Download Swedish efforts concerning marine protected areas and effective

WORKING DOCUMENT
Swedish efforts concerning
marine protected areas and
effective management plans
Sustainable Development Goals, Target 14.5: By 2020, conserve at
least 10 per cent of coastal and marine areas, consistent with
national and international law and based on the best available
scientific information
Executive summary
 Marine protected areas can be a powerful tool for contributing to a
good environmental status of the world’s oceans.
 Sweden has (Dec 2016) designated new MPAs that will increase the
protection nationally from 6.6 per cent at the beginning of 2016 to
15.5 per cent by the end of 2016. The ambition to protect the
HELCOM underwater biotopes in need of protection, like the
OSPAR list of threatened and declining species and habitats, will
contribute to establishing the ecologically representative network of
MPAs. However, there is still work to be done in order to establish
ecologically representative, well connected and effectively managed
networks of MPAs.
 In collaboration with other Baltic countries, Sweden is investigating
the possibility of integrating MPA processes with marine spatial
planning (MSP) through the development of a methodology for
producing maps in order to increase the understanding of
biodiversity and protection needed in the Baltic Sea.
 Sweden has actively supported the MPA proposal that has now been
agreed on by CCAMLR in Antarctica, and continues to support the
MPA proposals in East Antarctica and in the Weddell Sea. Sweden
is also committed to area-based conservation in the Arctic.
 The challenges include a lack of data and hence knowledge needed
to select the most important areas for protection and to assess the
effectiveness of the protected areas. There are also challenges in
reaching agreements between several countries and sectors, which
may cause delayed and insufficient protection.
 Area-based management may furthermore, for some areas, not
protect the biodiversity as intended, as factors such as climate
change, ocean acidification and pollution may hinder protection.
Publisher: Swedish Agency for Marine and Water Management
Date: 2017-02-13
Authors: Lena Tingström (main author), Jessica Nilsson, Jan Schmidtbauer Crona,
Photographer: Susanne Viker
The Swedish Agency for Marine and Water Management
Box 11 930, 404 39 Gothenburg
Sweden
www.havochvatten.se
Swedish efforts concerning marine
protected areas and effective
management plans
Introduction
Marine protected areas can be a powerful tool to contribute to a good environmental status of
the world’s oceans. Recent efforts worldwide have increased the proportion of protected marine
ecosystems, through both national legislation and international agreements. There are many
different management tools that directly or indirectly protect marine ecosystems, such as areas
designated for protecting habitats and species using an ecosystem-based approach or fisheries
management measures for protecting stocks of fish.
The Aichi Target 11, adopted by the Convention on Biological Diversity at the Conference of
Parties in Nagoya 2010, states that by 2020 at least 10 per cent of coastal and marine areas,
especially areas of particular importance for biodiversity and ecosystem services, shall be
conserved through effectively and equitably managed, ecologically representative and well
connected systems of protected areas and other effective area-based conservation measures, and
integrated into the wider landscapes and seascapes.
 The latest update to the Protected Planet Report 2016 shows that there are now just under
15,000 marine protected areas (MPAs) spread across 18.5 million square kilometres of
ocean and sea. Up to 13% of territorial waters are now protected, and dramatic progress has
been made towards achieving one of the goals of the Aichi Biodiversity Targets.
 According to the European Environmental Agency’s (EEA) report on marine protected
areas in Europe’s seas from 2015, 5.9 per cent of the area covered by MPAs in EU waters
within 200 nautical miles is protected. However, this data refers to information reported to
the EEA by the end of 2012, and significant additions have been made to the network since
and will be covered in future EEA MPA assessment activities.
 Sweden has, through a recent decision by the Government (Dec 2016), designated new
MPAs that will ensure the fulfilment of the 10 per cent target as the designation will
increase the protection nationally from 6.6 per cent at the beginning of 2016 to 15.5 per
cent by the end of 2016. However, the national action plan for marine protected areas in
Sweden states that there is still work to be done in order to establish ecologically
representative, well connected and effectively managed networks of MPAs.
