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REVIEW OF INTEGRATION AMONG PLANS FOR THE COAST IN SCOTLAND: Analysis of the SCF Coastal Plans Inventory

EXECUTIVE SUMMARY

1. ArupScotland, in association with Brady Shipman Martin, have been commissioned by the Scottish Executive Central Research Unit to undertake a research project entitled "Analysis of the Coastal Plans Inventory", based on a database of plans developed by the Scottish Coastal Forum (SCF) in 2000. The Inventory records documented planning activities currently being undertaken which are considered to have an impact on the coastal zone.
2. The research had two main aims, to identify the level of integration that exists between plans and management strategies with a coastal zone, and identify measures to strengthen the level of integration between plans.
3. To achieve these aims, the research has four key objectives:

• To review the relationship between existing plans and management strategies which affect the management of the coast.
• To assess the extent to which they contribute towards a co-ordinated approach to coastal zone management.
• To establish the extent to which coastal management strategies prepared by voluntary partnerships influence partner organisations' plans and strategies.
• To identify where linkages and mechanisms require strengthening, and to suggest methods of achieving this.

4. Amongst the various definitions for Integrated Coastal Zone Management (ICZM), the most appropriate to this research is considered to be

5. "The multidisciplinary process that brings all those involved in the development, management and use of the coast within the framework which facilitates the integration of their interests and responsibilities. The aim is to achieve common objectives and to provide programmes for the protection and sustainable management of coastal resources and environments." (Cordah 2001):

6. The context for ICZM in Scotland is provided by NPPG13 Coastal Planning and is also enshrined in development planning polices contained in the relevant Structure and Local Plans. In addition, the "Focus on Firths" project, organised by Scottish Natural Heritage, encouraged the development of a number of local coastal fora. Fora are voluntary partnerships supported by statutory authorities and represent a 'bottom-up' approach to coastal management and planning.
7. The research also draws on the findings of the EU Demonstration Programme on ICZM that involved the analysis of 35 case studies (some of them adopting the fora approach) between 1997 and 2000. In particular, the research methodology reflects the four ways of plan/policy integration (i.e. horizontal, vertical, territorial and temporal) as identified by the EU Demonstration Programme. The EU Demonstration Programme also provides the key principles against which the level of policy/strategy integration will be assessed.
8. The Coastal Plans Inventory contains both statutory and non-statutory plans. The basis of this study is to review the current plans available at the time of study. The assessment uses the following techniques:

• Categorising the plans according to their 'type'.
• Identifying the position of the plan in a hierarchical statutory framework.
• Assessing the level of plan integration against a three-fold system, i.e. 'Level A', 'Level B' and 'Level C', 'Level A' having the lowest level of integration and 'Level C' the highest.
• Counting the integration scores (particularly the number of 'BC' and 'C' level scores) and ranking them accordingly.

8. The research seeks evidence of integration through the analysis of four case studies in Scotland: Firth of Clyde, Cromarty Firth, Orkney Islands and the Aberdeen and Aberdeenshire Coast. They represent areas with different type/number/coverage of hierarchical plans, geographical characteristics (e.g. mainland versus island, urban versus rural) and coastal management initiative (e.g. a fora or ICZM initiative). The Aberdeen and Aberdeenshire Coast is chosen as an area without an ICZM Strategy prepared by a coastal initiative.
9. In this research, it is considered more appropriate to use qualitative rather than quantitative indicators. For this reason the following three 'search areas' are examined. To enable consistency in analysis, the following main headings are used:

• Completeness: this relates to the completeness of plans and management
• Quality and Best Practice: this concerns the quality of output and use of best practice in drawing up the plans
• Consensus: This relates to the level of public participation and consensus between conflicting interests in the coast when compiling the plans

10. These 'search areas' therefore allow a qualitative assessment of the level of integration and provide a future platform for the formulation of quantitative indictors.
11. Key findings of the research indicate:

• That the level of integration amongst the first rank plans is substantial. Integration and cross-referencing of policies/strategies across the other plans is relatively less obvious.
• That all authorities and agencies are conscious of the need for co-ordination and meaningful participation across all sectors.
• That the presence of voluntary initiatives assists in the development of a long-term strategic vision for coastal management. Findings indicate that in the absence of these fora, plans/strategies tend to be more short-term focused and potentially neglect the coast.
• That there is a need for more up front public consultation and participation techniques including 'planning for real' in the preparation of ICZM plans.
• That while the EU principles and best practice are reflected in ICZM plans generally there is a risk that these may not be understood or implemented in those areas that do not have any fora or specific coastal strategies.
• There is an absence of any conscious synchronisation of time scales and cycles in the overall plan making/review process. Until this begins to happen integration of plans and strategies will continue to be spasmodic.
• That all parties appear to subscribe to the concept of sustainable development. However the effort toward sustainable development is primarily driven by the environmental side of the balance sheet.

12. To conclude, integration of plans/strategies relating to coastal management in Scotland is currently sitting on the boundary between the voluntary and statutory led approach. Some of the case studies show a fragmented approach and a national coastal strategy could assist in setting a context for the voluntary partnerships to develop integration. In addition, the national strategy should consider the role it would have in dissemination of the EU principles and best practise. The national strategy should also set the agenda for ICZM activities and identify baselines and standards for ICZM in Scotland. This would have the benefit of developing a more holistic ICZM, that is, not biased towards economic or environmental issues.

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