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1 Marine Strategy Framework Directive consultation Programme of Measures January 2015
2 Crown copyright 2015 You may reuse this information (excluding logos) free of charge in any format or medium, under the terms of the Open Government Licence v.2. To view this licence visit or This document/publication is also available on our website at: https://consult.defra.gov.uk/marine/msfd-programme-of-measures Any enquiries regarding this document/publication should be sent to us at: 2
3 Contents Summary... 5 Part 1: Explanation of the consultation... 8 Part 1: Section 1 Introduction... 8 What is the purpose of this consultation?... 9 Who will be interested in responding?... 9 Having your say... 9 Part 1: Section 2 Background to the MSFD Part 1: Section 3 The European and regional context Regional coordination requirements of the Directive European-level coordination Regional-level coordination Part 1: Section 4 How was the UK Programme of Measures developed? Requirements of the Directive Cost of measures Exceptions Part 2: Consultation Part 2: Section 1 Consultation approach Part 2: Section 2 Consultation questions on the proposals for the UK Programme of Measures Part 3: Proposals for the UK Programme of Measures Part 3: Section 1 Introduction Part 3: Section 2 Generic measures Marine planning and marine licensing Environmental Impact Assessment/Strategic Environmental Assessment/Habitats Regulations Assessment Common Fisheries Policy Water Framework Directive Marine Protected Areas
4 Habitats and Birds Directives Part 3: Section 3 Annexes of the proposed UK Programme of Measures for the MSFD Descriptors 1 to Descriptors 1 and 4 Fish Descriptors 1 and 4 Marine mammals Descriptors 1 and 4 Birds Descriptors 1, 4 and 6 Pelagic habitats Descriptors 1 and 6 Benthic habitats Descriptor 2 Non-indigenous species Descriptor 3 Commercially exploited fish and shellfish Fish Descriptor 3 Commercially exploited fish and shellfish Shellfish Descriptor 5 Human-induced eutrophication Descriptor 7 Hydrographical conditions Descriptor 8 Concentrations of contaminants Descriptor 9 Contaminants in fish and other seafood Descriptor 10 Marine litter Descriptor 11 Underwater noise
5 Summary Topic of this consultation Scope of this consultation The EU Marine Strategy Framework Directive (MSFD) requires EU member states to put in place measures to achieve or maintain Good Environmental Status (GES) by 2020 through the development of national marine strategies. This consultation sets out proposals for the UK s implementation of the third stage of the MSFD: the development of a programme of measures. This consultation covers the programme of measures element of the UK s marine strategy. We are not seeking comments on the characteristics of GES, the targets or the monitoring programmes set out in the UK s Marine Strategy Parts One and Two. Geographical scope To Body responsible for the consultation The proposals apply to the marine waters over which the UK claims jurisdiction, including territorial waters in Scotland, Wales and Northern Ireland. A programme of measures in British Gibraltar Territorial Waters is being prepared separately. This consultation has particular relevance to: groups or individuals who use the sea for whatever purpose, or have an interest in it business users of the sea and those businesses that have an impact on the sea national and local interest groups such as environmental and recreational non-governmental organisations and industry federations governments in other EU member states This consultation is being carried out by the Marine Strategy Framework Directive Implementation team in Defra s Marine programme on behalf of the UK government and the devolved administrations. Duration Consultation starts: 30 th January 2015 Consultation ends: 24 th April
6 Enquiries During the consultation, if you have any enquiries or wish to receive hard copies of the documents, please contact: Further information on the MSFD can be found at: How to respond Written responses can be submitted to: Marine Strategy Framework Directive Implementation team Area 8B Millbank c/o Nobel House 17 Smith Square London SW1P 3JR Or completed online via https://consult.defra.gov.uk/marine/msfdprogramme-of-measures. Responses must be submitted by 24 th April After the consultation At the end of the consultation period we will summarise the responses and place this summary on our website at sultations. Copies of responses will be made available to the public on request. If you do not want your response including your name, contact details and any other personal information to be publicly available, please say so clearly in writing when you send your response to the consultation. Please note, if your computer automatically includes a confidentiality disclaimer, this will not count as a confidentiality request. Compliance with Consultation This consultation is in line with the government s Consultation Principles. This can be found at 6
7 Principles Getting to this stage The Directive is being implemented in a coordinated way across the UK administrations. The proposals for the programme of measures have been developed by UK policy makers in consultation with technical experts involved in the UK Marine Monitoring and Assessment Strategy (UKMMAS), the Centre for Environment, Fisheries and Aquaculture Science (Cefas), the Joint Nature Conservation Committee (JNCC) and a range of other experts from other government departments and agencies. The UK also plays a leading role within OSPAR and for some measures it has been possible to coordinate measures at a regional seas level. Also, many of the measures are based on EU legislation which ensures a degree of coordination with other member states. Previous engagement There was a public consultation in 2012 on the implementation of the first elements of the MSFD, covering the UK s initial assessment, proposals on GES characteristics, targets and indicators for GES. A summary of responses was published in December /file/86574/msfd-consult-sumresp pdf. There was a subsequent consultation in 2014 on proposals for the UK marine monitoring programmes to monitor progress towards GES. A summary of responses was published in July /file/340986/msfd-consult-sum-resp.pdf. 7
