TOWARD THE
TOW
2002 WORLD SUMMIT ON
SUSTAINABLE DEVELOPMENT
SUST
,
AINABLE DEVELOPMENT
JOHANNESBURG
Ministerial Perspectives
on Oceans and Coasts
at Rio+10
The Global Conference on Oceans and Coasts
December 37, 2001
UNESCO, Paris
Conference Executive Committee
Conference Co-Chairs:
Members:
Dr. Patricio Bernal, Executive Secretary,
Charles Ehler, National Oceanic and
Intergovernmental Oceanographic
Atmospheric Administration (USA)
Commission, UNESCO
Indumathie Hewawasam, World Bank
1, rue Miollis, 75732 Paris Cedex 15, France
Tel: 33-1 4568 3938
Seoung Yong-Hong, Ministry of Maritime
Fax: 33-1 4568 5810
Affairs and Fisheries (Korea)
Email: p.bernal@unesco.org
Magnus Johannesson, Ministry of
Dr. Biliana Cicin-Sain, Director,
Environment (Iceland)
Center for the Study of Marine Policy
University of Delaware
Francisco Mabjaia, Ministry of
Robinson Hall 301,
Environment (Mozambique)
University of Delaware,
Evelyne Meltzer, Department of Fisheries
Newark, DE 19716 USA
and Oceans (Canada)
Tel: +1(302) 831-8086
Fax: +1(302) 831-3668
Jean-François Minster, IFREMER (France)
Email: bcs@udel.edu
Sian Pullen, World Wildlife Fund (United
Conference Coordinators
Kingdom)
Julian Barbière, Intergovernmental
Tamari'i Tutangata, SPREP (Samoa)
Oceanographic Commission, UNESCO
Veerle Vandeweerd, UNEP/GPA
Stefano Belfiore, Center for the Study of
(The Netherlands)
Marine Policy, University of Delaware
Additional Conference reports, including the Co-Chairs' Report and the reports of
the Working Groups, are available from the Secretariats.
For copies of this report or the other publications, please contact:
Julian Barbière
Catherine Johnston
Intergovernmental
Center for the Study of Marine Policy
Oceanographic Commission
University of Delaware
1, rue Miollis
301 Robinson Hall
75732 Paris
Newark, Delaware
Cedex 15, France
19716 USA
Tel. 33-1 4568 4045
Tel. +1(302) 831-8086
Fax 33-1 4568 5812
Fax +1(302) 831-3668
Email: j.barbière@unesco.org
Email: johnston@udel.edu
Intergovernmental Oceanographic
Center for the Study of Marine Policy
Commission, UNESCO
University of Delaware, USA
Graphic design by Kevin McLaughlin
Conference logo by Jorge Gutierrez
TOWARD THE
2002 WORLD SUMMIT ON
SUSTAINABLE DEVELOPMENT,
JOHANNESBURG
Ministerial Perspectives
on Oceans and Coasts
at Rio+10
Edited by
The Honorable Seoung-Yong Hong,
Vice-Minister, Korean Ministry of Maritime Affairs and Fisheries,
with
Kevin Goldstein,
Center for the Study of Marine Policy
Ministerial Perspectives on Oceans and Coasts at Rio+10
Conference Financial Support
Conference Patrons:
Conference in-kind and/or travel support:
Government of Brazil
ACOPS, United Kingdom; American
South Africa; Ministry of Fisheries,
Society of Limnology and Oceanography,
Iceland; Ministry of Foreign Affairs,
Department of Fisheries and Oceans, Canada
USA; Arctic Council, Finland; Asian
Russian Federation; Ministry of Industry,
Government of France
Development Bank, Philippines;
Science and Technology of the Russian
Ministry of Maritime Affairs and Fisheries,
Australian Oceanographic Data Centre,
Federation; National Institute of Ecology,
Republic of Korea
Australia; Bedford Institute of
Mexico; National Oceanographic
The Nippon Foundation, Japan
Oceanography, Canada; Bureau of
Commission, Cuba; Netherlands Institute
Meteorology, Tasmania, Australia;
for Fisheries Research, Netherlands; North
National Oceanic and Atmospheric
Caribbean Environment Programme,
America Commission for Environmental
Administration, USA
United Nations Environment Programme,
Cooperation, Canada; Ocean Governance
Canadian International Development Agency
Jamaica; Center for Environmental
Study Group, USA; Oceans Blue
Intergovernmental Oceanographic Commission
Science, USA; Center for Maritime Policy,
Foundation, USA; OSPAR Convention,
University of Wollongong, Australia;
United Kingdom; PEMSEA, Philippines;
Center for the Study of Marine Policy,
Centre National de la Récherche
Portuguese Committee,
University of Delaware
Scientifique, France; CSIRO Marine
Intergovernmental Oceanographic
Research, Australia; Deakin University,
Commission, Portugal; RAC-Marine,
Conference Sponsors:
Australia; Department of Environmental
Australia; Research Institute for Ocean
Affairs and Tourism, South Africa;
Economics, Japan; Regional Activity
International Ocean Institute
Department of Natural Resources,
Centre for Priority Actions Programme,
Coastal Resources Center, University of
Canada; El Colegio de Mexico, Mexico;
Croatia; SeaWeb, USA; Texas A&M
Rhode Island/U.S. Agency for International
Environment and Sustainable
University, USA; The Coastal Union,
Development
Development Programme, Commission
Netherlands; The Nippon Foundation,
of European Union, Belgium; EPOMEX,
Japan; The World Conservation Union,
United Nations Environment Programme,
Mexico; Federal Ministry of Environment,
Costa Rica; The World Conservation
GPA Coordination Office
Nigeria; Fisheries Resources and
Union, Switzerland; Transatlantic
World Bank
Environmental Division, Food and
Consortium for Marine Policy; UN Office
South Pacific Regional Environment
Agriculture Organization, Italy; Frozen
of Legal Affairs, Division for Ocean Affairs
Programme
Fish International, Germany; GESAMP,
and the Law of the Sea, USA; University
United Kingdom; Global Coral Reef
of British Columbia, Canada; University
Monitoring Network, Australian Institute
of Cardiff, United Kingdom; University of
Collaborating Organizations
of Marine Science; Global International
East Anglia, United Kingdom; University
Ministry of Environment,
Waters Assessment, Sweden; Global
of Genoa, Italy; University of Milan-
Government of Mozambique
Ocean Ecosystems Dynamic, United
Bicocca, Italy; University of Nantes,
Kingdom; GLOBE International, USA;
France; University of New Hampshire,
Land-Oceans Interactions in the Coastal Zone
Graduate College of Marine Studies,
USA; University of the Philippines,
Department of State, USA
University of Delaware; Green Globe 21,
Philippines; University of Tromsoe,
Ministry of Environment, Energy and
United Kingdom; Greenpeace
Norway; University of Washington, USA;
Natural Resources, Barbados
International, The Netherlands;
Urban Harbors Institute, University of
Greenpeace USA; Horn Point Laboratory,
Massachusetts-Boston, USA; Victorian
Ministry for the Environment and
University of Maryland, USA; IFREMER,
Coastal Council, Australia; Waseda
Heritage, Australia
France; International Geographic Union;
University School of Law, Japan; World
International Collective in Support
International Maritime Organization,
Forum of Fish Harvesters and Fish
of Fish Workers, India
United Kingdom; International Seabed
Workers; World Heritage Centre,
Environment and Development in Coastal
Authority, Jamaica; INTERTANKO,
UNESCO, France; World Maritime
Regions and in Small Islands, UNESCO
Norway; James Cook University,
University, Sweden; World Meteorological
Australia; Lead Program, Mexico; Marine
Organization, Switzerland; World Tourism
Aquarium Council; Marine Research
Organization, Spain; World Wildlife
Institute, Iceland; Ministry of
Fund, Switzerland; World Wildlife Fund,
Environment, Iceland; Ministry of
United Kingdom
Environmental Affairs and Tourism,
ii
Toward the 2002 World Summit on Sustainable Development, Johannesburg
Table of Contents
FOREWORD....................................................................................................................................................................v
France
M. Gilles Le Chatelier,
Directeur de Cabinet, Ministère de la Recherche, France
OPENING REMARKS TO THE GLOBAL CONFERENCE ON OCEANS AND COASTS ................................................1
(text in French)
Republic of Korea
Honorable Vice-Minister Seoung-Yong Hong
Ministry of Maritime Affairs and Fisheries, Republic of Korea
OPENING COMMENTS TO PANEL 1: MINISTERIAL PERSPECTIVES TO ................................................................5
OCEANS AND COASTS AT RIO+10
United States of America
Honorable Congressman James C. Greenwood
United States House of Representatives and President, GLOBE International
ADDRESS TO THE GLOBAL CONFERENCE ON OCEANS AND COASTS ..................................................................7
Australia
Veronica Sakell, Director, National Oceans Office
(for the Honourable Dr. David Kemp, Australian Minister for the Environment and Heritage)
AN AUSTRALIAN PERSPECTIVE ON PROGRESS AND CHALLENGES ......................................................................9
Brazil
Honorable José Sarney Filho, Minister of Environment, Brazil
Presented to the Conference by Ambassador José Israel Vargas, Permanent Delegate of Brazil at Unesco
COASTAL AND MARINE INTEGRATED MANAGEMENT IN BRAZIL ......................................................................13
Canada
The Honourable Herb Dhaliwal, P.C., M.P., Minister of Fisheries and Oceans, Department of Fisheries and Oceans,
Government of Canada
ADDRESS TO OCEANS AND COASTS AT RIO+10: A CANADIAN PERSPECTIVE....................................................17
Mozambique
Honorable Francisco Mabjaia, Deputy Minister for Co-ordination of Environmental Affairs,
Ministry of Co-ordination of Environmental Affairs, Mozambique
MARINE AND COASTAL RESOURCES IN MOZAMBIQUE:
A CHALLENGE FOR A POLICY TOWARDS SUSTAINABLE DEVELOPMENT ..........................................................19
Republic of Indonesia
Minister Dr. Rokhmin Dahuri, Minister of Marine Affairs and Fisheries, Republic of Indonesia
THE CHALLENGES OF PUBLIC POLICY FOR SUSTAINABLE OCEANS
AND COASTAL DEVELOPMENT: NEW DIRECTIONS IN INDONESIA ....................................................................29
Mexico
Exequiel Ezcurra, President, National Institute of Ecology, Secretary of the Environment and Natural Resources, Mexico
MEXICO'S PERSPECTIVE ON OCEANS AND COASTS TEN YEARS AFTER RIO ......................................................35
Russian Federation
Honorable Victor I. Kalyuzhny, Deputy Minister of Foreign Affairs of the Russian Federation and
Special Representative of the President in the Caspian Region
