Governing Coastal Spaces: The Case of Disappearing Science in Integrated Coastal Zone Management

Scientific knowledge is central to “good” governance of coastal spaces: developing methods through which the complexities of the coastal zone can be understood by stakeholders to improve the sustainable management of coastal systems. Enhancing our knowledge of the range of processes that shape coastal spaces and define the total behavioural environment of the system remains a primary challenge for the coastal research community. However, this article raises the argument that current approaches to Integrated Coastal Zone Management (ICZM)—the preferred governing framework for the coastal environment, do not give sufficient emphasis to this fundamental need. Improving the basic scientific knowledge that underpins policymaking at the coast is argued to be urgently needed. Issues such as that of developing a communality of the purpose and approach between stakeholders within the coastal zone (through conflict resolution and access to information, for example) seem to claim the rights of the integrated management research agenda. However, the very nature of ICZM as “worthwhile coastal management” requires that integrated management represents more than a governing framework. Successful integration in coastal management must also be underpinned by knowledge of the integrated behavior of the system. Science has an increasingly marginalized position within ICZM and as a result geographers, contributing knowledge of the patterns and processes of the human and environmental landscapes, are also becoming a disappearing breed in integrated coastal management.     

The Role of Universities in Supporting Integrated Coastal Management in the United Kingdom

Integrated coastal management has been seen as the way to deal with the challenges currently facing managers of our coastal zones. In the tropics, these areas are typified with resources such as coral reefs and mangroves that are able to support a variety of activities. Integrated coastal management takes a multi-disciplinary approach that involves the integration of the different institutions and stakeholder groups in the coastal zone. A survey of tropical coastal locations revealed that fully implemented integrated coastal management is limited with programs apparently failing at the implementation stage. These coastal zones share a number of common challenges exacerbated by poverty and conflicts between the coastal activities. Conflict management needs to be incorporated into the management process that pays particular attention to the overextraction of resources and destructive resource use.     

Initiatives in Philippine Coastal Management: An Overview

Standardized and free-format questionnaires on the state of coastal management were fielded to coastal management practitioners during three workshops and a national feedback and recommendation workshop. The most commonly cited responses were identified for each of 13 political regions and overall trends were identified. Management frameworks frequently included research, community organizing, education, livelihood, resource enhancement, resource protection, regulation, and networking components. Gender issues, documentation, and infrastructure investment were rare. The most commonly perceived environmental problem was illegal/ destructive fishing and its associated overfishing and low fish catch. The most commonly cited socioeconomic problem was the inadequacy of law enforcement. The best monitored variables were usually those related to environmental management: status and change of habitats, resources, and degree of enforcement/patrolling activities. The most common nonregulatory enhancement, aside from environmental education (which is the most popular), was mangrove reforestation. In terms of regulations, the majority of the respondents have reportedly formulated an integrated coastal management plan. In practice, regulating destructive and illegal fishing practices and then the establishment of fish sanctuaries are the next most implemented. The most popular quality-of-life enhancement strategies focused on the improvement of sustainable fishing as a livelihood and on a variety of supplementary livelihoods. The most usual institutional intervention being implemented was the setting up of local community people's organizations. Major factors which may influence success or failure of coastal management and recommendations on research, community organizing and livelihood, legislation and policies, implementation and coordination, and networking are also summarized.     

Capacity Building for Integrated Coastal Management in Asia-Pacific: The Case for Case Studies

Development of awareness and capacity is a central component to the delivery of ICM and spans from local communities to national-level politicians. Education and training activities associated with ICM must be extremely varied to match both the existing capacity and role that the stakeholders play within the process of ICM. Consequently, there cannot be considered any effective “generic” ICM training; training must be tailored to match the requirements of target groups. The transfer and uptake of good-practice thus becomes an important aspect of quality enhancement in ICM capacity development. Six case studies from the Asia-Pacific region are presented that show diverse and innovative examples of good practice. A comparative analysis of these case studies is carried out in terms of institutional level of impact. In addition a generic systems-based evaluation framework is used to determine the extent to which the training impacts upon ICM implementation indicators. It is concluded that the exchange, transfer, and translation to local conditions of appropriate good practice in ICM capacity development can be an important element in enhancing the impact of ICM programs on the coastal environments and societies. Furthermore, there appears to be a positive link between the involvement of national/state/regional stakeholders in capacity-building initiatives and impacting a wider variety of indicators of ICM delivery.     