8 Part 1: Explanation of the consultation Part 1: Section 1 Introduction 1. The Marine Strategy Framework Directive (2008/56/EC; MSFD) requires EU member states to take measures to achieve or maintain Good Environmental Status 1 (GES) for our seas by GES involves protecting the marine environment, preventing its deterioration and restoring it where practical, while using marine resources sustainably. Also, since some of the activities that impact on the marine environment are managed at a European or international level (eg fisheries and shipping) and other impacts can cross national boundaries (eg litter, eutrophication, noise), the MSFD provides a framework to improve coordination between member states and ensure action is taken at the appropriate level (eg international, European or regional seas). 2. The UK completed the first implementation stage of the MSFD in December 2012 with the publication of the UK s Marine Strategy Part One -marine-strategy-part pdf. 3. The second phase was the development of a UK marine monitoring programme to monitor progress towards GES. This was completed in July 2014 with the publication of the UK s Marine Strategy Part Two 4. The third stage is the implementation of management measures to maintain or achieve GES by The programme of measures has to be developed by December 2015 and implemented by December The aims of the Directive are consistent with the UK government and devolved administrations vision of clean, healthy, safe, productive and biologically diverse oceans and seas as set out in the UK Marine Policy Statement. The initial assessment of UK marine waters set out in the Marine Strategy Part One (which drew heavily from Charting Progress 2 2 and regional reports), recognised that although many aspects of the UK s marine environment are improving (eg the impacts of contamination), other aspects (eg fish populations) are degraded and continue to be affected by human activity. 1 Good Environmental Status means the environmental status of marine waters where these provide ecologically diverse and dynamic oceans and seas which are clean, healthy and productive within their intrinsic conditions, and the use of the marine environment is at a level that is sustainable, thus safeguarding the potential for uses and activities by current and future generations. A fuller description is set out in the MSFD (2008/56/EC) Article 3(5). 2 8
9 6. In line with the UK Marine Policy Statement, the UK government and devolved administrations have already put in place and committed to taking many measures that will improve the state of the UK s marine environment as part of ensuring sustainable development, most notably through the UK Marine and Coastal Access Act 2009, the Marine (Scotland) Act 2010 and the Marine Act (Northern Ireland) Equally, measures taken as a result of existing EU legislation, such as the Water Framework Directive (WFD), the Birds and Habitats Directives and the newly reformed Common Fisheries Policy (CFP), also contribute to improving the state of the UK s marine and coastal environments. These existing and planned measures form the core of our proposed programme of measures. Part 3 section 2 provides more details on generic measures that apply across several Descriptors. What is the purpose of this consultation? 7. The MSFD requires member states to make summaries of their programmes of measures available to the public for comment. The purpose of this public consultation is to fulfil this obligation and to provide the public and stakeholders with the opportunity to provide suggestions and comments. 8. The MSFD also requires member states to ensure the proposed measures are cost effective and technically feasible, and to carry out a cost-benefit analysis on any proposed new measures. The UK has not produced any formal impact assessments because the proposed measures identified have already been subject to assessment during their development. Who will be interested in responding? 9. This is a public consultation and it is open to anyone with an interest to provide comments. The consultation should be of particular interest to trade associations/bodies and non-governmental organisations (NGOs) concerned about the status of the marine environment. Having your say 10. Responses or queries should be submitted no later than 24 th April 2015 either in writing to Marine Strategy Framework Directive Implementation team, Area 8B Millbank, c/o Nobel House, 17 Smith Square, London, SW1P 3JR; by to or online via https://consult.defra.gov.uk/marine/msfdprogramme-of-measures. Unless you specifically request your response to be treated confidentially, responses may be made publicly available. Defra and the devolved administrations are also planning to hold a consultation event in connection with this initiative, and key stakeholders will be notified. 9
10 Part 1: Section 2 Background to the MSFD 11. The MSFD requires member states to take measures to achieve or maintain GES for their seas by It came into force on 15 July 2008 and was transposed into UK law by the Marine Strategy Regulations The Directive is wide-ranging and sets out 11 Descriptors of GES (see table 1). Table 1: MSFD Descriptors of Good Environmental Status (GES) MSFD Descriptors of GES 1. Biological diversity is maintained. The quality and occurrence of habitats and the distribution and abundance of species are in line with prevailing physiographic, geographic and climatic conditions ( Descriptor 1 or D1 ). 2. Non-indigenous species (NIS) introduced by human activities are at levels that do not adversely alter the ecosystems ( Descriptor 2 or D2 ). 3. Populations of all commercially exploited fish and shellfish are within safe biological limits, exhibiting a population age and size distribution that is indicative of a healthy stock ( Descriptor 3 or D3 ). 4. All elements of the marine food webs, to the extent that they are known, occur at normal abundance and diversity and levels capable of ensuring the long-term abundance of the species and the retention of their full reproductive capacity ( Descriptor 4 or D4 ). 