ADDRESS TO THE RIO+10 WORLD CONFERENCE ON OCEANS AND COASTAL AREAS ....................................37
iii
Ministerial Perspectives on Oceans and Coasts at Rio+10
People's Republic of China
Dr. Ni Yuefeng, Deputy Administrator, State Oceanic Administration, China
CHINA'S OCEAN AND COASTAL MANAGEMENT ....................................................................................................41
Italy
Honorable Roberto Tortoli, Italian Undersecretary of State for Environment
ADDRESS TO OCEANS AND COASTS AT RIO+ IO: AN ITALIAN PERSPECTIVE ....................................................53
Republic of Nigeria
Honorable Dr. Otuekong Imeh T. Okopido, Minister Of Environment (State), Federal Ministry Of Environment,
Federal Republic Of Nigeria
THE AFRICAN PROCESS ON THE DEVELOPMENT AND PROTECTION OF
THE MARINE AND COASTAL ENVIRONMENT ........................................................................................................55
Republic of Korea
Honorable Vice Minister Seoung-Yong Hong, Ministry of Maritime Affairs and Fisheries, Republic of Korea
CLOSING STATEMENT TO PANEL 1:
MINISTERIAL PERSPECTIVES TO OCEANS AND COASTS AT RIO+10 ....................................................................65
Canada
Matthew King, Assistant Deputy Minister, Department of Fisheries and Oceans, Canada
NATIONAL OCEANS POLICY AND PLANNING AND MANAGEMENT OF
EXCLUSIVE ECONOMIC ZONES ..........................................................................................................................................67
Samoa
Ambassador Tuiloma Neroni Slade, Permanent Representative of Samoa to the United Nations, New York,
and Chairman of the Alliance of Small Island States (AOSIS)
SMALL ISLAND DEVELOPING STATES: TRENDS SINCE RIO ..................................................................................69
Finland
Ambassador Peter Stenlund, Chair of the Arctic Council, Finland
LESSONS IN REGIONAL COOPERATION FROM THE ARCTIC ................................................................................77
United States of America
Ambassador Mary Beth West, Deputy Assistant Secretary for Oceans and Fisheries, Bureau of Oceans,
International Environmental and Scientific Affairs, U.S. Department of State
IMPROVING SCIENCE APPLICATIONS TO COASTAL MANAGEMENT ..................................................................79
United Nations
Ambassador Satya N. Nandan, Secretary-General, International Seabed Authority, Kingston, Jamaica
DEVELOPMENTS IN THE INTERNATIONAL LEGAL FRAMEWORK FOR
GLOBAL OCEAN GOVERNANCE................................................................................................................................81
South Africa
Honorable Rejoice Mabudafhasi, Member of Parliament of the Republic of South Africa,
Deputy Minister of Environmental Affairs and Tourism
CONCLUDING REMARKS TO OCEANS AND COASTS AT RIO+10:
TOWARD THE 2002 WORLD SUMMIT ON SUSTAINABLE DEVELOPMENT, JOHANNESBURG............................87
Global Conference on Oceans and Coasts at Rio+10:
ORGANIZING COMMITTEE ........................................................................................................................................91
iv
Toward the 2002 World Summit on Sustainable Development, Johannesburg
FOREWORD
This volume contains the addresses and papers of the Ministers and other Eminent Persons participating in the
Global Conference on Oceans and Coasts at Rio+10: Toward the 2002 World Summit on Sustainable Development,
Johannesburg. The Conference took place on December 3-7, 2001 at UNESCO, Paris, and involved over 400 partic-
ipants from 61 countries, assembling an array of experts from a diverse range of sectors including governments,
United Nations agencies and other intergovernmental organizations (IGOs), and nongovernmental organizations
(NGOs) representing environmental, industry, and scientific/technical perspectives.
After opening remarks, the Conference commenced with a panel devoted entirely to Ministerial Perspectives on
the status of oceans and coasts nearly ten years after the 1992 United Nations Conference on Environment and
Development (UNCED) in Rio de Janeiro. Ministers and representatives came from 13 leading countries in ocean
and coastal management, including: Australia, Brazil, Canada, China, Iceland, Indonesia, Italy, Korea, Mexico,
Mozambique, Nigeria, the Russian Federation, and the United States. In addition, ministers and other eminent per-
sons from South Africa, Finland, Canada, the United States, Samoa and the United Nations addressed the
conference through panel presentations, and the Conference was concluded with a view toward the forthcoming
World Summit in Johannesburg by the South African delegation.
This conference occurred at a crucial time for oceans, coasts and islands. After a decade of significant change at
international, national, and local levels, Oceans and Coasts at Rio+10 provided an opportunity to take stock, to
assess what has been accomplished on oceans and coasts since the Earth Summit. Agenda 21 established an ambi-
tious program of action. But, the world has changed and new priorities have emerged. From the ministerial
perspectives, the panel speakers, and the working group discussions that occurred at the conference, a clear and
central theme emerged: it is imperative that oceans, coasts and islands be included in the discussions at the WSSD,
as sustainable development and poverty reduction cannot be achieved without healthy oceans.
Among the national and international perspectives offered by the Ministers and other Eminent persons attend-
ing the conference, areas of common concern emerged. For instance, declining trends in the marine environment,
whether related to overfishing, destruction of coral reefs, erosion caused by the loss of managrove swamps, or
degradation of coastal ecosystems, were often highlighted. At the same time, however, local and national Agenda
21 initiatives are being witnessed on an ever-increasing scale, and it is especially encouraging to hear mention
made of many promising projects that are currently either in developmental or implementation phases.
We are deeply thankful to the Ministers and Eminent persons who participated in the conference and lent their
strong support to this preparatory process for the WSSD. We would also like to thank the many Governmental,
NGO, and IGO organizations that have provided support for the conference and which are listed in the beginning
of this volume. We especially appreciate their encouragement and faith that an unusual "hybrid" meeting like this
one -- which brought together Governments, NGOs, and IGOs together in the same venue -- could produce
significant results for consideration by the international community.
Dr. Patricio Bernal
Dr. Biliana Cicin-Sain
Intergovernmental
Center for the Study
Oceanographic
of Marine Policy,
Commission, UNESCO
University of Delaware
v
Ministerial Perspectives on Oceans and Coasts at Rio+10
vi
Toward the 2002 World Summit on Sustainable Development, Johannesburg
OPENING REMARKS TO THE GLOBAL CONFERENCE ON
OCEANS AND COASTS
M. Gilles Le Chatelier,
France
Directeur de Cabinet, Ministère de la Recherche, France
La conférence de Rio a permis il y a bientôt dix ans une avancée
En premier lieu, les océans et les mers qui couvrent plus de 70%
essentielle dans la prise de conscience de l'influence de l'activité
de la surface de notre planète contrôlent le cycle du carbone. A
humaine sur notre environnement et tout particulièrement sur
terme l' océan régulera l'abondance du gaz carbonique et d'autre
la nécessité de réduire les émissions de gaz à effet de serre. Le
gaz à effet de serre dans l' atmosphère. Il absorbe actuellement
sommet mondial de Johannesburg qui se tiendra en septembre
plus du tiers du gaz carbonique d'origine anthropique. Il est
2002 doit, au-delà de l'indispensable bilan des actions réalisées
donc essentiel d'analyser l'influence que pourraient avoir l'évo-
depuis l0 ans, nous permettre de poursuivre dans cette voie et de
lution des conditions physico-chimiques liées à l'effet de serre
prendre de nouvelles initiatives en faveur du développement
sur ce rôle joué par l'océan.
durable.
De plus, l'océan absorbe et redistribue une grande partie de la
Aussi, la France se félicite d'avoir été choisie pour accueillir cette
chaleur crée dans l'atmosphère par les mécanismes liés à l'effet de
conférence qui s'inscrit dans la préparation de ce sommet et qui
serre. Parmi les conséquences éventuelles des changements
est dédiée à un thème particulièrement sensible: le rôle des
induits, on trouve ainsi la réduction du taux de formation des
océans et des zones côtières et celui du couplage océan-atmo-
eaux: profondes dans l'Océan Atlantique Nord, avec des con-
sphère dans l'évolution du système « Terre ».
séquences climatiques au niveau régional qui pourraient être
Je suis donc très honoré et, heureux, au nom du Gouvernement
plus intenses que celles liées au réchauffement climatique lui-
français et du ministre de la recherche, Roger-Gérard
même. De telles hypothèses doivent être analysées de façon
Schwartzenberg, retenu par d'autres obligations, de vous accueil-
approfondies et leurs signes avant-coureurs suivis de près.
lir aujourd'hui et de vous souhaiter la bienvenue à Paris. Je tiens
Le réchauffement climatique induit par ailleurs des phénomènes
d'ailleurs à remercier tout particulièrement la Commission
comme la réduction de l'épaisseur et de l'étendue des glaces en
océanographique intergouvernementale d'avoir organisé ce col-
Arctique, comme l'élévation du niveau des mers, et des événe-
loque dans notre capitale, et l'UNESCO qui nous accueille dans
ments tels que El Nino qui peuvent avoir des conséquences
ses locaux pour cette grande manifestation. Tous nos voeux de
spectaculaires à court terme mais dont les effets doivent égale-
réussite vous accompagnent pour ces travaux qui sont partic-
ment être étudiés sur le long terme, notamment pour les
ulièrement importants pour notre avenir.
populations concernées.
