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WORKING DOCUMENT Swedish efforts concerning ecosystem-based management Sustainable Development Goals, Target 14.2: By 2020, sustainably manage and protect marine and coastal ecosystems to avoid significant adverse impacts, including by strengthening their resilience, and take action for their restoration in order to achieve healthy and productive oceans. Executive summary Sustainable management and protection of marine and coastal ecosystems to avoid significant adverse impacts by 2020 much depends on the implementation of all targets of SDG14, as well as the SDGs 2 (zero hunger), 3 (good health and wellbeing), 6 (clean water and sanitation), 8 (decent work and economic growth), 11 (sustainable cities and communities), 12 (sustainable consumption and production patterns) and 13 (climate action). Climate change is causing long-term rise in sea levels, melting of sea ice, ocean warming, and ocean acidification. Together these changes are shifting the ranges of organisms towards the poles or to greater depths, increasing extinction risk, and causing substantial changes in key marine ecosystems. Additional changes in ocean chemistry, such as a decrease in oxygen levels, will further influence the availability of suitable habitats and have negative impacts on marine life. Without appropriate knowledge and understanding of terrestrial, water and marine ecosystems – including cumulative human impacts on these – it is likely that managing biological, social and economic systems will fail. Sweden works actively towards implementing its global, regional and national commitments to manage natural resources using the ecosystem-based approach, realizing the need to sufficiently support those countries with less means to mitigate and adapt to environmental challenges. Marine systems are challenging to manage on an ecosystem basis as a result of their complexity, high degree of connectivity and difficulties associated with observing ocean processes, flora and fauna. These challenges can make it difficult for researchers to know how to make best-use of available scientific information to inform policy makers about options for ecosystem management. Therefore, there is a clear need to develop a process that can assist governments and other decision makers to reduce the uncertainties in ecosystem-based management. To achieve SDG 14.2 there is a need to increase national, regional and international research and management efforts to ensure resilient oceans and costal ecosystems that can provide essential ecosystem services. This, in turn, requires ecosystembased management using the best science and TLK available to account for cumulative environmental impacts. Publisher: Swedish Agency for Marine and Water Management Date: 2017-02-13 Authors: Jessica Nilsson (Main Author), Pia Norling, Linus Hammar Expert advice from Jon Havenhand, Per Nilsson Photographer: Jessica Nilsson Swedish Agency for Marine and Water Management Box 11 930, 404 39 Gothenburg Sweden www.havochvatten.se Swedish efforts concerning ecosystembased management Introduction Marine ecosystems are highly complex due to the many interacting biological and physical variables and processes (Hughes 2005) (Halpern 2008) (Mann 2013). Past failure to understand those processes – and especially how they change under anthropogenic impacts – is causing major ecosystem shifts across the globe (Halpern 2008) (IPCC 2014). For example, climate change is expected to cause substantial biodiversity loss, which will reduce the resilience of ecosystems, and threatens the provision of key ecosystem services (Hoegh-Guldberg 2010) (Barange 2014). In this context, human population growth and growing competition for natural resources create additional pressures that will challenge our ability to feed the projected global population of 9+ billion people by 2050 (FAO 2016). Around 60% of the world’s population live within 100km of the coast; land based pollution contributes 80% of all marine pollution; 300 million people are directly dependant on fishing, and 90% of those are coastal small-scale fishers (FAO 2016) (UN 2016). Healthy coastal and marine ecosystems are therefore crucial for poverty reduction, food security and economic development worldwide (Worm 2016) (Hobday 2016) (Barange 2014). Without appropriate knowledge and understanding of how to sustainably manage ecosystems, and the human impacts upon them, the likelihood of ecological (and hence social and economic) failure is large. Therefore, all forms of relevant information, including scientific, traditional and