5. Human-induced eutrophication is minimised, especially adverse effects thereof, such as losses in biodiversity, ecosystem degradation, harmful algae blooms and oxygen deficiency in bottom waters ( Descriptor 5 or D5 ). 6. Seafloor integrity is at a level that ensures that the structure and functions of the ecosystems are safeguarded and benthic ecosystems, in particular, are not adversely affected ( Descriptor 6 or D6 ). 7. Permanent alteration of hydrographical conditions does not adversely affect marine ecosystems ( Descriptor 7 or D7 ). 8. Concentrations of contaminants are at levels not giving rise to pollution effects ( Descriptor 8 or D8 ). 9. Contaminants in fish and other seafood for human consumption do not exceed levels established by Community legislation or other relevant standards ( Descriptor 9 or D9 ). 10. Properties and quantities of marine litter do not cause harm to the coastal and marine environment ( Descriptor 10 or D10 ). 11. Introduction of energy, including underwater noise, is at levels that do not adversely affect the marine environment ( Descriptor 11 or D11 ). 10
11 12. The aims of the Directive are to: i. Protect and preserve the marine environment, prevent its deterioration or, where practicable, restore marine ecosystems in areas where they have been adversely affected. ii. Prevent and reduce inputs in the marine environment, with a view to phasing out pollution, so as to ensure that there are no significant impacts on or risks to marine biodiversity, marine ecosystems, human health or legitimate uses of the sea. 13. The concept of sustainable use is enshrined within the Directive (Article 1(3)). In this context, this means ensuring that the collective pressure of human activities is kept within levels compatible with the achievement of GES, while ensuring that the capacity of the marine ecosystem to respond to human-induced changes is not compromised, whilst enabling the sustainable use of the marine environment now and in the future 3. Therefore, GES is unlikely to reflect a pristine status. In addition, prevailing environmental conditions, including natural variability and climate change, must also be considered. 14. The aims of the Directive are to be delivered through the development of marine strategies covering the elements set out in Figure 1. Figure 1: Key stages in the MSFD implementation process Key Stages in MSFD implementation process Initial assessment of UK seas Monitoring programmes established Programmes of measures developed Programmes of measures implemented Directive transposed GES determined, including targets and indicators GES achieved for UK seas 3 MSFD 2008/56/EC Article 1(3). 11
12 15. Each stage of the marine strategy must be reviewed every 6 years and revised if necessary 4. The programme of measures presented in this consultation is for the first period from 2014 to Where appropriate, it will be updated to take account of new developments and knowledge. 16. The Directive covers the extent of the marine waters over which the UK claims jurisdiction. This area extends from the landward boundary of coastal waters5 as defined by the WFD (which is equivalent to Mean High Water Springs) to the outer limit of the UK Exclusive Economic Zone (EEZ). It also includes the area of the continental shelf beyond the EEZ over which the UK has a claim6. The area of UK waters over which the MSFD applies is shown in Figure 2. Figure 2: Area of UK waters over which the MSFD applies 17. The Directive is being implemented in a coordinated way across the UK administrations. The UK proposals for a programme of measures in this consultation have been developed at a UK-wide scale with input from experts and policy makers across the UK administrations. The devolved administrations will lead the development and implementation of measures for their marine waters. Gibraltar has a separate 4 As required under Article 17(2) of Directive 2008/56/EC. 5 The MSFD includes Coastal Waters (as defined by the Water Framework Directive, WFD), but does not include WFD Transitional Waters (eg estuaries, sea lochs, coastal lagoons). 6 This area is defined by the Continental Shelf Act In this area the requirements of the Directive (including the requirement to put in place measures to achieve GES) apply only to the seabed and subsoil and not to the water column. 12
13 implementation process and is developing a programme of measures for British Gibraltar Territorial Waters. Part 1: Section 3 The European and regional context Regional coordination requirements of the Directive 18. A key requirement of the Directive is that member states must take a coordinated approach to implementation, co-operating with other member states in the relevant marine region or subregion to ensure each element of their marine strategies is coherent and coordinated. 19. The Directive splits Europe s waters into 4 marine regions and associated subregions, as set out in Table 2. Table 2: MSFD marine regions and associated subregions Marine regions The Baltic Sea The North East Atlantic Ocean The Mediterranean Sea The Black Sea Relevant subregions (if any) No subregions specified The Greater North Sea, including the Kattegat and the English Channel The Celtic Seas The Bay of Biscay and the Iberian Coast The Macronesian biogeographic region (the waters surrounding the Azores, Madeira and the Canary Islands) The Western Mediterranean Sea The Adriatic Sea The Ionian Sea and the Central Mediterranean Sea The Aegean-Levantine Sea No subregions specified 20. The UK s marine waters are in the North East Atlantic Ocean marine region, with waters to the west of the UK forming part of the Celtic Seas subregion, and waters to the east of the UK, including the Channel, forming part of the Greater North Sea subregion. The UK shares the Celtic Seas subregion with Ireland and France, and the Greater North Sea subregion with France, Belgium, Netherlands, Germany, Denmark, Sweden and Norway. All these countries are members of the OSPAR Regional Sea 13