La France, nation à grande tradition maritime, possède un sys-
Enfin, c'est dans l'océan que l'on commence à percevoir les pre-
tème côtier particulièrement étendu, dont il faut concilier
miers signes des conséquences du changement climatique sur les
l'utilisation par des acteurs aux intérêts parfois divergents. Elle
écosystèmes et les ressources vivantes. Dans le Golfe de
est bordée par la Méditerranée, par l'Océan Atlantique, la Mer du
Gascogne, on trouve maintenant des poissons tropicaux. Des
Nord et la Manche, ainsi que par les océans Indiens. Pacifique et
colonies d'espèces jusqu'ici spécifiques des côtes du Portugal ont
Antarctique.
également été observées au nord de l'Angleterre. On peut aussi
Comme vous le savez nous disposons avec l'IFREMER, d'un
d'ores et déjà percevoir une tendance significative au ralentisse-
organisme dont les recherches sont spécifiquement orientées
ment du renouvellement des stocks de certains poissons d'intérêt
vers le milieu marin et qui met à la disposition de la commu-
économique.
nauté scientifique nationale des navires et des moyens de
Le réchauffement climatique est un des défis majeurs à relever
recherche tout à fait remarquables comme la THALASSA,
par nos sociétés au XXIeme siècle. Il existe aujourd'hui un large
l'ATALANTE ou encore le MARION DUFRESNE de l'IFRTP. Je sais
consensus scientifique pour dire que si rien d'efficace n'est fait,
que de nombreux experts de cet établissement sont reconnus au
ses conséquences seront très préoccupantes: sécheresses, inonda-
niveau international et sont des membres tout à fait actifs de
tions, élévation du niveau des océans, érosions des sols... Aussi,
votre communauté et je tiens à saluer son Président directeur
il est aujourd'hui nécessaire d'agir vite et de façon déterminée
général Jean-François Minster qui doit être présent parmi nous.
pour lutter contre ce phénomène.
Notre pays est ainsi très attentif aux phénomènes complexes qui
Plus nous tarderons à nous engager dans la réduction des émis-
perturbent les équilibres des océans et aux effets de ces perturba-
sions de gaz à effet de serre et plus le changement climatique qui
tions sur la planète et son climat. Dans la problématique de
en résultera sera important. Nous avons là une responsabilité très
l'effet de serre et l'analyse de ses impacts, l'océan et les zones
forte vis-à-vis des générations futures, qui auront à connaître les
côtières jouent un rôle essentiel:
effets des décisions que nous allons prendre ou ne pas prendre
1
Ministerial Perspectives on Oceans and Coasts at Rio+10
dans les années à venir. En la matière, le laissez-faire ou l'inertie
Conseil de l'ESA vient de décider à Edimbourg de lui consacrer
constituerait pour les décideurs publics une faute politique
83 millions d'euros supplémentaires.
grave.
Les moyens spatiaux constituent en effet un outils privilégié de
l'observation de la Terre et de son environnement, car ils offrent
La réduction des émissions de gaz à effet de serre doit. intervenir
des données de façon permanente et fiable, en couvrant toutes
dans un cadre international et concerner tous les Etats. D'abord,
les échelles nécessaires d'espace et de temps. Il est cependant
parce que les évolutions du climat se manifesteront au niveau
indispensable de fusionner les données mesurées depuis l'espace
mondial, et. pas seulement dans les zones géographiques les plus
avec celles acquises au sol, dans les océans et le sous-sol.
génératrices de pollution. Ensuite parce que seul un effort de
La coopération engagée entre le CNES et la NASA avec de nom-
tous les pays, réparti de façon équitable et coordonné au niveau
breux autres organismes pour lancer le 7 décembre prochain le
international, nous permettra de parvenir à maîtriser ce
satellite d'océanographie Jason, qui prendra la relève de Topex-
phénomène.
Poseidon et permettra de surveiller les courants océaniques et le
C'est la raison pour laquelle la France s'est résolument engagée
niveau de la mer est un exemple concret des actions à conduire
avec l'Europe pour soutenir le protocole de Kyoto et sa mise en
dans ce domaine.
oeuvre effective.
Simultanément, l'IFREMER et Méteo-France élaborent les outils
La recherche a un rôle essentiel à jouer dans cette mobilisation
de surveillance In situ des courants océaniques, les bouées du
contre les effets du réchauffement climatique. Les recherches sur
projet Coriolis, composante française de l'expérience interna-
l' environnement et l'énergie font ainsi partie des trois priorités
tionale ARGO. 6 organismes français se sont associés pour
du ministère de la recherche, avec les sciences de la vie, et les sci-
développer un système de prévision des courants océaniques
ences et technologies de l'information et de la communication
appelé Mercator, avec l'ambition à moyen terme que se crée avec
(STIC).
nos partenaires européens un centre d'océanographie opéra-
En 2002, le ministère leur consacrera près de 16% du budget civil
tionnelle.
de recherche et développement, soit un montant de 1 445 mil-
La Recherche permet ensuite d'appréhender
lions d'euros, en augmentation de 3,3% par rapport à 2001. Au
les conséquences du changement à venir sur les
total plus de 5 000 chercheurs et ingénieurs sont mobilisés au
activités humaines, sur la santé et sur les
niveau national à temps plein sur ce thème. Cette priorité devra
milieux naturels (eau, cultures, forêts,
également figurer en bonne place au sein du 6eme Programme
Cadre de la Recherche et de Développement de l'Union
biodiversité...) :
européenne, le PCRD, en cours de discussion au sein du Conseil
Il ne s'agit pas ici de céder au catastrophisme, les sociétés
des ministres européens de la recherche du Parlement européen. humaines disposant en effet de fortes capacités d'adaptation,
Les scientifiques sont d'ailleurs à l'origine des discussions qui ont
mais nous devons étudier les conséquences des évolutions de
conduit à la signature de la convention de Rio en 1992, puis du
notre environnement et des pollutions, dont les effets peuvent
protocole de Kyoto en 97. La Recherche est en effet en mesure
être multiples :
d'intervenir aux. différents niveaux de la lutte contre le change-
· sur la santé humaine, il y aura un impact direct dû aux varia-
ment climatique :
tions de température et aux pollutions locales; mais surtout il
Elle permet d'abord de mesurer les évolutions de
y a un risque de développement et de déplacement de certaines
pathologies et de leur dissémination ;
notre environnement, de comprendre les mécan-
ismes du changement climatique et de les modélis-
· sur la nature au sens large et notamment sur les arbres et sur
er pour estimer les évolutions à venir:
l'agriculture, qui devront aussi bien intégrer l'augmentation
de la teneur en gaz carbonique que les variations de tempéra-
Il est à ce titre plus que jamais indispensable de poursuivre notre
ture et d'humidité.
effort de compréhension et de modélisation des évolutions du
climat, de notre environnement et de l'impact des activités
Les régions du globe qui disposent des ressources les plus
humaines sur ceux-ci. Comme je le soulignais tout à l'heure
réduites sont aussi celles dont les capacités d'adaptation sont les
l'Océan joue ici un rôle prioritaire.
plus faibles. Celles-ci sont donc les plus vulnérables. Là encore, il
faut agir pour empêcher le fossé Nord-Sud de se creuser .
Le développement des sources d'observation et de recueils de
données sur l'environnement est également une priorité, qu'il
La Recherche est enfin à la source du développe-
s'agisse de la recherche des données du passé ou du suivi des évo-
ment technologique et des solutions que nous
lutions en cours.
devons dégager pour réduire les émissions de gaz
Je tiens à ce titre à souligner l'importance de l'initiative lancée
à effet de serre :
par la Commission européenne pour la surveillance de l'envi-
Notre effort de réduction des émissions de gaz à effet de serre
ronnement et la prévention des risques : Global Monitoring for
doit aujourd'hui principalement porter sur deux axes, la produc-
Environment and Security, GMES. Cette initiative a été soutenue
tion d'énergie et les transports.
par le Conseil de l'Union pendant la présidence française et le
2
Toward the 2002 World Summit on Sustainable Development, Johannesburg
Nous devons réduire nos consommations énergétiques, tout en
maintenant notre qualité de vie. Il s'agit de produire mieux en
consommant moins d'énergie et aussi de produire autrement en
développant la part des énergies renouvelables.
Nous devons nous orienter vers des procédés propres et contrôlés
par une interaction renforcée entre le secteur de la production et
de la recherche, même la plus amont.
Il faut également réfléchir aux modes de transport de personnes
et de marchandises, et modifier nos comportements quotidiens.
La mobilisation de tous est ici nécessaire, chercheurs, industriels
et citoyens.
Les choix à faire dépendent de l'acceptation de l'opinion
publique, qu'il faut pleinement informer et des décisions poli-
tiques qu'il faut avoir le courage prendre.
Il y a plusieurs décennies, Paul Valéry écrivait déjà: Le temps du
monde fini commence. Plus tard. dans les années 1910, Marshall
Mac Luhan décrivait la terre comme un village planétaire.
Aujourd'hui, nous y sommes. La population mondiale prend
conscience de son unité et du fait que 1'humanité est une, par-
delà les frontières, qui sont souvent des cicatrices de l'histoire.
Ce qui est en jeu, c'est notre destin commun dans les décennies
qui viennent et, au-delà, le sort des générations futures que nous
ne pouvons hypothéquer par nos actes ou nos abstentions d'au-
jourd'hui.