local knowledge, innovations and practices should be included (i.e. the ecosystem approach). In this context, the United Nations Global Integrated Marine Assessment (2016) as an important recurring process to review the environmental, economic and social aspects of the world’s oceans – the three pillars of sustainable development. Gaps and challenges Marine systems are challenging to manage on an ecosystem basis as a result of their complexity, high degree of connectivity and difficulties associated with observing ocean processes, flora and fauna (Dickey-Collas 2014). These challenges can make it difficult for researchers to know how to make best-use of available scientific information to inform policy makers about options for ecosystem management. Therefore, there is a clear need to develop a process that can assist governments and other decision makers to reduce the uncertainties in ecosystem-based management. The failure of some nations to ratify UNCLOS and other internationally binding agreements, threatens protection of the high seas (i.e. 64% of the ocean’s surface). The lack of full implementation of international legal instruments targeting unsustainable fishing and pollution exacerbates habitat degradation and climate change. Inadequate data and valuation of marine resources and ecosystem services limit our capacity to sustainably manage marine ecosystems. A lack of understanding of the impacts of multiple stressors and how to successfully integrate cumulative impact assessments in marine policy limits our capacity to move from sectoral to holistic ocean management. Insufficient interdisciplinary and international collaboration to understand and sustainably manage key ecosystem properties and functions: biodiversity, resilience, and connectivity. Sustainable management and protection of marine and coastal ecosystems to avoid significant adverse impacts by 2020 much depends on the implementation of all targets of SDG14, as well as all other SDGs, in particular the SDGs 1 (no poverty), 2 (zero hunger), 3 (good health and well-being), 6 (clean water and sanitation), 7 (affordable and clean energy) 8 (decent work and economic growth), 11 (sustainable cities and communities), 12 (sustainable consumption and production patterns) and 13 (climate action). National efforts One government agency manages fisheries, water and marine issues In Sweden, the Swedish Agency for Marine and Water Management (SwAM, established in 2011). The presence of all of these issues under one roof greatly facilitates ecosystem-based management. Sweden applies the ecosystem approach in marine spatial planning The EU directive 2014/89/EU states that maritime spatial planning (MSP) should apply ecosystem-based approaches to promote sustainable use of marine resources and the development of marine areas (EU, Directive 2014/89/EU Establishing a framework for maritime spatial planning 2014). This aims to ensure that: i) the collective pressure of activities is compatible with the achievement of good environmental status (“GES”; directive 2008/56/EG (EU, Directive 2008/56/EC Establishing a framework for community action in the field of marine environmental policy (Marine Strategy Framework Directive) 2008) and; ii) the resilience of marine ecosystems to anthropogenic change, and hence the delivery of ecosystem services, is not challenged. To this end Sweden has developed a spatial assessment tool (Symphony) that facilitates direct consideration of cumulative environmental impacts in the MSP process. Symphony works with multiple data sets of key ecosystem components and anthropogenic stressors to identify ecological indicators required to reach GES. The transparent method (Halpern 2008) ensures sectorial integration and a sourcetosea perspective in MSP. Sweden collaborates with several European partners, Russia and the USA to further develop and implement Symphony. Sweden practises efficient and well-designed monitoring Sound scientific knowledge of the oceans, data collection and marine monitoring are crucial for assessing the state of the environment, but also for following up on the effectiveness of measures and ensuring that resources are used sustainably (Link 2017). The EU has developed the Marine Strategy Framework Directive (MSFD), a common platform to work from and with the same rules applying for all EU countries. The goal is for all EU marine areas to reach good environmental status by 2020. Implementing the MSDF, Sweden is to define and assess the environmental status of its waters, develop policies and monitoring programmes, and implement measures. After following