14 Convention 7 for the North East Atlantic and OSPAR has played the primary role in coordinating the implementation of the Directive in this marine region (see further details below). 21. The UK has one marine strategy covering the whole of our marine waters. The UK initial assessment, characteristics of GES and associated targets and indicators were developed at this scale, in coordination with other countries in the North East Atlantic Region. However, where there are significant biogeographical differences between the Greater North Sea and the Celtic Seas subregions these were taken into account. The initial assessment made reference to the status of UK waters at the scale of the subregions and a series of informal assessment regions developed for Charting Progress 2. European-level coordination 22. Coordination between countries is taking place both at a European level (for generic issues) and within the specific marine regions set out in Table 2 (for more detailed issues). At a European level, coordination is being carried out through a series of informal working groups led by the European Commission: i. The Working Group on GES: this working group focuses on issues concerning the characteristics of GES and the associated targets and indicators, with the aim of ensuring comparable approaches are taken across the EU. ii. iii. iv. The Working Group on Economic and Social Analysis: this working group is cochaired by the UK and supports member states in meeting the economic and social assessment requirements of the Directive, with the aim of ensuring comparable approaches are taken across the EU. The Working Group on Data, Information and Knowledge Exchange: this working group has been set up to develop a coordinated MSFD information and data reporting process. The working group is developing proposals for reporting programmes of measures. It will also address the development of the data infrastructures that are needed to facilitate the implementation of the Directive at European- and member state-level, working as far as possible to use existing data initiatives and to remove duplication of reporting with related Directives. There are also 2 EU technical subgroups, one on marine litter (Descriptor 10) and one on noise 8 (Descriptor 11) which have a remit to review monitoring methodologies and develop proposals for new monitoring; provide a platform for sharing best practice on the development of GES characteristics, targets and indicators; and recommend proposals for further research The noise group is co-chaired by the UK. 14
15 23. The UK has played a pro-active role in all the European working groups and, wherever possible, the recommendations and guidance produced by these groups has been taken into account in finalising the proposals set out in this consultation. Regional-level coordination 24. At a North East Atlantic regional level, more in-depth coordination is taking place between the UK and other relevant countries. The key forum for regional coordination is OSPAR which has made MSFD implementation a significant element of its work programme. 25. Considerable efforts have been made to coordinate the UK approach with that of other countries in the North East Atlantic. In its role as a co-convenor of the OSPAR group dealing with MSFD issues, the UK has played a significant role in developing a regional plan to improve adequacy and coherence of MSFD implementation and is involved in a group looking at how to further develop regionally-coordinated measures along the lines of the OSPAR Regional Action Plan on Marine Litter. Part 1: Section 4 How was the UK Programme of Measures developed? Requirements of the Directive 26. One of the key considerations in developing the programme of measures is to ensure that it meets the requirements of the Directive. The key articles are set out below: Key articles and what they mean Articles 5(2), 13(10) and 18: Requirement for a PoM and reporting Member states are required to develop a programme of measures designed to achieve or maintain good environmental status. The programme of measures needs to be developed by the end of 2015 and reported to the European Commission by the end of March It needs to be made operational by the end of Member states must, within 3 years of the publication of their programme of measures, submit to the European Commission a brief interim progress report. Article 13(1), (9) and Annex VI: Overall framework for the PoM These set out the overall framework that programmes of measures need to follow. Member states must identify the measures which need to be taken to achieve or maintain good environmental status (as defined by the member state) in their marine waters. The measures should relate to the member states initial assessment and the environmental targets. The programme of measures should take into consideration the types of measures listed in Annex VI and be coherent and coordinated across the relevant marine region. 15
16 Article 13(7): How the PoM will address pressures/improve status The programme of measures should indicate how measures identified contribute towards the maintenance or achievement of GES. Article 13(2): Existing EU and other policies The programme of measures should take into account relevant measures required under existing and planned EU legislation and other international agreements. Article 13(3): Socioeconomic impacts Member states must give due consideration to sustainable development and, in particular, to the social and economic impacts of the measures envisaged and that measures are cost effective and technically feasible and carry out impact assessments, including cost-benefit analyses, prior to the introduction of any new measures. Article 13(4): Spatial protection measures Member states are required to include spatial protection measures in their programmes of measures that contribute towards coherent and representative networks of marine protected areas, adequately covering the diversity of the constituent ecosystems. Article 13(8): Impacts on waters of other member states Member states should consider the implications of their programme of measures on waters beyond their marine waters. Article 16: Assessment The European Commission will assess member states programmes of measures within 6 months of them being received. Article 17(2) (d): Updates An update of the programmes is required every 6 years, ie by 31 March 2022 at the latest. Article 14: Exceptions There are 2 broad categories of exceptions, under Article 14(1) and 14(4), with different obligations attached. Article 14(1) covers exceptions to reaching GES or the associated targets. These can fall within distinct subcategories: action or inaction for which the member state concerned is not responsible natural causes force majeure modifications or alterations to the physical characteristics of marine waters brought about by actions taken for reasons of overriding public interest which outweigh the negative impact on the 16