II faut concilier le développement et le respect de l'environ-
nement. Il n'y a aucune fatalité à voir la croissance économique
se réaliser au détriment des préoccupations écologiques, comme
cela a été trop souvent le cas au XXe siècle.
Le concept de développement durable doit conjuguer une dou-
ble nécessité: celle de la croissance économique et celle de la
protection de l'environnement.
La protection de l'environnement doit être désormais une de nos
principales priorités politiques et le volontarisme politique doit
s'appliquer à la défense de l'environnement, comme il s'applique
à d'autres grandes priorités. Face à l'urgence climatique, face aux
autres défis écologiques, la recherche peut et doit contribuer à la
prise de conscience et à la prise de décision.
L'importance de l'océan dans la compréhension des
phénomènes climatiques locaux ou globaux est un fait reconnu.
Cette conférence, lieu de concertation et d'échange, permettra
de progresser dans la prise en charge par les scientifiques certes,
mais également par les Etats, du problème mondial de l'effet de
serre, et de la prévision de ses impacts sur les climats régionaux
et sur le climat global.
Je tiens donc encore une fois à remercier, au nom du
Gouvernement français, les organisateurs de cette conférence et
l'UNESCO et à vous renouveler tous mes voeux de réussite pour
vos travaux.
3
Ministerial Perspectives on Oceans and Coasts at Rio+10
4
Toward the 2002 World Summit on Sustainable Development, Johannesburg
OPENING COMMENTS TO PANEL 1:
MINISTERIAL PERSPECTIVES TO OCEANS AND
COASTS AT RIO+10
Republic
Honorable Vice-Minister Seoung-Yong Hong
of Korea.
Ministry of Maritime Affairs and Fisheries, Republic of Korea
Good morning, Excellencies, distinguished participants, Ladies
tons every ten year. It provides 16% of all animal protein with
and Gentlemen:
the world.
I'm Seoung-Yong, Hong, Vice Minister of the Maritime Affairs
We are witnessing more and more push for deep sea drilling for
and Fisheries Ministry from the Republic of Korea.
oil and gas as it becomes technically feasible. Our oceans are an
On the occasion of this important UNESCO Conference on
endless universe of exploration and discovery, a key source of
Oceans and Coasts at Rio+10, I'd like to express my special
bio-technology and a barometer of weather and climate.
honor and privilege to chair this panel 1 whose speakers are
Paradigm Shift in Ocean Management
leading in today's world marine domain.
Distinguished Participants!
I am particularly indebted to the two Program co-chairs,
It is my understanding that our politics and institutions, decla-
Professor Biliana Cicin-Sain - University of Delaware - and Dr.
rations and agreements are an expression of our values. The
Patricio Bernal - Executive Secretary of IOC.
values are an expression of our spiritual beliefs on the relation-
Ladies and Gentlemen!
ship between humanity and the nature.
Let's pause and consider how we will honor the past and imag-
The adoption of the UN Convention on the Law of the Sea
ine the future and what we want to leave to our future
(UNCLOS) in 1982 and the Chapter 17 of Agenda 21 in 1992 are
generations.
the reflections of the world community's consensus on the need
Era of Blue Revolution: Symptom of
to protect the sustainability of whole nature.
Oceanization
According to Chapter 17, a large number of activities at the glob-
al, regional and national levels have been fostered and
Thomas Mann once depicted that "The ocean is not landscape,
implemented.If I quote some examples:
it is the experience of eternity." If I quote the eloquent speech
of Al Gore, this is because oceans are critical not just to our
· Convention of the Biological Diversity in 1992;
economy, not just to our food supply and trade but to the fab-
· GPA (Global Programme of Action for the Marine
ric of human life itself.
Environment from the Land-Based Activities) in 1995;
World-renowned scholars forecast that the twenty first century
· FAO Code of Conduct for Responsible Fisheries in 1995;
will be the Blue Revolution. Expectations regarding the Blue
· Significant improvement of IODE (International
Revolution of the 21st century are much greater than those of
Oceanographic Data & Information Exchange) programme
the Green Revolution of 1960s.
and GOOS (Global Ocean Observing System);
The economic, ecological and social dimensions of the oceans
· UNICPO (United Nations Informal Consultative Process on
and seas were recently estimated with the economic value of the
Oceans and the Law of the Sea) in 2000;
oceans from US $ 1 trillion to US $ 7 trillion per year. However,
the ecological value varied from US $ 3 trillion to US $ 21 trillion
International communities' recent adoption of Kyoto Protocol
per year, thus outreaching 1.3 times the world GDP.
and Doha Development Agenda of WTO is also expected to
influence our ocean agendas.
Today, two-thirds of the world's largest cities are located within
the coastal strips.
Challenging Issues
Over 80% of international trade is transported by oceans.
Such global progresses, however, should not be a blindfold veil-
Container ships have driven up their sizes from 1,000 TEU in the
ing the long way for us yet to go. While our actions and
1960s to over 6,000 TEU in the latter 1990s. Concept designs
accomplishments are commendable, the challenges faced by the
already exist for ships up to 18,000 TEU. The limits to growth, if
international community are also enormous; in some cases, per-
there are any, will be market-determined. World container cargo
sistent problems continue; in others, new issues are emerging,
volume increased five times in twenty years (from 37 million
thus requiring attention and wisdom.
TEUs in 1980s to 180 million TEUs in 2000.)
Overexploitation of marine living resources, degradation of the
World production of fish and shellfish has tripled since 1960s
marine environment, inability of many countries to benefit
and has increased at twice the rate of the world's population
from the rights and fulfill the obligations under the new inter-
growth. World demand of fish has increased about 30 million
national legal regime, vulnerability of many islands and coastal
5
Ministerial Perspectives on Oceans and Coasts at Rio+10
countries to ocean phenomena and increasing crimes at sea are
To revise and newly enact laws, regulations and guidelines in
only a few examples.
accordance with new ocean regime (say, ICZM in 1999; EEZ Act
Therefore, developing better ocean governance should also be an
in 1996; new bilateral Fisheries Pact with Japan and China; total-
impending mandate.
ly amended Oceans Act in 2000);
The Scholarly Father of Ocean Governance, the late Dr. Robert
To deregulate and decentralize, taking into consideration global-
Knecht emphasized the need of an integrated architecture and
ization and market-oriented economy;
make-up of governance with the advent of new ocean regime.
To prepare APEC Ocean-related Ministerial Meeting next year in
He stressed the importance of Proactive, Anticipatory look at
Seoul;
current and potential use of ocean areas, Evaluation of manage-
In relation to capacity-building, to introduce Korean Sea Grant
ment measures in place, and the ultimate Modification of
Program for strengthening academic institutions and private sec-
existing approaches or the Crafting of new management frame-
tors;
work.
However, we also have some challenging issues to cope with.
Korean Experiences: Fusion Politics
First, the NIMBY (Not In My Back Yard) Syndrome in-between
Ladies and Gentlemen!
development and conservation.
In my view mostly based on Korean experiences, ocean gover-
Second, PIMFY (Please In My Front Yard) Syndrome to induce
nance may be an example of fusion politics.
development projects in their own areas to the benefits of stake-
holders nearby.
Allow me to summarize some recent achievements in the Korean
case.
Third, NIMT (Near In My Term) Syndrome since politicians
often tend to push policies into action to complete projects
To establish MOMAF in 1996, incorporating National Fisheries
within their terms for their political stakes.
Administration, Maritime and Port Administration, National
Maritime Police Agency and some scattered ocean-related func-
Conclusion
tions in 13 ministries, and serving as an operating arm of
Distinguished Participants!
decision-making among governments and other stakeholders;
In this panel, we can expect these eminent speakers to explain
To entail transparency and accountability of ocean governance;
how their countries have addressed these issues in their own
On the ground of SWOT (Strength, Weakness, Opportunity and
context.
Threat) analysis, to set national priorities and goals, for estab-
I would like you to draw your particular attentions on how the
lishing long-term chart of Ocean Korea 21 (OK21) in 2000:
countries in this panel have set and formulated VISIONS,
1) Knowledge-based industry;
OCEAN GOVERNANCE and ACTION PLANS pertinent to their
2) International competitiveness;
marine domains.
3) Environment-friendly policies;
6
Toward the 2002 World Summit on Sustainable Development, Johannesburg
ADDRESS TO THE GLOBAL CONFERENCE ON
OCEANS AND COASTS
Honorable Congressman James C. Greenwood
United States
United States House of Representatives, President, GLOBE International
of America
Thank you Dr. Cicin-Sain for your kind introduction. I am hon-
In 1995, the Global Programme of Action for the Protection of
ored to address this distinguished gathering. It is a rare
the Marine Environment from Land-based Activities was adopt-
opportunity for a national legislator, to communicate with those
ed, which I will refer to as the GPA. This instrument emphasizes
who spend a great deal of their time involved in international
that the degradation of marine and coastal areas must be prima-
dialogue on the environment. As Dr. Cicin-Sain mentioned, I am
rily addressed at the national and regional level.
a member of the US House of Representatives. I am completing
I believe that national legislators are essential to the GPA's suc-
my ninth year of service in Congress representing a district just
cess because of their prerogative to legislate on land use.
outside of Philadelphia, Pennsylvania.
National legislators must take up the charge and lead the way in
During my career first as a state legislator and then as a Member
protecting our ocean environments from land-based activities
of Congress, I have come to understand the importance of rep-
through the development and implementation of national and
resenting the global as well as local concerns of my constituents.
regional programs that directly address the impacts of pollution
They are interested in the health of the global environment,
and land use.
because they know that their well being is tied to the health of
In the U.S. we certainly need to continue to make improvements
people around the world. Dr. Biliana Cicin-Sain and Dr. Patricio
to help protect coastal areas. We have the Clean Water Act that
Bernal offered me the honor of addressing this gathering because
has enabled us to dramatically clean our nation's rivers and our
in July, I was elected by my colleagues to serve as president of
coastal zones over the last 28 years.
