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A STRATEGY FOR SCOTLAND'S COAST AND INSHORE WATERS

4. RESPONDING TO THE CHALLENGES: KEY OBJECTIVES AND ACTIONS

Within the sectoral papers the Scottish Coastal Forum identified a number of cross-cutting issues. These issues are pulled together in the previous chapter and highlighted as areas to be addressed through the strategy. From this analysis, seven over-arching goals have been identified, expressing the major changes needed if we are to ensure the sustainable management of our coast and inshore waters.

RESPONDING TO THE CHALLENGES

This section spells out what is needed to deliver the vision of a coastal management framework for Scotland which is "fit for purpose" and which embodies best international practice in this field. The following can, therefore be separated out into two areas: (i) concrete objectives for action and (ii) principles of good practice.

The main goals are:

• integration

• spatial planning and decision-making

• leadership

• value and resources

• working with dynamic processes

• stakeholder participation

Under each goal, specific objectives and the actions needed to deliver them have been identified along with relevant timescales. Short term in this context is considered to mean within 1-2 years, medium term - within 3-5 years, long term - 5 years and over .

OBJECTIVES FOR ACTION

4.1 INTEGRATION

4.1.1 GOAL:

To deliver integrated management for the whole Scottish coast at the most appropriate geographical scale.

4.1.2 RATIONALE

Coastal management initiatives in Scotland have generally demonstrated that there are important benefits to be gained by co-ordinated working. The advantages the local partnerships present are an ability to act as a central point of contact, a membership offering a diverse network of key stakeholders, and their experience in disseminating information and acting neutrally to resolve conflicts, but there is significant work required to reach full integration. Many initiatives struggle with a lack of clear remit or formal status, and problems in obtaining secure funding (probably linked to the former issue).

Duplication of effort can be reduced through integration of regulation and legislation at a national level leading to more efficient use of resources, both for the regulators and the commercial users of the resources.

4.1.3 IMPLEMENTATION

This section looks at the integration of policies and strategies in the coastal zone and puts forwards means of ensuring co-ordination between the various local, regional and national level. Integration between sectors and between the local, regional and national scale will go along way to delivering ICZM and this includes spatial planning covered in the next section.

The EU demonstration programme identified ways in which integration between plans should occur to achieve effective coastal management.

• horizontal (across organisations)

• vertical (national to local)

• territorial (limits of authority)

• temporal (development over time)

4.1.4 OBJECTIVE:

To integrate coastal management between the local, regional and national level.

4.1.5 OBJECTIVE:

To integrate the many sectoral strategies and objectives relating to the coastal zone.

4.1.6 OBJECTIVE:

To integrate planning, development and policy in the coastal zone.

4.2 SPATIAL PLANNING AND DECISION-MAKING

4.2.1 GOAL:

Establish an integrated system of spatial planning for Scotland's inshore marine area which combines with the terrestrial planning system.

4.2.2 RATIONALE

Good performance in terms of the management of the coastal zone will be reflected in a broad spectrum of indicators: high water quality and healthy fish stocks, stable or improving employment prospects, low risks of marine accident or pollution, sympathetic forms of physical development, and safeguard of valued marine habitats, landscape, and recreation areas. In an ideal world, effective sectoral regulation in inshore waters would deliver all of these elements independently. However in reality the whole package is unlikely to be delivered if the overarching planning system is only properly structured and resourced on the terrestrial side of the coastal zone.

Integrated coastal planning provides a systematic means of appraising opportunities and constraints in the coastal zone and of balancing development and conservation priorities. To carry moral authority it needs to be well-informed, democratically accountable and an open and responsive process.

Non-statutory (advisory) plans for coastal waters can be relatively quick to prepare and update, and as long as they have broad public support, they can be effective to an extent. They are certainly better than no planning framework at all. But publicly supported statutory plans carry more weight, and a statutory duty to prepare them and keep them up to date means that resources for the task must be allocated accordingly. Marine spatial planning in the UK is relatively underdeveloped (compared for example with Norway) because up to now it has been largely non-statutory and heavily reliant on the voluntary principle and short-term funding. This uncertain resource base has not stopped coastal management initiatives from coming forward but it makes for an inherently weak system, lack of continuity, and uneven coverage.