Coastal Crisis: The Failure of Coastal Management in the Spanish Mediterranean Region

It is a fact that coastal zones in the Mediterranean are becoming progressively more seriously degraded. Instrumental to the phenomenon in Spain is the evident failure of the coastal management that the institutions have pursued for over three decades, both under the old, state-centralized model, and the new organizational model with the political division of land into autonomous regions. This failure can in part be explained not only by the inadequate tools the administration possesses to address the dynamism and complexity of the new economic activities that have sprung up along the coast, but also by incoherent sectoral policies. Finally, there has been no all-encompassing political strategy capable of dealing with coastal communities' demands for development and the need for the protection of ecosystems and their natural resources. All this has resulted not only in a deterioration of the area, but also in the discrediting of actions implemented by the institutions, and their plans and programs being perceived as an obstacle to economic development.     

Building Philippine Local Government Capacity for Coastal Resource Management

The responsibility for managing coral reefs and other coastal resources was largely devolved to coastal municipalities and cities in the Philippines in 1991 with the passage of the Local Government Code. Devolution of powers and responsibilities to local government has paved the way for mainstreaming coastal resource management at the local level. However, the capacity to carry out this mandate has only recently begun to mature as municipalities and cities gain an increased awareness of the importance of coastal resources to communities and economic development. Approaches and strategies to increase local government capacity for coastal resource management are described based on the experiences of the Coastal Resource Management Project of the United States Agency for International Development. Qualitative and quantitative data are used to illustrate the possible impact of these capacity building efforts and to describe the current capacity of local government to undertake coastal resource management. After five years of project implementation, coastal municipalities have increased technical capacity, have allotted financial resources, and have achieved key performance benchmarks in the delivery of coastal resource management as a basic service.     

A New Coastal Policy for South Africa

Treaties on Trial: The Continuing Controversy Over Northwest Indian Fishing Rights by Fay G. Cohen (Seattle: University of Washington Press, 1986), 229 pages.     

Applying a Mediated Negotiation Framework to Integrated Coastal Zone Management

Conflict is intrinsic to coastal zone management, yet relatively few peer-reviewed studies have examined how coastal managers might apply conflict resolution processes in the coastal zone management (CZM) context. The authors believe that many of these disputes can be addressed by using a structured mediation model that involves face-to-face negotiation with a broad range of stakeholders to build consensus-based agreements for integrated coastal zone management (ICZM). To explore this further, the article examines four questions. First, it examines how CZM literature characterizes conflict and conflict resolution. Second, it looks at how essential principles from the field of alternative dispute resolution and environmental mediation can be best employed in the ICZM context. In particular, it explores the various elements of a stepwise agreement building model, a mediated negotiation process model the authors use in practice that bases its success on a foundation of four principles: representation, participation, legitimacy, and accountability. Next, it details three essential tools used in this process, stakeholder analysis, joint factfinding, and single-text negotiation, that the authors believe to be promising for developing and adopting stable, well-informed, and implementable agreements for ICZM. Finally, the article examines how these structuring principles and process strategies have been used in two recent case studies regarding the management of the San Francisco estuary and its tributaries.     