Global Legislators Organization for a Balanced Environment, (or
GLOBE). As president of GLOBE International, I represent
Worldwide, like the U.S., people are concentrated along or near
national legislators dedicated to working on global environmen-
coasts. Forty percent of the world's population lives within 100
tal issues at the international level.
kilometers of a coastline, an area that accounts for only about 20
percent of the landmass.
I know that some of you are well aware of GLOBE's work. GLOBE
was founded about 12 years ago by legislators in Europe, Japan,
Much of the remaining non-coastal population is concentrated
and the United States who shared the conviction that coopera-
along rivers and other waterways. Pollution and poor land use
tion of national legislators at the international level was essential
practices within these watersheds affect downstream marine
to meet world-wide environmental challenges.
habitats because sediments and pollutants are ultimately washed
into coastal waters.
Since that time GLOBE has become a network of over 800 legis-
lators and members of parliament from almost 100 countries.
As recently noted in UNEP's publication, "Protecting the Oceans
GLOBE has affiliate offices in Brussels, Cape Town, Moscow,
from Land-Based Sources", the human illnesses associated with
Tokyo, and Washington DC.
LBS generates an economic loss of over 13 billion dollars per
year. The toll taken on the health of the world's population
During my term as President of GLOBE International, my col-
poses an ever-expanding challenge that we as national legislators
leagues and I have made the issue of land-based activities or
must face in partnership with our national governments, civil
land-based sources of pollution, which I will refer to as LBS, a pri-
society and international institutions.
ority. It is my hope that through the work that is done at this
conference and other efforts, the World Summit on Sustainable
A number of national, regional and global mechanisms have
Development will be an event where LBS begins to receive the
been developed that seek to address the contaminants and
attention that it deserves.
impacts of LBS. These include the recently signed treaty on
Persistent Organic Pollutants.
Coastal and marine environments, as well as upland watersheds,
are mirrors of the activities carried out on land. From upstream
In my discussions with legislators around the world, I have come
industrial and agricultural production to daily domestic acts,
to understand that the differences between the U.S.
impacts are generated that affect the health of these ecosystems
Government's constitutional structure and most other parlia-
and ultimately, of the very populations that depend on them for
mentary systems have created concerns about our ratification of
sustenance. GLOBE members are working around the world to
treaties and our government's commitment to and willingness
reduce these impacts.
to address critical international environmental issues such LBS.
Because the world's oceans cover over 71% of our planet's sur-
In the United States, the principle of separation of powers
face, our marine ecosystems impact the wellbeing of every man,
between the executive and legislative functions means that the
woman and child on the planet.
signing of a treaty by the President does not necessarily mean
that the treaty will be ratified by Congress.
7
Ministerial Perspectives on Oceans and Coasts at Rio+10
In parliamentary systems, the Prime Minister is an extension of
In the declaration we welcomed the efforts of the UNEP GPA
the parliament and the head of his or her party. By contrast, in
Coordination Office and declared our continued support of the
the United States, the prerogatives of the legislature and execu-
Memorandum of Understanding that was reaffirmed between
tive are carefully separated. Although it is the job of the
GLOBE and UNEP in November 2000.
President to negotiate the best treaty he can, the Senate must act
The GLOBE declaration urged our governments to commit to
independently in its ratification process. Additionally, Members
the full implementation of the GPA by mainstreaming the GPA
of the Senate will not necessarilyagree with the President simply
into national programs and strategies that include the integra-
because they share his party affiliation.
tion of watershed and coastal ecosystem management at all
The Biodiversity Convention and the International Law of the
levels.
Sea Convention are examples of agreements that have been
In particular, GLOBE members will seek to continue to support
negotiated by the executive, but not accepted by the Senate. In
efforts to strengthen municipal wastewater legislation, address
the U.S. context, legislators play a pivotal role. My colleagues
land-use planning legislation to prevent the destruction of
and I within Congress will continue to work to ensure that
coastal habitats, and to work with our partners in exploring
important instruments such as the Law of the Sea Convention
additional domestic and international finance mechanisms to
are ratified.
protect marine and coastal environments.
Whatever the structure of government, it is beneficial to bring
GLOBE members will do all that we can to support participant
legislators into the process at an early stage. Legislators need to
governments in these efforts as peace, development and envi-
understand how the international environmental agenda is rel-
ronmental protection are interdependent and indivisible.
evant to them and to their constituencies. They must be
involved throughout the process of developing international
As GLOBE's activities move forward toward the World Summit
environmental laws and policies and not just at the end stage
on Sustainable Development there will be a number of addi-
when these laws and policies are brought back to national capi-
tional activities that we will undertake. We will host an
tols for ratification and codification.
International Legislators Conference on Land-Use, Watersheds
and Coastal Areas in Washington, DC in the spring of 2002.
Legislators need to be partners in the process to ensure that the
sentiment of the treaty expresses the interests of their con-
I have to return to Washington because our congressional ses-
stituents at home. I believe that too many environmental
sion has been extended to address the aftermath of the recent
agreements have not been properly implemented because legis-
tragic events in New York and Washington. As the program here
lators have not been fully informed about the issues and
moves forward, I encourage you to build LBS into each discus-
negotiators have acted without the benefit of their perspectives. sion as a critical and cross cutting theme.
The common denominator among legislatures worldwide is that
It is vital that legislative leaders are given the necessary tools of
we often hold the keys to ensuring successful implementation of
good science, information and guidance from experts like you to
international agreements, as well as ratification. As legislators
develop effective policies.
become more engaged in the policy and programmatic discus-
In closing, one of my personal interests is in expanding interna-
sions of international institutions, they bring critical political,
tional joint projects to explore, research and protect the world's
technical and financial resources with them.
oceans. And so I would like to close with a short quote by Dr.
National legislators must lead the way in protecting our ecosys-
Sylvia Earle, one of the world's premier deep-sea explorers. She
tems from LBS. GLOBE International is working on several fronts
wrote in her seminal book, Sea change: "If the sea is sick, we'll
to educate, motivate and activate members of parliaments
feel it. If it dies, we die. Our future and the state of the oceans are
worldwide on LBS.
one."
GLOBE International is working with UNEP, the GPA
Thank you for your attention and on behalf of the other mem-
Coordination Office and the United States National Oceanic and
bers of GLOBE around the world, I would like to once again
Atmospheric Administration (NOAA) under a Memorandum of
thank you for including me in these discussions so that I may
Understanding to create educational materials for legislators
share my perspective.
around the world. The materials make the case for the impor-
We look forward to working with you to secure a peaceful, safe
tance of the GPA and illustrate how national legislation can
and sustainable future for our environment and our children's
effectively eliminate LBS to coastal environments and national
environment.
watersheds.
Last week, GLOBE International presented a declaration of sup-
port to the First Inter-Governmental Review of the GPA in
Montreal, Canada.
8
Toward the 2002 World Summit on Sustainable Development, Johannesburg
AN AUSTRALIAN PERSPECTIVE ON PROGRESS
AND CHALLENGES
Australia
Veronica Sakell, Director, National Oceans Office
(for the Honourable Dr. David Kemp, Australian Minister for the Environment and Heritage)
Introduction
As part of our obligations to the United Nations Convention on
the Law of the Sea, Australia has developed and is implementing
Australia's new environment minister, the Honourable Doctor
its Oceans Policy.
David Kemp, sends his apologies for being unable to attend this
important meeting.
This policy clearly demonstrates the importance Australia places
on comprehensive and integrated management of ocean
As many of you may be aware, Australia has just recently held its
resources.
national elections and our new cabinet was sworn in only last
week.
Where we stand now
Minister Kemp is working through a long list of priorities to keep
Progress at national level
the momentum on many important international and national
environmental agendas Australia is currently working on.
Australia has worked hard to tackle the difficult task of imple-
menting the principles of ecologically sustainable development.
I would like to raise some of those agendas with you today.
Australia was one of the first countries to produce a national sus-
Why we are here now
tainable development strategy in 1992, following the Rio
Next year's World Summit on Sustainable Development provides
Summit. This strategy will continue to guide our approach to
an opportunity for all of us to renew our commitment to the
natural resource and environmental management. Since 1992
previously agreed goals of biodiversity conservation and ecolog-
we have developed a number of major policy and program
ically sustainable development of oceans resources, including on
responses to address key sustainable development issues, includ-
the high seas.
ing oceans and coasts management.
In order to achieve those goals Australia believes that we need to
Australia's national Oceans Policy, launched in 1998, the
recognise the threats to achieving them, determine priorities
International Year of the Ocean, was the first such coordinated
and take prompt, practical and far-sighted measures which will
national policy for the sustainable management and protection
progressively build on the progress we have made since Rio.
of the marine environment. The policy is backed by resources
and a dedicated office, the National Oceans Office, to drive its
This conference is an important forum for the exchange of views
implementation.
and ideas in the lead up to the World Summit.
Ecologically sustainable development is the principal driver of
While integrated management of the oceans, especially within
Australia's Oceans Policy. What is clear is that the use of resources
the jurisdiction of coastal nation states has progressed signifi-
must be ecologically sustainable if we are to conserve the biodi-
cantly since Rio, there are serious threats to achieving similar
versity and long term security of our marine environment and
objectives on the high seas.
the industries and communities that depend on marine
The challenge is to make the best use of existing resources to give
resources.
effect to policy objectives through improved coordination
To implement ecologically sustainable development under
mechanisms, that have both national and regional appeal, and
Australian Oceans Policy, regional marine plans are being devel-
to take practical measures to counter those threats. Australia is
oped to ensure decisions are integrated across all the relevant
working to progress this in various international forums.
sectors in a holistic manner.