17 environment, including any transboundary impact natural conditions which do not allow timely improvement in the status of the marine waters concerned. Article 14(4) allows for 2 additional subcategories of exceptions: "significant risk" and "disproportionate costs". 27. When developing our programme of measures we have followed the European Commission guidance document Programmes of measures under MSFD: Recommendations for establishment / implementation and related reporting. This document sets out basic principles for the establishment of programmes of measures, guidance for their implementation and the main elements to be considered when reporting programmes of measures to the European Commission. It includes the following definitions: Measure" in the MSFD should be considered as any action on a national-, European- or international-level with a view to achieving or maintaining GES and with reference to the environmental targets. While MSFD measures will primarily focus on changing the intensities of predominant pressures, activities to improve environmental status directly, such as restoration of habitats and reintroductions of species, can also be defined as measures under the MSFD. A programme of measures (PoM) is a set of measures that the member state is responsible for implementing, put into context with each other, referring to the environmental targets they address. The programme of measures includes existing and new measures. 28. As required by the Directive, our starting point for the UK s programme of measures was to identify those measures under existing EU and international agreements that contribute towards the targets set out in our Marine Strategy Part One and to achievement or maintenance of GES. We have also identified those measures under existing national policies that contribute to our targets and to achieving or maintaining GES. In addition to these existing measures, we have identified further EU, international and national measures that have been agreed (ie planned) but that have not yet been implemented. 29. Based on this inventory of existing and planned additional measures we believe that our proposed programme of measures is sufficient to meet our targets and to help achieve or maintain GES as defined in our Marine Strategy Part One. The monitoring programme established under our Marine Strategy Part Two will provide information on progress towards our targets and we will review our approach where necessary. In addition, for some Descriptors work is already underway to develop suitable targets and indicators. These tend to be in cases where gaps in our evidence and knowledge 17
18 base remain. In other cases, we have established surveillance indicators that will provide data that will enable us to develop, where necessary, suitable indicators and targets in the future. Finally, there are those cases where we believe that the necessary measures are in place but where it might not be possible to demonstrate that GES has been achieved by Cost of measures 30. The cost of these existing and planned additional measures has already been accounted for in relation to the specific policies they relate to. This means that significant additional costs arising from the MSFD are not envisaged. This applies to the Descriptors on commercial fish, eutrophication, hydrographical conditions, contaminants, contaminants in seafood, elements of marine litter, and the proposals for marine mammals, birds, (non-commercial) fish and benthic habitats (those elements covered by the Habitats Directive and WFD). 31. For other Descriptors, particularly those where we identified surveillance indicators in the Marine Strategy Part One, further work is needed to develop our understanding of current risks, the level of pressures and impacts. This covers in particular nonindigenous species, some of our targets on benthic habitats, litter on the seabed and underwater noise. Exceptions 32. The Directive provides, at Article 14, for instances which member states may identify within their marine waters where, for certain specified reasons, the environmental targets or GES cannot be achieved through measures taken by the member state, or, that they cannot be achieved by Where we believe these exceptions apply it is indicated in the relevant section of the proposed programme of measures. Part 2: Consultation Part 2: Section 1 Consultation approach 33. This consultation provides summaries of the proposed measures for each of the 11 Descriptors of GES. They are presented in a series of annexes and for each Descriptor and provide: the current status of the Descriptor the agreed targets and indicators our proposed approach for that Descriptor a more detailed description of the proposed measures the degree of coordination with other countries 18