Facts,Fictions, and Failures of Integrated Coastal Zone Management in Europe

Nearly 40 years on since its first tentative steps in North America, this article considers whether Integrated Zone Coastal Management (ICZM) in Europe has grown to maturity as a form of governance. The article summarizes the findings of recent research concerning the levels of implementation of coastal management in Europe, with particular reference to the UK experience. A research framework is used to identify the different motivations behind the social actor groups involved in coastal management. The application of this framework reveals four major findings about gaps in implementation: (1) the complexity of responsibilities at the coast continues to prevent agencies from taking a “joined-up” approach; (2) a policy vacuum is constraining implementation from national to local scales; (3) informational obstacles are significant in preventing co-ordination between science and policymakers, and between different sectors; (4) a democratic deficit is preventing implementation in the working practices of coastal stakeholders, with little opportunity in decision making for public comment or local accountability, especially offshore. The article also explores different conceptualizations of the role of coastal management and planning held across Europe, providing an analysis using the Strategic Management literature and the experience of the EU Demonstration Programme on Integrated Coastal Zone Management (1996–1999). Recent arrangements, with the availability of priming funds from the European Commission and emphasis on “pilot” and “demonstration” methods, have tended to encourage a project-based approach to ICZM that may fail to realize long-term objectives. The article seeks to present an analysis of the behaviors of scientists, academics, policymakers, and practitioners, and will be of interest to all those seeking to establish ICZM within the wider system of governance, as supported by the Commission of the European Community (2000) Communication on ICZM (COM 547). Some technical solutions are also offered from the UK experience that will be of use to coastal project officers working at national and regional levels.     

Learning Frontiers in the Practice of Integrated Coastal Management

Since the Rio conference in 1992 investments in integrated coastal management (ICM) have increased dramatically. National and subnational governments have undertaken many initiatives to protect and develop coastal areas. Extensive field experience has advanced understanding of the operational attributes of ICM. This article reviews the principles and operational attributes of ICM that have become well accepted, particularly from the perspective of international ICM donors and professionals. A common understanding of the fundamentals of ICM provides a base from which targeted and systematic study and assessment of ICM can be conducted. Several thematic areas are suggested where there are currently important needs and opportunities for collective study and learning in ICM. The important role of donors is emphasized in supporting collaborative learning initiatives that advance understanding of ICM, and improve and expand the practice.     

Extant Legal and Jurisdictional Constraints on Irish Coastal Management

The success of any coastal zone management policy is dependent on, among other things, effective legislation and its enforcement. This article examines some possible legal constraints on the implementation of an integrated coastal zone management policy in Ireland. An introduction to the existing legal framework is provided, and the inconsistencies and ambiguities related, in particular, to jurisdiction and area of responsibility are highlighted. In particular the effect of land ownership and property rights on coastal zone management are examined with reference to two popular resort beaches in County Donegal, Ireland. While a revision of the relevant legislation is desirable, it is probably unrealistic; however, powers are available to the various institutions involved in coastal management that are currently unused. These are reviewed and their potential to improve coastal zone management is discussed.     

Judicial Interpretations of Federal Consistency under the Coastal Zone Management Act

The federal consistency provision of the Coastal Zone Management Act (1972) created a new form of interaction between federal and state governments. The implementation of this provision has significant ramifications for coastal management and intergovernmental cooperation in the United States. Past studies have focused on the provision's implementation patterns among U.S. coastal states and federal-state disputes mediated by the Secretary of Commerce. This supplemental article examines judicial interpretations of the federal consistency provision over the past two decades in relation to major issues deliberated by Congress at the time of enactment. Recent changes in the provision, as well as those unresolved issues likely to resurface in future litigation, are also discussed. Seemingly, coastal land use authority and offshore energy exploration remain the most contentious issues surrounding the federal consistency provision.     