up on the results, the process begins again. (EU, Directive 2008/56/EC Establishing a framework for community action in the field of marine environmental policy (Marine Strategy Framework Directive) 2008) Sweden emphasises the importance of ecosystem services and green infrastructure in ocean management The central value of marine ecosystem services and biodiversity is integrated in numerous Swedish policy documents, practices and decisions. These include environmental accounting, business models, and environmental impact assessments. To aid this integration, SwAM has developed a model that identifies the effects of policy and measure proposals on ecosystem services in coastal areas. Additionally, similar, web-based tools are developed to support decisions at the municipal/regional level. Following the Marine Strategy Framework Directive (MSFD), SwAM uses an ecosystem services approach to analyse economic and societal impacts on the marine environment. Comprehensive marine habitat mapping in Sweden identifies ecological connections and biodiversity hotspots that underpin marine green infrastructure (Green infrastructure is the strategically planned network of natural and seminatural areas, and hence, ecosystem services (EU COM2013 249)). This feeds into marine management and MSP through a variety of local, regional and national programmes (e.g. MOSAIC, SeaGIS, Green Infrastructure). MOSAIC is an ecosystem-based adaptive framework for managing marine green infrastructure, which can be used to prioritise areas for conservation and spatial planning. Swedish research into the functioning, governance and management of social and ecological variables Research on ecosystem-based management includes ecosystem resilience as a key component. The underlying aim is to ensure the sustainable development of social and economic systems in order to enhance ecosystem health and human well-being. Research also addresses the government’s strategic research initiatives by investigating the ecological consequences – and projected responses – of climate change. Sweden has already implemented the Aichi target of 10% MPA by 2020 Marine protected areas are powerful tools (UNEP-WCMC 2008) (J. 2008) that contribute to GES. Aichi target 11, adopted by the Convention on Biological Diversity at COP 10 in Nagoya in 2010, states that by 2020 at least 10% of coastal and marine areas are to be conserved through systems of protected areas and other effective area-based conservation measures. Sweden has designated new MPAs that will ensure this commitment, increasing the total marine area under protection from 6.6% at the beginning of 2016 to 15.5% by the end of 2016. Preserving, protecting and restoring over 400 marine areas Sweden has introduced multiple measures to protect and restore degraded marine habitats and populations. For example: bottom-trawling has been banned within 3-4nm of the Swedish coastline, and 400 areas are closed for fishing as they have been defined as important fish spawning and migration areas where only handheld fishing is allowed. A Swedish programme of measures to address the MSFD was finalised in 2016, and additional specific measures have been developed for a further 16 threatened species and five habitat types. These measures incorporate the ecosystem-based approach by promoting biodiversity, for example protecting eelgrass and mussel-beds which play key roles in supporting coastal fauna and flora. Swedish researchers have developed methodologies for the restoration (recovery) of eelgrass beds, and work is underway to develop a comprehensive toolkit of additional methods for ecological compensation and the restoration of marine environments. Sweden is developing a strategy for ecosystem-based fisheries management (EBFM) Ecosystem-based fisheries management is needed to effectively regulate harvesting, decrease habitat impact and end overfishing. A strategic plan for EBFM is being developed and will be presented at the end of 2017. Some practical tools, such as the “Scandinavian grid” – selective fishing gear that significantly decreases by-catch – are already in use. Regional efforts Multilateral collaboration enables regional agreements and holistic environmental assessment Sweden collaborates in regional partnerships and conventions (e.g. HELCOM, OSPAR) and works within the EU Common Fisheries Policy (CFP) to decrease environmental impacts due to fishing practices. HELCOM and OSPAR are important in the promotion of a holistic marine policy in the Baltic Sea and the North East Atlantic. Sweden contributes regularly to the regional collection and