Like many of you here today, Australia understands that the
Regional marine planning uses large marine ecosystems as one
oceans contain resources of enormous potential benefit to all
of the starting points for planning - extensive areas of ocean that
nations, including those which may not yet be benefiting from
share relatively uniform structures, eg fish species, ocean cur-
existing resource use. These resources must be managed careful-
rents and topography.
ly, for current and future generations, in order to ensure
economic benefit exists side by side with sensitive environmen-
The plans will be based on assessments of the ecosystems and
tal care.
resources within marine regions, including their current and
potential uses. The assessment streams cover the biophysical,
As a party to the United Nations Convention on the Law of the
social, indigenous, institutional and economic dimensions of
Sea, Australia has rights and responsibilities over some 16 mil-
the region.
lion square kilometres of ocean - one of the world's largest and
most diverse marine jurisdictions.
The planning process will assist in the identification of proposed
representative areas for protection. It will improve existing and
9
Ministerial Perspectives on Oceans and Coasts at Rio+10
initiate new ecosystem based management arrangements to
there is certainty about threats or problems, or that waits until
meet development and resource use needs, while conserving
they grow to serious proportions. Measures must taken in a time-
marine biodiversity.
ly, practical and efficient manner.
Oceans Policy is just one part of a much broader reform of envi-
To date, international oceans management has generally taken
ronmental policy and legislation in Australia. In July 2000 the
place on a sectoral or single issue basis. Significant progress on
Environment Protection and Biodiversity Conservation Act 1999
widening the responsiveness of sectoral management of oceans
came into force. This Act represents a significant reform in
resources has been made in recent years, including through the
Australia's environmental legislative arrangements and requires
International Maritime Organisation and the Food and
all Commonwealth agencies to report on how their internal
Agriculture Organisation.
operations and actions accord with the principles of ecological-
The Global Oceans Observation System and the Joint
ly sustainable development.
Committee on Oceans Monitoring are important and successful
For example, the Government wants to make further improve-
developments which demonstrate how strong, well-organised
ments in the sustainability of Australia's fisheries. Under the new
cooperation can greatly improve the effectiveness of scientific
legislation, strategic environmental impact assessments of man-
and other programs. However, more work is needed by the
agement arrangements for all nationally managed fisheries will
International Maritime Organization, the Food and Agriculture
be undertaken.
Organization and other organisations to further improve exist-
Australia now has a sound policy and legislative framework to
ing programs, including by improved co-ordination
make significant progress towards better integrated and sustain-
mechanisms.
able management of its marine resources. While it is important
At a national level, Australia has recognised that inadequately
to acknowledge the progress made internationally since Rio, we
coordinated sectoral approaches impede progress towards eco-
also need to point to areas where further progress is needed and
logically sustainable development.
can be achieved.
At an international level there are undoubtedly efficiencies to be
Progress at the international level
gained through greater cooperation and integration between
national programs and within the UN system.
Australia has also worked hard to improve the management of
ocean resources within its jurisdiction, and within those inter-
The need for better integration and improved cooperation with-
national organisations to which it is a member. Much useful
in the UN system has been reflected in the establishment of the
progress has been made since Rio by Australia and many other
United Nations Oceans Consultative Process.
nations.
Australia has welcomed the informal Oceans Consultative
However, it has become apparent, increasingly so in recent years,
Process as a major step towards more integrated responses to
that one nation or a small group of nations cannot be successful
global priorities in oceans management.
alone in combating the urgent and serious threats to marine bio-
The Oceans Consultative Process has already made useful con-
diversity, especially on the high seas. Some threats are simply too
tributions to the General Assembly annual debate on Oceans
complex, too urgent, or require resources beyond the capacity of
and Law of the Sea.
a few nations to combat successfully.
It has allowed States to devote time in its first two meetings to
Some examples of such threats include illegal, unreported and
specific and significant sectoral and cross sectoral issues such as
unregulated (or IUU) fishing - which is causing serious and
marine pollution, IUU fishing, marine science and piracy.
potentially irreversible damage to fish stocks, benthic habitats
However, while useful, this work should be seen as a start, not a
and already endangered seabird populations - and the increasing
conclusion to addressing those important and specific issues.
spread of introduced marine pests, which threaten major dam-
In 1999 at the 7th Session of the Commission on Sustainable
age to regional ecosystems and biodiversity. While the
Development, the Australian Minister for the Environment and
international community has begun to recognise the seriousness
Heritage highlighted the need to improve the conservation and
of these threats and begun to take action to combat them, more
sustainable use of the biological diversity of the high seas.
effective and more urgent responses are needed.
Australia continues to believe that there is a role for a range of
Achieving the goals of marine biodiversity conservation and
new, internationally agreed measures to improve the conservation
ecologically sustainable development on the high seas requires
of high seas biodiversity. It is important to note that we do not
many nations to all work cohesively, to identify work priorities
equate the need for such measures with the exclusion of fishing or
and to implement a strategic, practical program of measures. It
other resource use, nor with curtailing the rights and freedoms
will require the determined actions of many nations working
afforded under the UN Convention on the Law of the Sea.
both to implement existing measures, and to develop a range of
Rather we regard them as a critically important step in achieving
new scientific, legal and economic measures that collectively
ecologically sustainable development in high seas areas and
deliver practical benefit to all nations. It will also require a well
ensuring appropriate conservation and management of the bio-
coordinated and holistic approach; one that does not wait until diversity and other values of those areas, especially those of
global significance.
10
Toward the 2002 World Summit on Sustainable Development, Johannesburg
I would also like to expand briefly on the need for global action
· a lack of coordination between international programs and
to support regional efforts to conserve biodiversity and achieve
institutions and
ecologically sustainable development. Agreements such as the
· not adequately translating objectives into priorities and spe-
Convention on the Conservation of Antarctic Marine Living
cific actions.
Resources (CCAMLR) have made significant improvements in
achieving their conservation and other objectives.
It is vital to address all the issues in the report and Australia
believes that there are probably a wide range of other critical
In the case of CCAMLR, much has been achieved due to good
contributing factors that should also be addressed.
working relationships between the Members of CCAMLR and
other States supportive of the aims of that agreement and the
Where to next
innovative work of the Commission established under it to
Increased international integration and cooperation is one key
develop scientifically-based measures to ensure conservation
objective. The oceans debate recognises that many of the com-
and ecologically sustainable development of fisheries.
plex ocean issues, both existing and emerging, require improved
However, the experience of CCAMLR over the last four years or
commitments at the global, regional/sub regional and national
so also points to the need for urgent and substantial progress
levels.
outside the Convention, if the objectives of the Convention are
Australia would like to reaffirm the importance of oceans to the
to be realised.
sustainable development agenda, recognising an evolving
The effectiveness of the multi-lateral Commission and its man-
oceans agenda, and emerging issues that require an integrated
agement regime established under CCAMLR are being seriously
approach.
undermined by the actions of those States whose vessels and
Australia also believes that we should focus on revamping and
nationals are involved in or support IUU fishing or the trade of
strengthening the consultative processes and achieving practi-
fish caught in this manner from the CCAMLR Area.
cal, coordinated action. We should strengthen current
If the present level of IUU fishing continues for even another
frameworks rather than replace them, particularly where they
two or three years, those States presently fishing responsibly, in
are working well.
an ecologically sustainable manner, and those which might wish
Australia believes that the consultative process is an important
to do so in the future, will be forced to stop and irreversible dam-
opportunity for us to share knowledge and perspectives, and for
age will have been done to fish stocks and seabird populations,
the international community to firstly enrich and deepen the
including those of endangered albatrosses. Already, some fish
debate on Law of the Sea issues and secondly to identify and take
stocks have become commercially extinct.
practical actions that achieve the most benefits from existing
I note that there has been recent attention to new fisheries agree-
and limited resources. Consequently Australia welcomes wide
ments around the world to take account of regional interests.
and active participation in this process.
While I welcome these initiatives, the burgeoning of such agree-
I look forward to the discussions over the next few days. The
ments and the need for coordinated action between them may
Australian Government is keenly interested in the outcomes of
potentially result in many nations being unable to participate
the meeting and wishes the organisers and all participants a suc-
actively and effectively in all the agreements in which they are
cessful meeting.
interested.
In addition, such a situation may result in global threats to the
success of regional organisations not being effectively addressed
before serious damage to high seas fish stocks has occurred.
Australia considers that there is an urgent need to better inte-
grate regulatory conventions to enable global responses on
threats to high seas fish stocks and their environment.
What needs to happen internationally
The Joint Group of Experts on Scientific Aspects of Marine
Environmental Protection, in its `A Sea of Troubles' report pub-
lished in January this year highlighted some key failings in
arrangements that limit ecologically sustainable development of
oceans. These included:
· Inadequate governance arrangements at both national and
international levels, including a widespread failure to under-
stand the need to approach interlinked environmental
problems in an integrated way, rather than sector by sector
· not involving the range of relevant stakeholders in designing
and implementing environmental programs
11
Ministerial Perspectives on Oceans and Coasts at Rio+10
12
Toward the 2002 World Summit on Sustainable Development, Johannesburg
COASTAL AND MARINE INTEGRATED MANAGEMENT
IN BRAZIL
Honorable José Sarney Filho
Brazil
Minister of Environment, Brazil
Presented to the Conference by Ambassador José Israel Vargas, Permanent Delegate of Brazil at Unesco
It is a great pleasure for me to be with you on this panel to dis-
based origins, there are other real or potential impacts like activ-
cuss a very important theme for humanity coasts and oceans
ities linked to oil industry (oil exploration in the sea); maritime
issues. In spite of its relevance, this subject hasn't been fre-
transport; predatory fishery and depletion of the sea's natural
quently addressed on international agenda for environment
resources; threats to biodiversity and genetic heritage of the sea;
events.
and real estate speculation.