4.2.3 IMPLEMENTATION

A baseline level of integrated coastal zone management needs to be established for the whole Scottish coast. This should be delivered by revised and extended national planning guidance and by manifest co-ordination of the work of the relevant Government departments. Coastal areas with concentrations of activity in the inshore zone, special development or conservation potential, or pressures for multiple use (such as the major firths, sea lochs, and island groups) merit a more detailed planning framework. The SCF envisages the local authorities playing a leading role in the implementation of spatial planning in the marine environment as democratically elected bodies.

Any system of spatial planning in the marine environment should incorporate the best features of the terrestrial system, but also take account of the special characteristics of the marine environment and the needs of marine users.

4.2.4 OBJECTIVE:

Establish a baseline level of spatial planning policy guidance for the whole of Scotland's inshore zone by 2010.

4.2.5 OBJECTIVE:

Encourage local authorities to develop, in conjunction with the relevant bodies, an enhanced coastal planning framework which, in appropriate areas, provides detailed guidance for the development and sustainable use of inshore waters.

4.2.6 OBJECTIVE:

Encourage the pooling and dissemination of expertise in marine spatial planning within Scotland and develop links with centres of excellence elsewhere in the UK and abroad.

4.3 LEADERSHIP

4.3.1 GOAL:

To achieve effective, strategic and adequately resourced leadership for the management and sustainable use of coastal resources.

4.3.2 RATIONALE

The lack of clear responsibility for implementing Integrated Coastal Zone Management has limited the introduction of ICZM initiatives in Scotland. Importantly, it has also limited the translation of the principles of ICZM into the management and regulation of Scotland's coastal waters and their resources. If ICZM is to be delivered effectively, it will require this responsibility deficit to be addressed both at National and local levels. This must begin with strong political support and leadership at all levels of Government. The Scottish Executive need to take a stronger and more visible lead in ensuring the use and management of our coastal zone is undertaken in line with principles of ICZM.

4.3.3 IMPLEMENTATION

Taking forward the EC ICZM Recommendation in Scotland The UK Stocktaking Exercise and subsequent development of a coastal strategy for Scotland provides a timely opportunity for the Scottish Executive to reconsider their role in promoting ICZM in Scotland. However, it also requires a commitment to investigate and develop new mechanisms for delivering ICZM, in particular the introduction of marine spatial planning. Important aspects of future leadership include providing the policy background and direction to promote ICZM. It also needs to be backed up with the resource commitment to deliver ICZM.

Leadership on ICZM also needs to occur at the local level. In this strategy, we recommend the introduction of marine spatial planning as being the primary mechanism for translating the principles of ICZM into a workable system of forward planning and management in coastal waters. Leadership in ICZM is inherent in such a system, although it will require clear responsibility given to an agency (or agencies) to prepare a marine spatial plan for a given area (see goal 2 and its subsequent actions).

4.3.4 OBJECTIVE:

To establish strong, visible leadership on ICZM.

4.3.5 OBJECTIVE:

To create the capacity within relevant authorities to provide the lead on ICZM through the provision of additional resources, policy direction and authority.

4.3.6 OBJECTIVE:

To enable all coastal sectors and authorities to implement ICZM through their forward planning, regulation and management.

PRINCIPLES OF GOOD PRACTICE

4.4 THE VALUE AND RESOURCES OF OUR COAST

4.4.1 GOAL:

To safeguard the resources of Scotland's coast and inshore waters and to promote awareness of their value.

4.4.2 RATIONALE

The sustainable use of the natural and cultural heritage resources of the coastal zone requires regulatory and planning systems to ensure the protection and equitable use of the assets, based around informed decision making. A wider appreciation of the value of Scotland's coasts and inshore waters (in economic, social, environmental and cultural terms) is vital if a truly sustainable approach to ICZM is to be realised in Scotland. Different organisations, stakeholders, communities and individuals each consider different aspects of Scotland's coastal areas and inshore waters to be valuable or important. Appreciation of the market and non-market value of coastal resources and also of the values of other stakeholders forms an important part of the dialogue involved in establishing ICZM.