Protecting Estuaries and Coastal Wetlands through State Coastal Zone Management Programs

This article, one part of the National Coastal Zone Management Effectiveness Study, evaluates the effectiveness of state coastal management programs in protecting estuaries and coastal wetlands. State programs were evaluated in a four-step, indicatorbased process to estimate (1) the relative importance of the issue; (2) the potential effectiveness of programs based on the policies, processes, and tools used; (3) outcome effectiveness based on on-the-ground indicators; and (4) overall performance, where outcome effectiveness was compared to issue importance and potential effectiveness. State evaluations were synthesized to provide a national perspective on CZM contributions and effectiveness in estuary and wetland protection. Although on-the-ground outcome data were sparse, they were sufficient to determine at least probable levels of effectiveness for about one-third of the states. Of these states, 80% were performing at expected or higher levels, considering how important the issue was in their state, and the scope and strength of the policies, processes, and tools they had deployed. Monitoring and record keeping, freshwater wetland management, and the use of nonregulatory restoration in coastal management were common program weaknesses. The evaluation approach and indicators used here are recommended as a starting point for designing a national monitoring and performance evaluation system addressing this CZM objective.     

The Effectiveness of Coastal Zone Management in the United States

The Coastal Zone Management Effectiveness Study was undertaken between 1995 and 1997 to determine how well state coastal management programs in the United States were implementing five of the core objectives of the U.S. Coastal Zone Management Act (CZMA). The five core objectives studied were: (1) protection of estuaries and coastal wetlands; (2) protection of beaches, dunes, bluffs and rocky shores; (3) provision of public access to the shore; (4) revitalization of urban waterfronts; and (5) accommodation of seaport development (as an illustration of the policy to give priority to coastal-dependent uses). Separate articles in this issue of Coastal Management report the findings of the five studies, each dealing with one of the core objectives. Each of the articles assesses issue importance, processes and tools used, and the limited outcome data available for that objective. This article provides an overview of the purposes of the study, the methodology used, the summary findings of each study, and overall conclusions and recommendations of the study team. State coastal programs are found to be effective in addressing the five CZMA objectives examined, but this conclusion is based on very limited information about program outcomes. A more definitive conclusion will require better outcome information. Coastal managers in the United States have not agreed upon indicators of success, which severely inhibits systematic and sustained collection of outcome information. A national outcome monitoring and performance evaluation system is recommended to address these deficiencies and allow better determinations of program effectiveness in the future.     

Remote Sensing for Coastal Area Management in China

Satellite remote sensing technique has been used to observe the coastal area. This article reviews applications of remote sensing to coastal area management (CAM) in China. These applications include the coastal resource and island mapping, coastal environmental change and coastal hazard monitoring, oceanographic parameter measurement, and coastal process restudy. Future applications are also discussed.     

Providing Public Access to the Shore: The Role of Coastal Zone Management Programs

In many coastal states and territories, coastal zone management (CZM) programs have been the prime catalyst in leveraging public access initiatives among state and federal agencies, public organizations, and the private sector. A wide range of tools are used, including acquisition, regulations, technical assistance, and public education. The diversity of approaches is illustrated through a variety of case examples. Although hard numbers for measuring outcomes were not uniformly available, between 1985 and 1988, when federal and state CZM funding dedicated to public access was tracked, $141.5 million (unadjusted 1988 dollars) were spent on 455 public access-related projects. A policy shift occurred in the 1990s away from reliance on acquisition and regulation as the most effective means of providing access and toward technical assistance and public outreach-a response to the overall decrease in funds available for access. CZM programs have been able to balance the contradictory goals of the federal Coastal Zone Management Act of 1972 (CZMA), such as protecting coastal resources while providing for increased public access to those resources. It is recommended that CZM programs conduct assessments to determine the kind of access needed in the future and where it should be located. And, due to the creativity and innovation that states and territory coastal programs use to achieve access, it is recommended that a national clearinghouse be established for documenting and sharing information on innovative tools and programs.     