19 the contribution of the proposed measures towards the achievement of GES and the related environmental targets by 2020 details of whether any exceptions apply gaps and issues relating to each Descriptor Table 3 gives some background to the individual sections. Table 3: Rationale for the sections used to help articulate the summary of the UK Programme of Measures Section Section 1: Status of the Descriptor in UK seas Section 2: UK Marine Strategy Part One characteristics of GES, targets and indicators Section 3: The extent that UK targets have already been achieved and the nature of the measures that will be used to achieve Good Environmental Status Section 4: Existing measures Section 4: Planned measures Reason for inclusion This gives a picture of the current state of knowledge about the extent to which GES has been achieved and where there are still problems. It is based on the 2010 Charting Progress 2 report, which was also the basis for the UK initial assessment for the MSFD. It provides context on the extent of measures that might be needed. This provides a reminder of the UK characteristics, targets and indicators the UK has set for the achievement of GES. These are as set out in the Marine Strategy Part One and are not subject to change at this stage. This aims to provide a quick, easy-to-read summary of our approach for that particular Descriptor and how the measures will address the associated targets. This provides a summary of existing measures which are already being implemented and which will help achieve or maintain GES. This provides a summary of measures which have been agreed but not yet implemented and which will help achieve or maintain GES. 19
20 Section 4: New measures Section 4: Extent to which measures are coordinated and coherent at a UK, subregional and/or regional level Section 4: Impact measures have on waters of other countries Section 5: Contribution of the measures to achieving GES Section 6: Contribution of the measures to Marine Protected Areas Section 7: Gaps and issues Section 8: This provides a summary of any new proposed measures which will help achieve or maintain GES. This provides an overview of the degree of coordination for the measures identified. This provides information on how the measures identified could impact neighbouring member states waters. This provides an assessment of the extent that the proposed measures are sufficient to achieve or maintain GES by It also identifies where exceptions under Article 14 are relevant. This provides information on how the measures identified could contribute to the development of a coherent network of Marine Protected Areas. This sets out any: gaps in our understanding of the Descriptor or aspects of the Descriptor gaps in the programme of measures that are preventing the UK from meeting its targets further development of targets needed to help achieve or maintain GES This sets out any relevant additional information. Additional information 20
21 Part 2: Section 2 Consultation questions on the proposals for the UK Programme of Measures 34. For the proposals on the programme of measures the UK government and devolved administrations would like to seek views from stakeholders on the following questions. The questions should be applied to each individual GES Descriptor: Question 1: Are the proposed measures for the Descriptor sufficient to meet the requirements of the Directive, bearing in mind the current limitations in our knowledge base? Question 2: Are there any additional existing or planned measures for this Descriptor we have not identified that might also contribute to the achievement of the relevant environmental targets and the achievement or maintenance of GES? Question 3: Are there any new measures that are needed? If so please provide details and evidence to show how they would contribute towards the achievement or maintenance of GES or the environmental targets as set out in the Marine Strategy Part One. Question 4: Are there any measures proposed that you think are not justified or that will not contribute towards the achievement or maintenance of GES or the environmental targets set out in the Marine Strategy Part One? Question 5: Do you agree with the justifications provided for the use of exceptions under Article 14? Question 6: Are there any significant human activity-related pressures that are not addressed by the proposed measures? Part 3: Proposals for the UK Programme of Measures Part 3: Section 1 Introduction 35. Part 3 outlines the UK s proposed programme of measures in 2 ways. Section 2 describes some generic measures that are applicable to a number of the Descriptors. It provides information on those measures to avoid repetition in the following annexes. Section 3 sets out the proposed programme of measures in relation to each Descriptor and is the focus of this consultation. 36. Proposals for Descriptors 1 (biodiversity), 4 (food webs) and 6 (seafloor integrity) are set out first. As in the Marine Strategy Parts One and Two, we have combined these 21
22 Descriptors and have addressed them in relation to their relevance to categories of species (fish, marine mammals and birds) and habitats (pelagic habitats and benthic habitats). 37. We then provide separate annexes for our proposals for Descriptors 2 (non-indigenous species), 3 (commercially exploited fish and shellfish), 5 (human-induced eutrophication), 7 (hydrographical conditions), 8 (concentrations of contaminants), 9 (contaminants in fish and other seafood), 10 (marine litter) and 11 (underwater noise). 38. There are many detailed individual, local-scale measures that relate to specific areas or circumstances. It would not be possible to detail all of those individual measures here. Instead we have provided a description of the overarching mechanisms under which the individual measures are delivered and the sorts of actions that can be taken. Part 3: Section 2 Generic measures 39. A number of the proposed measures have an impact on more than one of the Descriptors. These are referred to in each of the individual Descriptor annexes but we have also provided an overview of these generic measures below. Marine planning and marine licensing 40. The UK marine planning system, incorporating a new licensing regime, was set up under the UK Marine and Coastal Access Act 2009, the Marine Act (Northern Ireland) 2013 and the Marine (Scotland) Act 2010 to ensure the sustainable development of marine resources; this includes applying an ecosystem-based approach to the management of human activities. 