1

Spatial planning for Aquaculture: a Special National Framework for

resolving local conflicts

Dr Karka Helen, Dr E. Kyriazopoulos, K. Kanellopoulou

Ministry for the Environment, Energy and Climate Change,

Greece

51st Congress of the European Regional Science Association,

Barcelona, 30 August -3 September 2011

2

A. Marine spatial planning The need for an integrated marine spatial

planning became imperative in the 90s. Initially, the interest was in designating marine

protected areas. More recently, attention has been placed on the

question of conflicting sea uses and on the imperative to combine the development of multiple activities with the protection of the marine environment.

To this day, there is still no integrated spatial plan for marine areas at national level.

Of course, there is an extensive legal and policy framework, especially on environmental protection and on sectoral issues, for the issuing of which EU has been the main driving force

3

Marine Spatial Planning in the European Countries

The complexity of marine spatial management revealed the need for more comprehensive approaches.

They aim at preventing fragmentation and promote the efficient use of space, while giving private parties the scope to develop their own initiatives, within certain constraints.

To this end, several European countries have already worked on elaborating spatial plans for sea areas (The United Kingdom, Germany, the Netherlands and Belgium).

Some of them also put a lot of interest into managing the marine fisheries, but they pay less attention to the aquaculture sector.

4

The Greek Special Spatial Framework for Aquaculture

It appears at a time when other countries are oriented towards integrated marine spatial plans.

The limitations of the sectoral approaches are acknowledged by the parties involved in the elaboration of the plan.

The Special Framework for the Coastal areas, elaborated in 2003 has never been endorsed.

The focus on this single sector has been judged as necessary, given the specific conditions under which the aquaculture sector has developed, its production magnitude and the spatial extension of the activity.

The Aquaculture Framework constitutes a part of an entire program on the formulation of the national policy on spatial planning.

5

The Aquaculture sector in Greece

During the 25 last years, marine aquaculture developed into one of the most productive economic sectors in the country.

300 farms of marine fish aquaculture are in operation, occupying 780 Ha of concessed sea areas and employing 10.000 people.

6

The Aquaculture sector in Greece

Mussel cultivation is also an economic activity of national interest, with 600 farms that register an annual production of 22.000 tons.

Fresh water aquaculture is operated in 110 small farms, totalizing an annual production of 3.200 tons.

POLE MUSSEL CULTIVATION

7

Planning aquaculture activities The sector’s development took place in absence of a

regulatory framework on spatial planning of productive activities.

Its spatial management was based on a licensing system, where the EIA permits were central.

The National Spatial Plan which would provide basic guidelines for the spatial organization of the activity is in force only since 2008.

The 12 Regional Spatial Plans that date back to 2003 have not offered proper solutions to the crucial issue of farms’ site selection.

The references made to the aquaculture activity were extremely limited.

The Plans proposed the elaboration of additional, more specific, studies for the spatial organization of the aquaculture farms in specific zones.

8

The general context Shortcomings of the regional plans because: Spatial planners were unfamiliar to the sector’s

importance and needs. Public resistance because of past bitter experience and

because the farms’ location is seen as an impediment to future tourist or second home development.

The site selection was made by the operators and

important concentrations were formed in areas that have been proved to be favourable for aquaculture.

In this context of absence of statutory plans and adoption

of ad hoc solutions and actions, the intervention of the Council of the State was decisive.

The Council’s rulings have overturned many administrative acts regarding individual location permits.

Under these conditions, in which all permits risked to be

revoked, the elaboration of the Special Spatial Framework for Aquaculture was an imperative.

9

The scope of the Plan The Plan regulates the spatial organization (location, management, control and development) of aquaculture in both fresh and marine waters. It covers the cultivation of any aquatic organism, animals and plants. It also applies to land based production. The main part reports to marine finfish aquaculture but it also embraces provisions on shellfish cultivation, as well as on other types of aquaculture that take place in the country. Its main goal is to register, make explicit and serve the basic spatial needs of aquaculture units in a way that their operation does not disturb the preservation and development of other activities or irretrievably deteriorates the environment.

10

The content of the Plan The plan has also an instructive role. Its first part is devoted to the identification of the main aquaculture types and the description of the necessary facilities. The plan distinguishes 4 aquaculture types, in response

to their needs for spatial regulation: Aquaculture of marine fish species, of shellfish, in fresh water and in lagoons.

The plan cites the accompanying facilities on the continental shelf and defines those that may be located in the coastal strip in public ownership.

11

The spatial organization of aquaculture activity

The plan provides guidelines for the location of fish farms, based on a zoning principle. However, it recognizes the need for individual location in special cases.

The plan’s main provisions, as regards the designation

of appropriate areas are the following: Zones Suitable for the development of aquaculture Allocated Zones organized and managed by a special

authority. Informal zones in places with existing concentrations. Individual locations: a) within Suitable Zones b) exceptionally, outside the provided zones.

12

The Suitable Zones

The Suitable Zones are divided in 4 different categories:

Zones already

developed Zones with a

development potential Remote areas of merit

for aquaculture development

Sensitive areas under a protection regime

13

The Allocated Zones The zones are precisely

defined areas, studied and approved under a specific legislative body and operated by a management authority formed for the specific zone.

The existence of this authority is the first precondition for the start of the development procedure.

The Allocated Zones can be designated only within the Suitable Zones.

Allocated Zones for mussel cultivation in Thermaikos Gulf

14

FISH MUSSELS

FISH AND MUSSELS

STUDIES ON ALLOCATED ZONES

15

The Informal Zones

They are identified in places with existing concentrations of farms.

They may be preserved as such for a transitional phase of 5 years. During this period they have to follow the procedures for their designation as Allocated Zones.

Clustering of small installations occupying a surface inferior to 100.000 m2 may preserve the status of Informal Zones.

16

Other Provisions of the Plan The Plan also: expresses the basic principles and directions for

aquaculture farms spatial development defines the necessary conditions for the site selection. indicates the necessary procedures and cites the

necessary and accompanying continental facilities of the farms, while setting criteria for their location.

17

Other Provisions of the Plan The Plan also: includes provisions relatively to the interaction of

aquaculture with other activities and provides for the distances from incompatible land uses.

proposes amendments to other pieces of law, in order to facilitate the achievement of its goals and objectives and

sets an action programme for its implementation.

MUSSEL CULTIVATION FACILITIES IN CHALASTRA (Thermaikos Gulf)

18

Conclusions Greece is elaborating a sectoral spatial framework for

aquaculture when other EU countries forward more comprehensive approaches to marine spatial planning.

The endorsement of a specific plan has been judged as the only way to address the problems encountered by the activity during its spatial development.

Public resistance stirred up by house agents and second home owners influence local stakeholders and local authorities.

The result is increasing difficulties for aquaculture operators in renewing licences and permits and, moreover, selecting sites for establishing of new farms.

So, the national framework is asked to solve local conflicts, which is a difficult mission to accomplish.

It is not only a tool that will offer more transparency at the licensing process and certainty to aquaculture developers.

It will be implemented as a legally-binding process embracing not only principles and guidance but also concrete tools that will be integrated in local spatial planning.

19

Thank you for your attention !!!

51st Congress of the European Regional Science Association,

Barcelona, 30 August -3 September 2011