synthesis of data and common assessment methods. HELCOM’s Baltic Sea Action Plan (BSAP), adopted by all the coastal states and the EU in 2007, is an ambitious programme to restore GES of the Baltic Sea by 2021. The EU’s Common Fisheries Policy (CFP) aims to implement ecosystem-based fisheries management As a member of the EU, Sweden has been involved in developing the Common Fisheries Policy (CFP), which includes using an ecosystem-based fisheries management approach (EU 2013). One objective of the CFP is to set TACs leading to all stocks being managed above MSY levels. Sweden engages in regional research for science-based management of ocean resources Sweden is active in several regional ocean research programmes, including the EU research platform Joint Programming Initiative, Healthy and Productive Seas and Oceans (JPI Oceans), and the Joint Baltic Sea research and development programme (BONUS). Sweden and France are leading a JPI-Oceans initiative to establish a research network and agenda for ecosystem services-based assessments for MSP and MSFD. Within the Nordic Council of Ministers working group HAV, several activities and projects have developed tool-kits and best practices for science-based management, for example a tool to incorporate the ecosystem services approach into MSP. Sweden is a member of the International Council for the Exploration of the Sea (ICES), the body that provides scientific advice to EU members on TACs for EU fisheries. Sweden participates in many ICES working groups addressing ecosystem-based management, for example the Working Group on Large Marine Ecosystems Best Practice (WGLMEBP), the Working Group on Integrated Assessments of the Baltic Sea (WGIAB), the Working Group on Resilience and Marine Ecosystem Services (WGRMES) and the Working Group on the Value of Coastal Habitats for Exploited Species (WGVHES). Through our engagement in ICES, we are involved in the work of PISCES and the Northern Atlantic Alliance. Shipping is a major polluter in the North and Baltic Seas and Sweden plays a progressive role for environmental protection within the International Maritime Organization (IMO). Recent achievements that will substantially reduce the eutrophication and acidification of regional seas include the Ballast Water Management Convention (active September 2017), the Sulphur Emission Control Area (SECA), and progress on a Nitrogen Emission Control Area (NECA) and the Polar Code, to be implemented in the near future (International Maritime Organization 2017). Monitoring fisheries to support healthy ecosystems The EU Data Collection Framework (DCF) provides a common framework for the collection, management, and sharing of fisheries data. Annual surveys and stock assessment data form the basis for scientific advice on the CFP, which aims to achieve sustainable, scientifically-based fishing. Collaboration between intergovernmental organisations should be strengthened Collaboration among sectorial bodies responsible for fisheries and for biodiversity is of key importance to achieve an ecosystem approach to fisheries management. One such example is the collaboration between OSPAR and NEAFC (Northeast Atlantic Fisheries Commission). International efforts Sweden strives to increase regional and international collaboration Sweden is an active participant in many international fora, including FAO, OECD, UNEP, UNDP, UNCLOS, CBD, CITES, the Arctic Council, CCAMLR, IMO and RFBs (Regional Fisheries Bodies). Sweden supports multilateral cooperation on coastal ecosystems Sweden’s long-term commitment to international ecosystem-based management includes: 1) programmes in Asia and the Pacific - Mangroves for the Future (Southeast Asia) and Southeast Asian Fisheries Development Center, 2) research cooperation in Tanzania and Mozambique, 3) the Western Indian Ocean Marine Science Association, and 4) several marine regional programmes in Africa to support the Nairobi and Abidjan regional seas conventions. The Source-to-Sea Platform Sweden encourages global collaboration for ecosystem-based management of fresh, coastal and marine waters. The Source-to-Sea Management Platform (S2S) is a Swedish initiative with diverse international stakeholder participation. S2S encourages global collaborations among freshwater, coastal and marine experts in land - sea interconnections, and provides on-demand knowledge, support, and guidance for policy development and implementation. S2S promotes best practices, and takes collaborative action to improve the management of land, water, coastal and marine linkages. S2S is a potentially valuable framework for