It is therefore our responsibility to change this situation as far as
The common feature of these situations are the variety of envi-
coastal and marine environment are concerned, and in this
ronmental problems, the fragility of ecosystems, the complexity
Conference we will have the opportunity to adopt concrete rec-
of management and the lack of human and financial resources,
ommendations and suggestions to be further examined in the
which calls for a joint action of the Federal Government, the
next Johannesburg Summit, in September 2002. On that occa-
States and the Municipalities. At the same time, the participation
sion the international community will join efforts in order to
of different social and economic sectors involved in integrated
preserve the integrity of an ecosystem that undoubtedly consti-
management and in regional policy reorganization is necessary.
tute an asset to mankind.
In order to face these difficulties, it is essential to have a decen-
In Brazil's case, the coastal zone constitute a vital one. As is well
tralized, transparent and collective management process,
known, our country has a huge coastal zone of 8.698 kilometers,
embracing the participation of public and private sectors and the
which includes a group of contiguous ecosystems in a land area
civil society, which will permit to meet the environment chal-
of roughly 388.000 square kilometers where there are more than
lenge. As Minister of Environment, these principles have
400 cities. It also includes a marine zone, which is the territorial
directed my action.
sea of 12 nautical miles. The coastal zone concentrates almost a
Principles, concepts and management tools
fifth of the country's population about 36,5 million people in
institutional framework
an average density of 90 hab/km2, which is five times the
national rate.
The present integrated management of coastal and marine zone
In addition to its territorial sea, Brazil has an exclusive econom-
of Brazil are based on principles, dispositions and concepts of
ic zone ranging from 12 to 200 nautical miles, as well as a
Agenda 21, chapter XVII concerning ocean protection.
continental shelf with nearly 4,2 million square kilometers of
Strategies, policies and national plans referring to this integrated
surface, which were established according to United Nations
management are implemented under the supervision of the
Convention on the Law of the Sea, art. 76.
Ministério do Meio Ambiente (MMA), the Brazilian Ministry of
These data indicate how the theme is important for us and
Environment, as part of two main mechanisms speeding up the
explain that the coastal zone, one of our most important ecosys-
coordination of different organizations specialized on coastal
tems, has been considered a national heritage by the
and marine environment.
Constitution of 1988 (art. 225, par.4). According to the
The first is the Comissão Interministerial para os Recursos do Mar
Constitution, the coastal zone exploration shall take environ-
(CIRM), a body linked to the naval forces created in 1974 to
ment preservation and sustainable development into account.
implement the national policy for the sea, Política Nacional para
os Recursos do Mar (PNRM). It is a inter-ministerial body.
Structural difficulties and quest of consensual
solutions adjustments and prevention
The second is the Conselho Nacional do Meio Ambiente (CONA-
MA), presided by me, the national council for environment
Signs of important environmental damage exist in Brazil's
which Executive Secretary is assured by MMA. The CONAMA
coastal zone and they ask for corrective actions, arbitration of
counts on delegates from Ministries, State governments and
conflicts deriving of multiple utilization of space and natural
Federal District, Municipalities, NGO's and of Industry, Trade
resources, and control of consequences of land-based explo-
and Agriculture unions. It works as a sound box for all themes
ration. Besides, these spaces include sparsely populated areas
involving environment in Brazil and can approve resolutions
with strategic ecosystems that have recently attracted people in
that must be applied everywhere in the country.
a pattern of occupation that sometimes causes problems that call
for preventive measures.
As part of this mechanism, and under Ministério do Meio Ambiente
coordination, the Plano Nacional de Gerenciamento Costeiro
Therefore, the management of our coastal zone presents a set of
(PNGC), our national plan for coastal management, has been
significant problems. Besides the pollution of waters with land-
designed. It was recently reviewed and led to the establishment
13
Ministerial Perspectives on Oceans and Coasts at Rio+10
of a technical assistance group of coastal management that is
In this context, we aim to set up long-term strategy for the plan-
formed by delegates of very dynamic Federal sectors, State bod-
ing and management of coastal zones, taking into consideration
ies and NGO's delegates. This special task force is called Grupo de
different social and economic interests in a transparent and inte-
Integração de Gerenciamento Costeiro (GERCO).
grated process of consultation, while protecting their ecological
Brazil has also settled the above mentioned Política Nacional para
integrity and biodiversity, all this with the support of modern
os Recursos do Mar (PNRM), approved by a Presidential Decree
information and scientific technology.
signed 12 May 1980 that intended to promote the integration of
The GERCO program has different work-lines. One is related to
the territorial sea, the exclusive economic zone and the conti-
the implementation of a special program, the Programa Global de
nental shelf to Brazilian territory in order to explore maritime
Ação para a Proteção do Ambiente Marinho frente às Atividades
resources in a sustainable and ecological approach.
Baseadas em Terra (PGA). In Brazil, the main marine pollution
This policy, that will be soon reviewed, is implemented with the
from land-based sources are the drainpipe degradation, long last-
support of annual or multi-annual plans. It also involves four
ing organic pollutants, radioactivity, heavy metals, oil, deposit
major segments: Plano Setorial para os Recursos do Mar (PSRM),
removing and garbage.
Plano Nacional de Gerenciamento Costeiro (PNGC), Plano de
The Ministry also created a specific regional program, designed
Levantamento da Plataforma Continental Brasileira (LEPLAC) and
to stimulate cooperation with neighboring countries, the
Programa Antártico Brasileiro (PROANTAR).
Programa Nacional de Ação para Proteção do Ambiente Marinho
These national management tools follow international institu-
frente às Atividades Baseadas em Terra na Porção Brasileira do
tional actions, which are better framed by wide international
Atlântico Sudoeste Superior (PNA), an initiative with Argentina
agreements, conventions, laws such as: United Nations
and Uruguay, linked to a larger program called PASO (Programa
Convention on the Law of the Sea (in force since 1994); Agenda
de Ação para o Atlântico Sudoeste Superior) and related to the
21; United Nations Convention on Biological Diversity;
United Nations Environment Program. Its goal is to prevent sea
Conduct Code for Responsible Fishery; The implementation
degradation caused by land activities in the region stretching
agreement of the Convention relating to the Conservation and
from Cabo de São Tomé, at Rio de Janeiro State, to Peninsula
Management of Straddling Fish Stocks and Highly Migratory
Valdés, in Argentina. In a regional perspective, it would be inter-
Fish Stocks (being ratified now); the International Convention
esting that this initiative could get more significant
for the Prevention of Pollution from Ships, its protocol, its
international support, not only in financial terms, but also in
amendments and its optional annexes III, IV and V (MARPOL
technical and technological terms.
73/78 in force since 1998); the International Convention of
The control of pollution caused by sea and harbor activities is a
Marine Pollution by Dumping of Waste and Other Matter
crucial issue in Brazil. In order to deal with this problem, sever-
(London Convention); the International Convention of Oil
al important plans were created such as: Plano Nacional de
Pollution Preparedness, Response and Cooperation; the
Contingência para Derrame de Óleo no Mar, Planos de Área and
International Convention on Civil Liability for Oil Production;
Planos de Emergência Individuais, and in addition to those, the
and the International Convention on Liability and
Proposta de Regulamentação do Uso de Dispersantes Químicos para
Compensation for Damage in Connection of the Carriage of
Derrame de Óleo no Mar, already approved by CONAMA.
Hazardous and Noxious Substances by Sea.
The Ministry has yet established an Agenda Ambiental Portuária,
Expressive Programs and Projects
a creative initiative with the aim to take the environmental
dimension into account in the developing plans for harbor
With a view to implementing an integrated management policy
activities. The Agenda is being implemented in 8 different har-
in coastal and marine zones, Brazil has developed different pro-
bors, the most important in our country (Vila do Conde, PA;
grams and projects.
Itaqui, MA; Maceió, AL; Rio de Janeiro and Sepetiba, RJ; Santos,
The first one is the Programa Nacional de Gerenciamento Costeiro
SP; Paranaguá, PR; and Rio Grande, RS) as a result of a partner-
(GERCO). Due to its wide scope, it must be considered the most
ship between MMA and the national transport authority, the
important development plan in coastal zone in Brazil. Its goal is
Ministério dos Transportes. To reinforce this initiative we can also
to plan and to manage social, economic and environmental
count on Programa de Capacitação para a Gestão Ambiental
activities in the coastal zone, in an integrated, decentralized and
Portuária that includes evaluating activities on environmental
collective way, in order to ensure a sustainable use of natural
reality of the harbors. The main goal is to enforce environmen-
resources and ecosystems. This program also helps coastal States
tal standards when managing and modernizing 36 harbors.
and Municipalities environmental bodies. In fact, this program
In the field of maritime activities, the Ministry coordinates the
allows Federal Government to work close with coastal States,
Projeto Controle e Gerenciamento da Tranferência Indesejável de
since these last have the responsibility for land management in
Espécies Exóticas e/ou Organismos Patogênicos por Meio da Água de
their coastal areas. It also provides the development of environ-
Lastro de Navios, taking as example the Sepetiba bay, RJ, part of
mental management tools for soil use through the setting up of
the Global Program for Water Control from United Nations
channels of participation as well as the integration of govern-
International Maritime Organization (IMO).
ment sectors and society in decision-making processes.