An Analysis of the Impact of the Internet on Coastal Management

The role of the Internet in coastal management practice is analyzed through the Internet's communication and information access capacity. Primary and secondary impacts of the Internet in coastal management are assessed. A broad research framework is employed, including background on the development and spread of the Internet worldwide; analysis of emerging literature on the societal impact of the Internet; limited existing research on the use of the Internet by environmental management professionals generally and coastal managers in particular; and personal experience of the authors in the development of coastal management Internet sites. This analytical framework is supplemented by the first survey of integrated coastal management (ICM) Internet websites by www.coastalmanagement.com and a case study of the Internet Center for Coastal Management (ICCM) Internet-based communication platform based at the University of Washington. The survey of ICM websites found a total of 77 websites worldwide, with a dominance of sites in English located in the developed world. Assessment of the first year of operation of the ICCM project to facilitate discussion between coastal management practitioners and students in the United States and the Philippines demonstrates the enormous potential of the Internet as a communications tool in coastal management and also reveals the many practical technological and cultural constraints of using the Internet, especially in working on a project between the developed and developing world. Three groups of scenarios of the future use of the Internet in coastal management with decreasing levels of forecast certainty, namely, "probable," and "possible," and "potential for" are presented and discussed. Finally, the potential for the Internet to fundamentally transform the practice of coastal management is analyzed. It is concluded that while such a potential exists, there remain significant research questions requiring further analysis before the full transformative potential, and the possible impacts of such a transformation on coastal management, can be fully assessed. This article aims to provide a benchmark against which such future assessments can be made.     

Collaborative Management of Natural Resources in San Diego Bay

This article presents the results of a three-year effort at applying information technology to the problem of collaborative natural resource management in San Diego Bay. As such, it represents an approach to integrated coastal zone management (ICZM). This effort resulted from a collaboration between the San Diego Supercomputer Center at the University of California, San Diego and the San Diego Bay Interagency Water Quality Panel for the purpose of (1) developing an environmental data repository to facilitate the acquisition and sharing of data and (2) the development of a visual model of the bay in support of the development of a comprehensive, coordinated management plan for San Diego Bay. It was determined from this study that information technology is an important and key component to ICZM but that sociopolitical factors may override the benefits of decision-support systems and should be considered at the outset of any project of this kind.     

Abrolhos 2000 : Conserving the Southern Atlantic's Richest Coastal Biodiversity into the Next Century

The Abrolhos bank, an area of continental shelf off the coast of Bahia, Brazil, has the most biologically diverse coral reefs in the entire southern Atlantic Ocean. The coral reefs and nearby coastal ecosystems constitute a global conservation priority and are the target of the Abrolhos 2000 project, initiated by Conservation International as part of its global marine conservation strategy. Although portions of the Abrolhos reefs are located within a marine park, they are not afforded adequate protection due to insufficient conservation resources and a failure to be part of a broader integrated coastal management program. Through partnerships with government agencies, nongovernmental organizations, local communities, the private sector, and other stakeholders, Abrolhos 2000 is working to provide these needs while establishing local capacity for conserving coastal and marine ecosystems. The project's initial successes provide examples of useful strategies for making integrated coastal management work in the context of emerging economies.     

Attitudes toward Participation in Cooperative Coastal Management: Four European Case Studies

Findings are reported of the VALCOAST project that had as one of its research objectives to ascertain: (a) stakeholder willingness to participate and cooperate in coastal management (CM), given local and national CM practices; and (b) stakeholder assessment of the "accessibility" and "friendliness" of current CM processes. The project involved case studies and stakeholder interviews in Belgium, Greece, Spain, and the UK. Major findings include: (1) most stakeholders are willing to cooperate in three out of the four case areas, but not to the same extent; (2) the participating "officials" in the case studies are expecting the stakeholders to be less willing to cooperate than the latter indicate; (3) stakeholders in all case studies do not expect to be heard by those responsible for CM, find it difficult to learn about the relevant institutional arrangements, and consider the communication of the objectives and anticipated impacts of CM policies to be inadequate. It is concluded that the strong evidence of stakeholders' potential willingness to cooperate in local initiatives is very encouraging for a devolved, regional approach to European Union coastal management policies, provided that this potential is capitalized upon in such policy processes.