Strategic Environmental Assessment Practice in coastal ...



Strategic Environmental Assessment Practice in Integrated Coastal Zone Management

Kogi Govender

CSIR Environmentek

P O Box 17001

Congella

4013

Tel: +27 31 2422359

Fax: +27 31 2612509

e-mail: kgovender@csir.co.za

Ivica Trumbic

United Nations Environment Programme

Mediterranean Action Plan

Priority Actions Programme Regional Activity Centre

Kraj Sv. Ivana 11

21000 Split

Croatia

Tel: +385 21 340 470

Fax: + 385 21 340 490

e-mail: ivica.trumbic@ppa.htnet.hr

PURPOSE OF PAPER

Strategic Environmental Assessment (SEA) is an environmental assessment process that facilitates decision-making above the project level, i.e. to policies, plans and programmes (PPPs). To date, SEA initiatives have been largely focussed in the planning domain. Limited information is available on SEA and its use in integrated coastal zone management (ICZM). Strategic Environmental Assessment has the potential to enhance ICZM by identifying environmental opportunities and constraints to development in the coastal zone and thereby providing a strategic framework within which sustainable coastal development can occur. This paper provides an introduction to ICZM and the potential that SEA could hold for ICZM. The paper is best received as an invitation to practitioners to present their experiences and share the knowledge that they have on the use of SEA, towards optimising the application of SEA to ICZM.

CURRENT SITUATION AND TRENDS

The coastal zone is defined as “all intertidal and supratidal areas of the water’s edge; specifically all the coastal floodplains, mangroves, marshes and tideflats as well as beaches and dunes and fringing coral reefs” (Clark, 1992). This definition is expanded by Chua (1993) who views the coastal zone/area in its entirety as “a special geographical area wherein its productive and natural defence functions are intimately linked with the physical and socio-economic conditions far beyond its physical boundary”. The latter definition encompasses the sustainable development philosophy that the biophysical environment cannot be separated from the socio-economic environment and recognises that the coastal zone contains diverse and productive habitats that are important for human settlements, development and subsistence. Population increase, inappropriately planned development, the pressures from emerging economic development, i.e. the growing numbers of job-seekers and coastal dwellers are increasingly threatening the functional integrity of the natural coastal systems. The coast is also home to more than half of the world’s population, with two-thirds of the world’s largest cities located on the coast (Reports of the Conference Working Groups, 2001). Furthermore, the degradation and loss of natural coastal resources is increasingly becoming an issue of concern in many countries around the world (Crooks & Ledoux, 1999). Haag (2002) makes the convincing argument that sound coastal management is fundamental to humanity.

The management of coastal zones and exclusive economic zones is dealt with specifically in Chapter 17(A) of Agenda 21 (UN, 1992) on Protection of the Oceans, all kinds of Seas, including Enclosed and Semi-enclosed Seas and Coastal Areas and the Protection, Rational Use and Development of their Living Resources. Agenda 21 concludes that the “Marine Environment – including the oceans and all seas and adjacent coastal areas forms an integrated whole that is an essential component of global life-support systems and a positive asset that presents opportunities for sustainable development”. In view of the interrelationships between coastal resources and their users, coastal states at the Rio Summit committed themselves to the integrated management and sustainable development of coastal areas and the marine environment under their national jurisdiction (UN, 1992).

Integrated Coastal Zone Management

The idea of sustainable development is encapsulated in the ICZM concept. Integrated Coastal Zone Management can be defined as “a continuous and dynamic process by which decisions are taken for the sustainable use, development and protection of coastal and marine areas and resources” (Cicin-Sain & Knecht, 1998). Fundamental to ICZM is the understanding of the relationships between coastal resources, their uses and the mutual impacts of development on the economy and the environment. As coastal resources are used simultaneously by the different economic and social sectors, ICZM can only be accomplished when all these uses, users and relationships are clearly known (UNEP, 1995). In recent years, ICZM has become the umbrella term for the various names including: coastal zone management; integrated coastal zone planning; integrated coastal management; coastal area planning and/or management; and integrated coastal resources planning and/or management (Hildebrand, 2002).

The main principles of ICZM include (UNEP, 1995):

▪ The coastal area is a unique resource system which requires special management and planning approaches;

▪ The land-water interface is an integrating force in coastal resource systems;

▪ Land and sea uses, and their particular characteristics and requirements, should be planned and managed in combination;

▪ Coastal management and planning boundaries should be issue-based and adaptive;

▪ Institutional responsibilities for coastal planning and management should involve all levels of government;

▪ Economic and social benefit evaluation, and public participation form important components of coastal area management;

▪ Conservation is an important goal in sustainable coastal development; and

▪ Multi-sectoral approaches are essential to the sustainable use of resources as they involve multi-sectoral interactions.