action to mitigate and adapt to cumulative ecosystem stressors. UNCLOS increases protection of the high seas Sweden is playing an active part in negotiating an Agreement on Biodiversity Beyond Areas of National Jurisdiction (BBNJ) to protect biodiversity on the high seas. Sweden works toward mainstreaming biodiversity and ecosystem services in sectoral policies It is important to strongly emphasise the CBD decision on mainstreaming biodiversity across sectors including fisheries and aquaculture. This process requires that these sectors seek to reduce, avoid and mitigate any negative impacts, and promote positive effects on biodiversity and ecosystem services. There is a need of strengthened collaboration between sectoral organisations responsible for biodiversity and fisheries in order to apply the ecosystem approach to fisheries. Sweden engages in bilateral marine environmental, climate, and fisheries collaborations Sweden has developed multiple partnerships with many nations, such as Brazil, China, Russia, South Africa and Vietnam to increase capacity-building and knowledge-exchange to better understand how to govern for resilient marine ecosystems and rights-based fishing practices. For example, Sweden, Norway and others have helped finance and develop FAO’s rights-based fisheries programme Advancing Knowledge on Rights-based Approaches for Fisheries: A global work programme for enhancing food security and nutrition, poverty eradication and achieving the Sustainable Development Goals. The Arctic - Sweden engages in ecosystem-based management, marine protected areas and marine litter The marine environment in the High Seas of the Arctic is unprotected, but is changing rapidly under global climate change (IPCC 2014). Sweden is strengthening its environmental commitment to this region: in January 2016 Sweden launched its environmental policy for the Arctic, and in November 2016 Sweden and the US released a research report on the interactions of biological and socioeconomic processes of the Arctic and the need for sustainable management to increase ecosystem resilience; As an Arctic country with high environmental ambitions, Sweden’s commitments include: 1) focusing on area-based conservation in the Arctic (e.g. commitment to establishing MPAs, and co-arranging a MPA workshop, September 2017); 2) co-leading Marine Litter in the Arctic project 3) monitoring and assessing acidification in the Arctic (e.g. through participation in AMAP); 4) and 4) participation in several Arctic Council expert groups (e.g. MPA Expert Group, Ecosystem Expert Group, CAFF Marine Biodiversity Expert Group); Sweden annually conducts collaborative research in the region with countries such as Canada, the USA, Norway (Svalbard), Russia, Finland and Germany. The scientific journal Science described the Swedish ice breaker, Oden, operating in both the Arctic and the Antarctic as ‘The world's most capable polar class research vessel’; Sweden actively participated in the seven years Arctic Biodiversity Assessment Project, chairing the final two years, which resulted in multiple reports and a summary for policy makers containing 17 recommendations agreed by the Arctic Council Ministers. Swedish engagement in Antarctica The Commission for the Conservation of Antarctic Marine Living Resources (CCAMLR) is seen as an example of best practice in managing marine resources in international waters. CCAMLR’s commitment to the ecosystem-based approach to fisheries management was shown at the 2016 Commission meeting when all 25 members (including Sweden) agreed on a 1.5 million km2 MPA (currently the largest MPA in the world) in the Ross Sea (the Southern Ocean surrounding the Antarctic continent), with an almost 1.2 million km2 no-take zone (CCAMLR 2016). Sweden has actively supported this MPA proposal by the USA and New Zealand since it was first proposed six years ago, and continues to support the MPA proposals in East Antarctica and in the Weddell Sea. Sweden is also committed to progress within the protocol on environmental protection to the Antarctic Treaty. Sweden often cooperates closely with Finland and Norway, and this cooperative relationship has resulted in the publication of the Nordic Environmental Handbook. Figure: Ecosystem-based management model (Atlantis conceptual model) (Fulton 2014). References Barange, M., Merino, G., Blanchard, J. L., Scholtens, J., Harle, J., Allison, E. H., Allen, J.I., Holt, J. and Jennings, S. “Impacts of climate change on marine ecosystem production in societies dependent on fisheries.” Nature Climate Change, 2014: 4(3), 211-216. CCAMLR. Report