4.4.3 OBJECTIVE:

To raise awareness of the various values (economic, social, environmental and cultural) of the coast, in terms of monetary and non-monetary value, to allow decisions to be made with a greater understanding of relative values.

4.4.4 OBJECTIVE:

Improve the understanding of Integrated Coastal Zone Management, its principles, goals and objectives to a wide audience throughout Scotland.

4.4.5 OBJECTIVE:

To ensure decision-making relating to the coast is based on informed understanding and involves all levels of stakeholders from individuals, communities to government.

4.4.6 OBJECTIVE:

To safeguard Scotland's natural and cultural heritage assets in the coastal zone; encourage their promotion and interpretation in ways which maximise their sustainable use and educational, recreational and scientific value.

4.5 WORKING WITH NATURAL DYNAMIC PROCESSES

4.5.1 GOAL:

To better understand and work with natural processes as far as possible.

4.5.2 RATIONALE

It is essential that there is sustainable management of the coast within ICZM, through proper integration with the natural dynamic processes that exist. In order to do this, it is necessary to have a comprehensive understanding of what these are, and to ensure that this information is made available to all stakeholders so informed management decisions can then be made. This will become increasingly important under climate change uncertainties.

4.5.3 OBJECTIVE:

Improve our understanding of coastal processes - how the marine and terrestrial environments interact.

4.5.4 OBJECTIVE:

Determine and disseminate the implications of managing within the constraints of natural dynamic processes, including the development of prediction techniques.

4.6 STAKEHOLDER PARTICIPATION

4.6.1 GOAL:

To achieve effective stakeholder participation at the appropriate geographical and administrative levels.

4.6.2 RATIONALE

Meaningful participation of all involved, at whatever level, is absolutely vital for ICZM to work. It is essential

that very careful consideration be given to obtaining local opinion at every stage. The importance of local media cannot be over emphasised in particular local newspapers. Local politicians can often be influenced by their electorate and as such it is important for them to know that they have been involved in all forms of consultation.

4.6.3 OBJECTIVE:

To create and maintain sustainable participation structures appropriate to the nature of the issue, the geographic scale and administrative level.

4.6.4 OBJECTIVE:

To create an atmosphere of meaningful involvement based on realistic expectations of the influence that stakeholders can have.

4.7 RESEARCH, MONITORING, AND DATA AND INFORMATION

4.7.1 GOAL:

To co-ordinate research, data and information management activities, monitoring and evaluation of Scotland's Coasts and Inshore waters across Scotland.

4.7.2 RATIONALE

Research and monitoring of the coastal and marine resource is carried out throughout Scotland but there is little evidence of a co-ordinated strategic approach to these activities. Much of the resultant data and information gathered is funded from the public purse but the collecting agencies, in the research agencies and universities seem to be either unable or unwilling to place it in the public domain. This results in duplication and wasted resources.

4.7.3 IMPLEMENTATION

An audit should be carried out of the existing mechanisms for collection, analysis and dissemination of research, monitoring and data collection. The results of this should be used to identify gaps, raise awareness of current strategies and allow review opportunities for the application of methods of achieving harmonisation.

The Scottish Monitoring Strategy of the Water Framework Directive will help in co-ordinating monitoring in the coastal zone out to 3nm. If a central repository either real or virtual were created at national, regional or local level for information this could help create an environment of data sharing for differing and emerging policy areas. It would also give an indication of how much information, is collected at public expense and should identify the cost-benefits of data sharing and collaborative working. It would also illustrate the difficulties that some sectoral stakeholders may feel exist. The latter could be addressed by encouraging scientist/ stakeholder involvement in the development and management of the process. The range of stakeholders in this area should be identified centrally enabling dissemination examples of good practice in collaborative research and data monitoring and evaluation.

4.7.4 OBJECTIVE:

To make the most effective use of existing data and information and identify and prioritise gaps that require to be filled.

4.7.5 OBJECTIVE:

To promote collaborative working.

4.7.6 OBJECTIVE:

To create an integrated approach to research and monitoring of marine resources.

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