Although the ICZM process needs to be adaptive in order to be capable of responding to local conditions and needs, there is widespread agreement that the process generally consists of the four main steps, which are presented in the figure below:

The steps of the ICZM process (Olsen et al., 1998 & Gerges, 2002)

1. Identification and assessment of issues

This step involves a collection of baseline data and understanding the current state of resources. It is essentially a process of compiling, integrating, analysing and prioritising information (Gerges, 2002).

2. Development of policies, plans and programmes

The purpose of planning step is to produce a framework to guide decision-makers in the current and future allocation of scarce or threatened resources (e.g. land, fish and water) to support human needs within the coastal zone (ICZM Basics, 2003).

3. Implementation

Implementation defines the vehicle through which the plan is applied. It represents the operational stage of ICZM where stakeholders are responsible for the practical realization of programmes, projects and strategies developed in the planning phase (Audouin et al., 2003).

4. Monitoring and Evaluation

Monitoring and evaluation functions to test whether ICZM is achieving its objective, and to recommend improvements where needed (Audouin et al., 2003).

One of the key factors for successful ICZM is to have the necessary strategic tools in place to include extensive stakeholder participation, to identify and understand the range of issues affecting the marine and coastal environment, and to know what management issues should be put in place (Audouin et al., 2003). The "classical" Environmental Impact Assessment (EIA), which has been in use for a long time, could not fully respond to the above needs. Even EIA with a strategic dimension could not uncover, for example, the cumulative impacts of a string of strategic projects. Strategic Environmental Assessment is more appropriate to respond to the above needs. It could be considered as an EIA for programmes, plans and policies, but could also be considered as a planning tool of its own (Kay & Alder, 1999).

SEA for ICZM

There is no coast specific SEA. However, the specific legislation, which is increasingly regulating the issue of SEA at international and national levels, is generic enough that it could be applied to ICZM. When applied as an integrated part of the ICZM process it could, for example, raise the importance of coastal concerns as well as facilitate consultation process among coastal stakeholders. In an ideal situation the SEA principles and tools could be integrated into the ICZM process (as presented in figure on page 3), i.e. the planning and the management of the coastal area is viewed in a holistic manner and the environmental implication of the various activities are considered within the context of sustainable coastal development. Various SEA tools and the information they provide can be used throughout the ICZM planning process, to integrate the concept of sustainability into the process and increase the validity of its outputs. These tools therefore work within the existing ICZM planning process to provide appropriate information at the appropriate stage. For example, within Step one of the ICZM process, the identification and assessment of issues, the following tools can be used to strengthen as well as provide information for this phase:

▪ Situational analysis;

▪ State of the Environment Reporting;

▪ Inputs from stakeholder interaction;

▪ Analysis of existing PPPs;

▪ GIS - based Suitability Analysis; and

▪ Sensitivity mapping.

A key strength in SEA lies in its flexibility and its robustness to be adapted to different circumstances (Kjörven & Lindhjem, 2002). Strategic Environmental Assessment can therefore be used to integrate economic, biophysical and social issues in the planning of coastal areas in order to facilitate sustainable development in the coastal zone. There are various approaches to SEA. Perhaps the most suitable is the “objectives-led” or “sustainability-led” model, which can be adapted to suit the context, needs and issues of an individual country. This model involves the development of a sustainability framework to facilitate decision-making with regards to specific ICZM issues. The environmental parameters that are set by this framework can make the ICZM process more efficient and effective. This also provides the basis against which existing ICZM policies, plans or programmes can be assessed. In setting the environmental parameters for ICZM, the sustainability framework performs the proactive function of integrating the principles of sustainability into decision making for example, future coastal developments, exploitation of coastal resources, and the management of certain coastal issues.

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Key Issues of Concern

Strategic Environmental Assessment seems to be dominating the international environmental assessment arena. Recent discussions on SEA has drifted to the potential achievements of SEA rather than capitalizing on present successes of SEA, and has resulted in unnecessary pressure on this tool to respond an increasingly diverse array of requirements.

However, what is more concerning is that there is a pronounced lack of experience in implementing SEA in general. It is particularly clear when we compare SEA practice with that in the implementation of EIA, which has become a standard tool in many countries. The discrepancy between expectations of SEA and practical application is one of the key issues of concern that the conference papers should respond to. The lack of practical application is particularly evident in the use of SEA for the coast-related issues.