41. Marine plans set out policies aimed at contributing to the achievement of sustainable development in the UK s marine area in line with the framework established by the UK Marine Policy Statement which all 4 UK administrations adopted in One of the core aims of marine planning is to manage human impacts on marine ecosystems so that they continue to provide goods and services which benefit society. The UK Marine Policy Statement clearly identifies the MSFD as one of the environmental legislative provisions that should be taken into account in the marine planning process and, where appropriate, reflected in the marine plans. In the UK, marine plans are either at a national level, eg the Scottish National Marine Plan, or a subnational level, eg the East Inshore and East Offshore Marine Plans in England. 42. Marine plans will contribute to meeting the objectives of the MSFD, particularly in relation to any measures which have a spatial dimension. Marine plan authorities will need to consider how marine plans can shape activities within the marine area to support the goals of the MSFD, as well as those of other relevant pieces of EU legislation. Development of marine plans in the UK is consistent with the timetable set 22
23 out in the recently agreed Maritime Spatial Planning Directive (2014/89/EU) which requires marine plans to be completed by 31 st March Policies in marine plans can also set a more general framework and/or provide direction, as appropriate. Decision makers must take into account the level and type of human activity which should be permitted given the condition and sensitivity of the ecosystem; and consider mitigation measures or conditions which should be put in place in relation to development and use. 44. In addition, the process of preparing marine plans, which involves significant levels of stakeholder engagement, provides a range of opportunities for communication and raising public awareness of issues related to the marine environment. 45. Marine plans are subject to the Strategic Environmental Assessment Directive. Marine licensing decisions which are made under the Marine and Coastal Access Act 2009 and the Marine (Scotland) Act 2010 must also be compliant with the Environmental Impact Assessment Directive and existing nature conservation regimes, where appropriate. In England, nationally significant infrastructure project applications, including larger ports and offshore renewable energy projects, will be decided in accordance with the relevant National Policy Statement, subject to certain exceptions, and having regard to the UK Marine Policy Statement. 46. The UK marine planning system will make a positive contribution towards the achievement of GES. Specific actions have been identified in particular for Descriptor 1 (Biodiversity), Descriptor 6 (seafloor integrity), and Descriptor 7 (Hydrographical conditions) relevant to particular plan areas. The Scottish National Marine Plan has adopted the 11 GES Descriptors as strategic objectives, ensuring that these underpin the planning process. Environmental Impact Assessment/Strategic Environmental Assessment/Habitats Regulations Assessment 47. These 3 measures cover the strategic planning, assessment, and licensing of a marine development and will as a result contribute, at a generic level, towards the achievement and maintenance of GES by avoiding unintentional and irrevocable consequences for the environment. 48. Environmental impact assessment applies a procedure for the assessment of the environmental effects of projects which are likely to have a significant effect on the environment. It requires that development consent (for example, planning permission) for projects which are likely to have significant effects on the environment should be granted only after an assessment of the likely significant environmental effects of those projects has been carried out. 23
24 49. Strategic environmental assessment is a European Union requirement (Directive 2001/42/EC on the assessment of the effects of certain plans and programmes on the environment) that seeks to provide a high level of protection of the environment by integrating environmental considerations into the process of preparing certain plans and programmes which are likely to have significant effects on the environment. The Environmental Assessment of Plans and Programmes Regulations 2004 implements the requirements of the Directive in England. 50. The Habitats Directive protects certain species of plants and animals which are particularly vulnerable. The Directive specifically relates to Special Protection Areas (SPAs) and Special Areas of Conservation (SACs) known as Natura 2000 sites. The UK regulations used to implement the EU Directive require a Habitats Regulations Assessment (HRA). The process of HRA involves an initial screening stage followed by an appropriate assessment (AA) if proposals are likely to have a significant (adverse) impact on a Natura 2000 site. The potential consequences of developments on European protected species also need to be considered. Common Fisheries Policy 51. Appropriate fisheries management measures will make a positive contribution to the achievement of the GES targets proposed for Descriptor 1 (biodiversity), Descriptor 3 (commercial fisheries), Descriptor 4 (food webs) and Descriptor 6 (seafloor integrity). 52. The Common Fisheries Policy (CFP) is the principal legal mechanism for managing fish stocks in EU waters and its implementation will play a critical role in supporting the achievement and maintenance of GES and ensuring consistency across European waters, promoting sustainable stocks and fishing practices. The kinds of measures include technical measures on gear selectivity, eliminating discards, spatial restrictions and limits on landings. These measures will be focussed both on achieving targets for Maximum Sustainable Yield in commercial fisheries (taking into account the complexity of mixed fisheries and interactions between stocks) and on achieving sustainable use of the marine environment outside the Marine Protected Area network. Given the links between CFP and MSFD, stakeholders interested in implementation of the MSFD may also wish to engage in the current public consultation on the implementation of the demersal landing obligation in England. This is a ban on the discarding of fish, preventing fish being thrown back into the sea after being caught, except when subject to specific exemptions. Further information on the consultation can be found at https://consult.defra.gov.uk/fisheries/demersal-landing-obligation-in-england. Water Framework Directive 53. There are strong links between the Water Framework Directive (WFD) and the MSFD. They have comparable objectives, with MSFD focussed on the achievement of GES in marine waters, and WFD aiming to achieve Good Ecological and Good Chemical Status. Whilst Good Environmental Status is not exactly equivalent to Good 24