Challenges
Lack of data
 Data deficiency and a lack of knowledge can pose a problem in the work involved in
selecting the most important areas for protection. It may also challenge the quality of
MPAs in terms of understanding ecological representativity, connectivity and
functionality.
 In order to assess the effectiveness of the protected areas, there is a need for monitoring
the development of the conservation targets. Monitoring is often lacking in MPAs. It is
important to apply an adaptive management approach to marine protected areas to
ensure effective management plans.
Governance
 High seas and freedom of the seas, Areas Beyond National Jurisdiction (ABNJ). Not all
countries have ratified UNCLOS and other internationally binding agreements.
 Reaching agreements between several countries or different sectors with differing interests
may cause time-consuming negotiations which in turn might lead to delayed and
insufficient protection in a complex and changing marine environment.
 The content of MPAs, i.e. how effective the protection is, is another challenge where some
MPAs may include several restrictions whereas other MPAs do not yet have relevant
regulations attached to them.
 Not all countries have the same resources or ambitions to implement the Aichi Target.
 Compliance with the MPA regulations, i.e. fishing.
External factors
 Area-based management may, for some areas, not protect the biodiversity as intended, as
factors such as climate change, ocean acidification and pollution may hinder protection.
Swedish governance of MPAs
The governance of MPAs in Sweden is shared between different administrative actors, where the
county administrative boards are responsible for designating and managing protected areas.
The municipalities also have a mandate to do this. The Swedish Environmental Protection
Agency (SEPA) has the overall responsibility for protected areas, and together with the Swedish
Agency for Marine and Water Management (SwAM), sets out guidelines and supports the
regional and local administrations in order to reach national and international agreements and
regulations.
National efforts
National action plan for MPAs
Sweden has developed a national action plan in order to reach the 10 per cent target for
protecting the marine environment by an ecologically representative, well connected and
functioning network of MPAs by 2020. The action plan includes:
 Designating new MPAs.
 Implementing conservation measures to increase the protection of existing MPAs, with a
particular focus on fishing regulations.
 Developing a framework based on Open Standards for Conservation to ensure ecological
representativity, connectivity and functionality.
 Continuous filling knowledge gaps, including mapping of the marine environment.
 Monitoring and assessing the MPAs, both individually and as part of a network.
National strategy for fisheries conservation measures in MPAs
Sweden has developed a strategy, including a timeframe for the work that needs to be done in
implementing fisheries conservation measures in order to reach conservation targets.
Tool for assessing cumulative effects on ecosystems
Sweden is developing a tool called Symphony to use in the marine spatial planning process to
assess the cumulative impacts on ecosystems of different planning alternatives. The tool will be
used as a part of the strategic environmental assessment of MSP. Symphony has a broader
potential in assessing the need for protection measures, which include developing the MPA network and MPA management, based on an analysis of cumulative pressures from human
activities as well as ecosystem sensitivity.
Regional efforts
European Union
 The EU has implemented environmental directives: the Marine Strategy Framework
Directive, the Birds Directive and the Habitats Directive, including the Natura 2000
network.
 Sweden recently added new areas to the Natura 2000 network in order to protect the
harbour porpoise. This resulted in the national target of protecting 10 per cent of the
marine environment being achieved.
 MSFD – Sweden uses the EU’s Marine Strategy Framework Directive (MSFD) as a useful
tool for implementing regional MPA work as it incorporates other regional conventions as
well as offering a more holistic protection for securing ecological representativity, as it
complements species and habitats listed in the Habitats Directive, e.g. Natura 2000.
 Fisheries conservation measures according to the Common Fisheries Policy – Sweden has,
together with Denmark and Germany, recently developed a joint recommendation for
fisheries conservation measures in Bratten, an MPA in Skagerrak (North Sea). The
conservation measures include no-take zones, and the mandatory use of an Automatic
Identification System (AIS) and a Vessel Monitoring System (VMS) for compliance
purposes.