of the Thirty-Fifth Meeting of the Commission. Annual report, Hobart, Australia: CCAMLR, 2016. Mark, Dickey-Collas. “Why the complex nature of integrated ecosystem assessments requires a flexible and adaptive approach.” ICES Journal of Marine Science: Journal du Conseil, 2014: fsu027. EU. “Directive 2014/89/EU Establishing a framework for maritime spatial planning.” Official Journal of the European Union , 28 8 2014. EU. “Directive 2008/56/EC Establishing a framework for community action in the field of marine environmental policy (Marine Strategy Framework Directive).” Official Journal of the European Union, 25 6 2008. EU. REGULATION (EU) No 1380/2013 OF THE EUROPEAN PARLIAMENT AND OF THE COUNCIL of 11 December 2013 on the Common Fisheries Policy, amending Council Regulations (EC) No 1954/2003 and (EC) No 1224/2009 and repealing Council Regulations (EC) No 2371/2002 and (EC. Brussels: EU, 2013. FAO. The State of World Fisheries and Aquaculture. Contributing to food security and nutrition for all. UN, FAO, 2016. Fulton, Elizabeth. Modelling Australia’s Oceans. 26 June 2014. https://blogs.csiro.au/climateresponse/stories/modelling-australias-oceans/ (accessed January 29, 2016). Halpern, Benjamin S., Walbridge, Shaun., Selkoe, Kimberly A., Kappel, Carrie V., Micheli Fiorenza., D'Agrosa Caterina., Bruno, John F., Casey, Kenneth S., Ebert, Colin., Fox, Helen E., Fujita, Rod., Heinemann, Dennis.,. Lenihan, Hunter S., Madin, Elizabeth M. P., Matthew, T. “A global map of human impact on marine ecosystems.” Science, 2008: 319(5865), 948-952. Hobday, A. 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Link, Jason S., and Browman, Howard I. “Operationalizing and implementing ecosystem-based management.” 2017: 247. Mann, Kenneth Henry, and Lazier, John RN. Dynamics of marine ecosystems: biological-physical interactions in the oceans. John Wiley & Sons, 2013. Morelli, T.L., Daly C., Dobrowski S.Z., Dulen D.M., Ebersole J.L., Jackson S.T., Lundquist J.D., Millar C.I., Maher S.P., Monahan W.B., Nydick K.R., Redmond K.T., Sawyer S.C., Stock S., Beissinger S.R. “Managing Climate Change Refugia for Climate Ad.” 2016. UN. Marine Debris: Understanding, Preventing and Mitigating the Significant Adverse Impacts on Marine and Coastal Biodiversity. Technical Series No.83, 78 pages, Montreal, Canada: Secretariat of the Convention on Biological Diversity, 2016. UNEP-WCMC. National and Regional Networks of Marine Protected Areas: A Review of Progress. Cambridge: UNEP-WCMC, 2008. Worm, Boris, and Robert T. Paine. “Humans as a hyperkeystone species.” Trends in Ecology & Evolution, 2016: 31.8. 600-607. About this document This document is one of eight documents that together constitute preliminary underlying support for the work in connection with the Ocean Conference. The documentation has been drawn up on behalf of the Swedish the Environment. The work has been carried out in Ministry of close cooperation between the Swedish Agency for Marine and Water Management and the Swedish Environmental Protection Agency. Contributions to this work have been collated from several national agencies (SEPA, SIDA, SMHI, Swedish Board of Agriculture, Swedish Chemicals Agency and Swedish Transport Agency) and educational institutions. The time frame for coordination has however been limited, so not all contributors have had the chance to give a final approval. The documentation focuses on a situation assessment, divided eight areas, and refers to Swedish work to achieve SDG particular, national and regional initiatives are dealt up into 14. In with. The operational areas of the Swedish Agency for Marine and Water Management and the Swedish Environmental Protection Agency have been taken as a starting point, and have been expanded to include more significant aspects based on existing contacts and knowledge. The documentation does not thus constitute a complete picture of the Swedish initiatives being carried out in order to achieve the targets. Continued analysis support for the Government Offices of Sweden ahead of the conference is planned, in dialogue with involved authorities. The analyses should be developed with more international, future-oriented aspects, according to Swedish priorities ahead of the conference. This work will take the support of new contacts and new combined place with knowledge. In this, the Swedish Agency for Marine and Water Management will be supported by the Swedish Institute for the Marine Environment in connection with contact with Swedish educational institutions, and by IVL Swedish Environmental Research Institute for compiling good examples from industry.