Another issue of concern is a lack of standard methodology as well as typology of SEA. While general principles and basic steps of SEA preparation are known to many, there is much less agreement on what tools should be used and what are the final outputs of SEA. Very often there is certain confusion whether some action should be considered as EIA or SEA. The recent EIA made for an oil pipeline that might have profound effect on the Adriatic Sea is the case in point, because that undertaking could easily be considered as an SEA.

Key Issues for Consideration at IAEA SEA

Strategic Environmental Assessment does have merits in its use in ICZM. However, case studies will be able to provide a better understanding of how SEA can be used in the coastal zone and this learning can be used to formulate a more efficient and effective means of using SEA.

We therefore call on SEA practitioners to:

▪ Share experiences related to SEA in the coastal zone (not only restricted to ICZM initiatives);

▪ Discuss various SEA approaches that can be used for effective and efficient coastal area management;

▪ Show how SEA was integrated in the ICZM process;

▪ Present tools and techniques that are being used in SEA preparation;

▪ Show how stakeholder participation techniques have been used in SEA;

▪ Present SEA prepared in different coastal geographic (regional, urban, protected areas) and thematic (tourism, recreation, industry, infrastructure, fish farming, etc.) contexts;

▪ Present SEA where specific coastal issues have been integrated (coastal erosion, sea level rise, protection of coastal land, etc.);

▪ Present cases where specific international or national legislation for SEA has been adopted, or where SEA has been integrated in specific coastal legislation (coastal laws, regulatory documents such as decrees, international protocols, etc.); and

▪ Present where follow up to SEA has been carried out (monitoring, indicators, evaluation, etc.).

REFERENCES

Audouin, M., Govender, K., & Ramasar, V. 2003. Guidelines for Strategic Environmental Assessment. Published by The Secretariat for Eastern African Coastal Area Management (SEACAM), Maputo, Mozambique

Chua, T. (1993). Essential elements of integrated coastal zone management In Ocean and Coastal Management vol.21 pp81-108

Cincin-Sain, B., and Knecht, R.W. (1998). Integrated Coastal and Ocean Management: Concepts and Practices, Island Press, Washington DC 571pp

Clark, J.R. (1992). Integrated management of coastal zones. FAO Fisheries Technical Paper No. 327, FAO, Rome 2pp

Crooks, S., and Ledox, L. (1999). Mitigation banking as a tool for strategic coastal zone management: A UK perspective. CSERGE Working Paper GEC 99-02

El Sabh, M., Demers, S., and Lafontaine, D. (1998). Coastal management and sustainable development: From Stockholm to Rimouski. Ocean and Coastal Management 39: 1-24

Gerges, M.A. (2002). Integrated Coastal Zone Management: Environmental Vision or National Necessity? In: Al-Sarawi, M.A., & Al-Obaid. E.A. The International Conference on Coastal Management & Development. 18 – 20 March 2002. State of Kuwait

Haag, F. 2002. A remote sensing approach to environmental security studies in the coastal zone. A study from Eastern Pondoland, South Africa. Unpublished PhD thesis, Uppsala University..

Hildebrand, L. (2002). Integrated Coastal Management: Lessons Learned and Challenges Ahead, Discussion document for Managing Shared Water/Coastal Zone Canada 2002 International Conference, Hamilton Ontario, Canada June 23-28 2002 13pp

ICZM Basics. (2003). Integrated coastal management functions. [Online]: Accessed: 5 March 2003

Kay, R. and Alder, J. (1999). Coastal Planning and Management, E & FN Spoon, London

Kjörven, O., and Lindhjem, H. (2002). Environment Strategy Papers: Strategic Environmental Assessment in World Bank Operations, Strategy Series Number 4. The World Bank, Washington D.C.

Olsen, S., Lowry, K., and Tobey, J. (1998). A Manual for Assessing Progress in Coastal Management. In: Scottish Executive: Indicators to monitor the progress of Integrated Coastal Zone Management: A review of worldwide practice. [Online]: Accessed: 10 February 2003

UNEP (1995). Guidelines for Integrated Management of Coastal and Marine Areas with Special Reference to the Mediterranean Basin, UNEP, Regional Seas Reports and Studies No. 161, Split, Craotia.

United Nations (1992). Agenda 21 Report, United Nations Sustainable Development. [Online]: . Accessed: 7 March 2003

Reports of the Conference Working Groups. 2001. Toward the 2002 World Summit on Sustainable development. Working Group 5: Integrated Coastal and Ocean Management. The Global Conference on Oceans and Coast, 3 -7 December 2001, UNESCO, Paris

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2. Development of policies, plans (including monitoring and implementation plans) or programmes

4. Monitoring and evaluation

3. Implementation

1. Identification and assessment of issues

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