OSPAR
Sweden is an active participant in the intercessional correspondence group on MPAs. OSPAR
(Convention for the Protection of the Marine Environment of the North-East Atlantic) has
developed a list of threatened and/or declining species and habitats. The listed species and
habitats are important to protect within and outside MPAs and will contribute to establishing
the ecologically representative network of MPAs. The work within OSPAR is an important
source for knowledge-building and exchanging experiences. Sweden hosted a workshop on
management effectiveness, sharing experiences with the contracting parties of OSPAR. Sweden
has also contributed to the development of the new database of OSPAR MPAs. The new
database will enhance the possibilities for making assessments of ecological coherence and the
management effectiveness of the OSPAR MPA network.
HELCOM
Sweden, as a contracting party to the Helsinki Convention, has contributed to developing the
HELCOM MPA database, making it possible to assess the ecological assessment of the marine
protected area network in the Baltic Sea. Although the target of 10 per cent protection of the
marine area has been reached at a Baltic Sea scale, there is an uneven distribution of the
protection and HELCOM aims to reach the 10 per cent target in each sub-basin. If the new
Natura 2000 sites that Sweden has designated should also be designated as HELCOM MPAs,
this would contribute to reaching the HELCOM target per sub-basin. The HELCOM underwater
biotopes in need of protection, like the OSPAR list of threatened and declining species and
habitats, will contribute to establishing the ecologically representative network of MPAs.
Transnational MPAs
In Skagerrak, the waters between Norway and Sweden, a transnational marine national park
(Ytre Hvaler National Park and Kosterhavet National Park) was designated in 2009.
Cooperation focused on a common inauguration of the national parks, joint communication and
information, common strategies for management in the areas and the development of
sustainable tourism.
The EU Baltic SCOPE project
In collaboration with other Baltic countries, Sweden is investigating the possibility of integrating
MPA processes with marine spatial planning (MSP) through the development of a methodology
for producing maps in order to increase the understanding of biodiversity and protection
needed in the Baltic Sea.
Connectivity
A connectivity analysis focusing on modelling larval dispersal and describing areas as sinks or
sources for the larvae was conducted in the Kattegat on the west coast of Sweden. Future
developments of the study could help to identify potential MPAs in order to ensure connectivity
in the network of MPAs. In the study, the need for cooperation across borders was apparent
when identified sources were located within Danish waters and sinks were located in Swedish
waters. The study was presented at the Arctic Council/PAME workshop in Washington in
September 2016.
International efforts
Swedish engagement in Antarctica
Sweden has been a member of the Commission for the Conservation of Antarctic Marine Living
Resources (CCAMLR) since 1984. In the 1970s, CCAMLR pioneered the terminology and
concept of an ecosystem approach to resource management, balancing conservation needs with
rational use. CCAMLR is seen as an example of best practice in managing marine resources in
international waters. This approach has been transferred to other countries and other
organisations, such as the UN and Regional Fisheries Management Organisations (RFMOs).
CCAMLR’s commitment to the ecosystem-based approach to fisheries management was shown
at the 2016 Commission meeting when all 25 members 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), where almost 1.2 million km2 is a no-take zone. Sweden has actively
supported this MPA proposal since it was first proposed six years ago, and continues to support
the MPA proposals in East Antarctica and in the Weddell Sea.
The Arctic – Sweden engages in area-based conservation
Sweden is committed to area-based conservation in the Arctic, for example establishing MPAs,
including arranging a marine protected area workshop in a climate change context, together
with Finland, on 21-22 September 2017. The governments of Finland and Sweden will jointly
organise the workshop for scientific and technical experts as well as management and policymakers to take stock of the current scientific understanding and new research questions on
marine protected areas, and how MPAs, and other area-based measures, can be used to decrease
the potential negative effects of climate change and its interaction with other human induced
stressors in the Arctic.
Knowledge on the dynamics and complexity of the marine environment, and its stressors, form
an integral part of management, including the development of area-based management tools
like MPAs. The workshop will also briefly touch on data availability related to these questions.
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
Ministry of the Environment. The work has been carried out in
close cooperation between th e 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
up into eight areas, and refers to Swedish work to achieve SDG
14. In particular, national and regional initiatives are dealt
with.
 The operational areas of the Swedish Agency for Marine and
Water Management and the Swedish Environmen tal 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
place with the support of new contacts and new combined
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.