At its 380th plenary session (meeting of 28 March 2001), the Economic and Social Committee adopted
the following opinion with 101 votes in favour, no dissenting votes and one abstention.

1.

Introduction and content of the proposal

1.1.
The Commission adopted the proposal on 24 May
2000, in accordance with the relevant Treaty provisions (1) and
pursuant to the mandate of the Tampere European Council.
The need for an instrument
to handle mass influxes of
displaced persons from third countries has been highlighted in
recent years by the arrival of large numbers of displaced
persons from Bosnia and Kosovo. However, the proposal
— which implements a Treaty provision — seeks to do more
than just respond to a particular set of events; in tandem with
other proposed and/or adopted instruments, it seeks to equip
the Union with a comprehensive policy on visas, asylum and
immigration.

1.2.
The proposal establishes a temporary, exceptional
instrument to deal with mass influxes of displaced persons
from third countries who are unable to return to their country
of origin without risking their life,
liberty or dignity. The
proposal consists of a set of minimum standards, both
procedural and substantive, and measures to ensure a balance
of efforts between Member States in receiving displaced
persons and bearing the consequences thereof.

1.3.

The aims of the proposal are as follows:

(1) The main legal basis is Article 63(2)(a) and (b) of the Treaty.

— to guarantee that when Member States deal with mass
influxes of displaced persons, their procedures and actions
respect a minimum common standard, so as to avoid the
risk of distorting the spontaneous choice of host country;