25 Ecological/Chemical Status there are some significant areas of overlap, particularly in relation to chemical quality, the effects of nutrient enrichment (eutrophication) and some aspects of ecological quality and hydromorphological quality. 54. There is also some overlap between the waters covered by the WFD and the MSFD. The WFD relates to surface waters throughout a river basin catchment from rivers, lakes and groundwaters through to transitional and coastal waters to 1 nautical mile out to sea (3 nautical miles in Scotland) and overlaps with MSFD in coastal waters. The MSFD includes coastal waters (as defined by the WFD) but does not include WFD transitional waters (eg estuaries, sea lochs and coastal lagoons). For estuaries, the boundary between the 2 Directives is the bay closing line which is the seaward limit of transitional waters as defined under the WFD. See Figure 3 below. Figure 3: MSFD/WFD boundaries 55. The MSFD recognises these overlaps with the WFD and makes it clear that in coastal waters the MSFD is only intended to apply to those aspects of GES which are not already covered by the WFD (eg noise, litter, most commercial fish species and aspects of biodiversity). Further guidance can be found in Defra s factsheet waterdirective.pdf. 56. For Descriptor 8 (contaminants) and Descriptor 5 (eutrophication), given that most of the anthropogenic activities which cause these pressures are either terrestrial in nature or are taking place in the coastal zone, it is considered highly likely that measures taken under the WFD and its related Directives will be sufficient to achieve and maintain GES for these Descriptors across the UK s wider marine area. For Descriptor 7 (hydrographical conditions), it is considered that the application of the WFD in the 25
26 coastal area, plus the wider application of the Environmental Impact Assessment Directive through the marine licensing process, will be sufficient to achieve GES for this Descriptor across the UK s marine waters. 57. Given the strong links between the MSFD and the WFD, stakeholders interested in implementation of the MSFD may also wish to engage in the current WFD cycle 2 processes and associated consultations. Further information on the current consultations on the draft updated river basin management plans can be found at: England and Wales: and https://consult.environmentagency.gov.uk/portal/ho/wfd/draft_plans/consult?pointid=s #sections Scotland: Northern Ireland: Marine Protected Areas 58. The UK s network of MPAs will play a significant role in supporting the achievement of a number of the GES characteristics and targets set out in this Strategy in particular for Descriptor 1 (biodiversity) and Descriptor 6 (seafloor integrity). The UK MPA network forms an integral element of the proposed programme of measures for GES, contributing to the Directive s requirements to put in place spatial protection measures which contribute to a coherent and representative network of MPAs. 59. The UK MPA network includes Natura 2000 sites designated under the Birds and Habitats Directives, as well as sites designated under national legislation in each of the UK administrations. These cover both predominant habitats and special habitats and species. The extent of the network is still being finalised and the management measures needed to achieve the site conservation objectives, in many cases, are still under development. We expect the network to be representative and ecologically coherent, with effective management in place by 2016, and that it will play a critical role in improving the status of the UK s marine habitats and species. 60. In England, there are plans for a second tranche of Marine Conservation Zones (MCZs) in 2015 with a third tranche to follow to complete the English component of the UK s contribution to an ecologically-coherent network of MPAs. Given the links between the MSFD and MPAs, stakeholders interested in implementation of the MSFD may also wish to engage in the public consultation on MCZs. Further information on the MCZ consultation can be found at https://consult.defra.gov.uk/marine/tranche2mczs. 26
27 Habitats and Birds Directives 61. Significant habitat and species protection is also already provided in UK waters through the implementation of the Habitats and Birds Directives (92/43/EEC and 2009/147/EC respectively). The spatial protection aspects of these Directives have already been mentioned under the section on MPAs, but these 2 Directives also set a number of specific conservation objectives for particular species and habitats. Measures taken under the Habitats Directive are designed to achieve Favourable Conservation Status (FCS) for the species and habitats listed. The aims of the Birds Directive relate to the conservation of all species of naturally-occurring birds in the wild state in the European territory of the member state to which the Treaty applies. 62. Due to the strong links between the MSFD and these 2 Directives, the management measures to achieve the aims of the Habitats and Birds Directives will play a significant role in achieving the GES targets for Descriptors 1 (biodiversity), 4 (food webs) and 6 (seafloor integrity). 27
About the Councils for the Environment and Infrastructure
About the Councils for the Environment and Infrastructure The Councils for the Environment and Infrastructure (Raden voor de Leefomgeving en Infrastructuur, RLI) advise the Dutch government and Parliament