14
Toward the 2002 World Summit on Sustainable Development, Johannesburg
Actions to protect maritime coasts are also being implemented
system has a component linked to maritime and coastal
by the Projeto Orla (Projeto de Gestão Integrada da Orla Marítima),
Conservation Unit. In this particular point we can note the
which is the result of a partnership between MMA and the
recent inscription of the Fernando de Noronha National Park,
Brazilian Ministry of Planning, Management and Budget
together with Atol das Rocas Reserve, as the first Brazilian marine
(Ministério do Planejamento, Orçamento e Gestão), with the partic-
site in the World Heritage List of Unesco.
ipation of Instituto Brasileiro do Meio Ambiente (IBAMA), linked to
In the field of fishery, we have the Programa Recursos Pesqueiros
MMA, Marinha do Brasil and other Federal, state, and municipal
Sustentáveis, which is an initiative from MMA and includes
bodies, and society as well. The main goal is to promote an inte-
actions from directed to the control of Brazilian fishery in the sea
grated management of maritime coast with a view to conserving
or in rivers. Different Control Plans were outlined last years, one
its areas, to occupying them in an ordering way and with sus-
of them intended to Lobster fishery at North East coast, and
tainable use of natural resources.
another one to sardine and shrimp fishery at South and South
As part of the Programa Nacional do Meio Ambiente, and benefit-
East coast.
ing from World Bank resources, the Brazilian government has
To protect marine biodiversity, the Programa Nacional da
tried to give to its coastal States some instruments to improve
Diversidade Biológica (PRONABIO), which main goals are : (i) to
their coastal management practices, including the outlining of a
define priority areas to the biodiversity conservation at marine
four-years strategic plan concerning living resources.
and coastal zones (ii) to define priority actions to conservation
The first one is a program developed specifically to our EEZ,
at these areas. (iii) to evaluate choices of marine and coastal
called Programa de Avaliação do Potencial Sustentável de Recusrsos
zone's natural resources use that keep with biodiversity conser-
Vivos na Zona Econômica Exclusiva (REVIZEE). Its main goal is to
vation. (iv) to evaluate ant to propose models of profit sharing
canvass sustainable potentialities for capturing living resources
coming from sustainable utilization of marine and coastal biodi-
in EEZ in order to attempt the following goals: to draw up an
versity.
inventory of living resources in ZEE ant its environment charac-
Besides these initiatives, we participate in others international
teristics, determine its bio mass, establish the potentialities of its
programs related to marine and coastal environment issues as :
sustainable seizure.
· Programa Global de Observação dos Oceanos (GOOS- Brasil), as
This initiative is the consequence of a number of commitments
part of International Oceanographic Commission (IOC), with
made by Brazil since the country has ratified the United Nations
the aim to collect, study and transmit data concerning ocean-
Convention on the Law of the Sea in 1998. The program is one
ic and coastal areas;
of the main targets of V Plano Setorial para os Recursos do Mar
(1999-2003). It has allowed the development of oceanographic
· Programa Train-Sea-Coast Brazil, linked to UN Train-Sea-Coast
operations, fishing prospecting campaign, population's move-
capacity network, with the aim to enhance qualified profes-
ment studies, stocks evaluations, and has increased knowledge
sionals, specially managers and decision makers working at
about national marine living resources, as much for understand-
oceanic and coastal regions. The main targets are public and
ing of traditional natural resources as for discovering new ones.
private administrators, as well as civil servants from States and
Municipalities that are directly or indirectly concerned by the
Besides these programs, we ought to mention other projects and
development of marine and coastal zones and that deal with
initiatives developed under the Ministry and IBAMA's responsi-
environment subjects. The Program's headquarters in Brazil is
bility, with the aim to protect the ecosystems in general, with
at Fundação Universidade Federal de Rio Grande, and it has
special attention regarding the marine species in danger.
been able to offer 13 coastal management courses since 1995.
· Projeto TAMAR, promoting researches conservation actions
More than 250 technicians were trained, coming from public
and collective management to protect marine tortoises;
Institutions, private sector (industry and services) and NGO's,
· Projeto de manejo e Conservação de Sirênios, with the aim to pro-
some of them from Uruguay or Argentina. This initiative
tect the marine "Peixe boi", one of the most threatened species
should be reinforced in order to reach a larger number of spe-
in the world;
cialists, not only from Brazil, but also from other Latin
American and African countries.
· Projeto de proteção à Baleia Jubarte e à Baleia Franca, also a recent
Brazilian proposition, in the frame of International
Inefficiency and difficulties related to coastal
Commission of Whales, for creating a Whales Sanctuary in
and marine integrated management in Brazil
South Atlantic;
In spite of these accomplishments, the complete realization of
· Plano de Ação para Mamíferos Aquáticos e Projetos de Conservação
integrated management in Brazil faces some difficulties and lim-
e Manejo de Aves Marinhas.
itations. First, one can mention the non-existence of up-to-date
Within this framework, we should draw attention to Programa de
data, due to a lack in the knowledge of environment dynamics
Consolidação do Sistema de Unidades de Conservação (SNUC)
and of coastal and marine spaces occupation and utilization.
implemented with the aim to plan and to manage protected nat-
This is due mostly to institutional weakness and politic difficul-
ural areas according to national goals related to them. This
ties to deal with conflicts and to apply strategic programs results.
We still have a considerable deficiency concerning the enforce-
15
Ministerial Perspectives on Oceans and Coasts at Rio+10
ment and understanding of the legislation, and the result is the
Nevertheless, the goals set-up then were not attained. The
proliferation of legal conflicts at different levels.
fatigue of developed countries on international cooperation is
Since Brazil has a very large coast, we have a lack of human
notorious, especially with regard to oceanic and coastal zones,
resources to manage properly these areas. Also there is a weak
where few initiatives have had support. Are we in a borderline
public awareness about marine and coastal problems.
case, where global partnership preached at Rio 92 completely
failed? Reverting this situation is perhaps the main challenge of
At the international level, we face difficulties related to the
Rio + 10.
access, transfer and utilization of technologies that are environ-
mental correct, and we notice a certain lack of interest from the
I strongly hope that this Conference will trace firm directions to
international community concerning the development of tech-
Johannesburg Conference. Maybe a Global Action Plan based on
nical, scientific and technological cooperation programs.
Agenda 21, Chapter XVII, can permit to reopen issues concern-
Unfortunately, we have scarce national and international finan-
ing oceans, seas and coastal zones in a worldwide agreement.
cial resources available. International resources tend to privilege
The commitment of all partners, from Government to private
green issues related to the conservation and the preservation of
sectors, international institutes and NGO's, should be a priority.
forests ecosystem's biodiversity instead of the so-called brown
Oceans and Seas have ever been essential to the progress of
and blue agenda, concerning coastal regions.
Humanity. They ease trade and relations among States, provide
I believe that my colleagues here, especially those from develop-
multiple resources to technologic and scientific development,
ing countries agree with me on that topic.
keep life in our planet, instigate leisure activities, provide for
transportation, and so on. We ought to and we have to take care
Global partnership and challenges of Rio + 10
of these ecosystems.
My experience as Minister of Environment showed me that
These are Brazilian ideas and contribution to Rio + 10. I insist
environment management asks for partnerships. Moreover, this
that international cooperation, in global or regional level, has an
is the main lesson of the Rio-92 Conference, which was enthusi-
essential role to play if we want to reach the target of rational use
astically supported by developing and developed countries.
and sustainable development of these areas and theirs resources.
16
Toward the 2002 World Summit on Sustainable Development, Johannesburg
ADDRESS TO OCEANS AND COASTS AT RIO+10:
A CANADIAN PERSPECTIVE
The Honourable Herb Dhaliwal, P.C., M.P.
Canada
Minister of Fisheries and Oceans, Department of Fisheries and Oceans, Government of Canada
Conference co-chairs. Chair Hong. Excellencies, delegates, ladies
The Oceans Act gives us that table.
and gentlemen, Madame et monsieur les copresidents de la confer-
Integrated management planning provides a mechanism to
ence. Monsieur le president Hong. Excellences, délégués, mesdames et
exchange information and opinions, address user conflicts, and
messieurs:
agree on a practical management plan that best suits each par-
As Canada's Minister of Fisheries and Oceans, it gives me great
ticular area. And, over the last two years, we've worked with 21
pleasure to offer Canada's perspective on progress achieved with
groups to develop integrated management pilot initiatives for
respect to the sustainable development of oceans and coasts
key areas on Canada's three coasts.
since the 1992 World Summit in Rio.
For instance, with the Mackenzie Delta and Beaufort Sea poised
The '92 Summit set the global course for a renewed approach on
to become major contributors to North America's energy supply,
many issues. But of particular interest to us today is Chapter 17
the need to establish an integrated management planning
of Agenda 21 - The Protection of our Seas. Quite simply, it put
process for that area has never been greater. We're working with
forward a united, long-term vision to ensure a strong and
the Inuuit of the Western Arctic, the Government of the
healthy oceans heritage for future generations.
Northwest Territories, and industry representatives to establish a
Keeping this vision alive and in the forefront of our respective
new integrated planning process for this area. This will ensure
government agendas is even more important today than it was
that we support the best use possible for this ocean space - bal-
then.Our oceans have become busy places. Traditional activities
ancing economic, cultural and environmental needs. Similarly,
like fishing and shipping have been joined by newer industries,
on the Eastern Scotian Shelf right in our Exclusive Economic
like tourism, aquaculture and oil and gas development. Strong,
Zone on the East Coast - we're working to develop a manage-
sustainable and flexible oceans management has never been so
ment plan for that area. This plan will allow for the continued
important.
development - and dynamic co-existence of the traditional fish-
ing industry with newer oceans industries, like the oil and gas
But as I'm sure other oceans nations can attest, vision by itself
industry and telecommunications. And we're working with a
isn't enough. Each nation needs to translate this vision into real-
wide range of stakeholders to establish Marine Protected Areas,
ity - to take action and bring about the changes required to truly
or MPAS. We currently have 13 pilot MPAs on all three of
achieve our collective goals.
Canada's coasts. They range from unusual offshore hydrother-
And in Canada, that's what we've done.
mal vents, to fragile estuarine environments, to local fishing
communities wanting to protect their lobster stocks. Our Marine
Oceans Act
Protected Areas program is giving us yet another tool to protect
In 1997, we became the first country in the world to adopt its
our most fragile and unique ocean environments.
own Oceans Act. The Act is Canada's blueprint for managing our
Our Oceans Act has also allowed us to build up a solid network
three oceans in an integrated and sustainable way. It sets out the
of oceans expertise. I established a Ministerial Advisory Council
principles we want to foster in our ocean activities. Principles
on Oceans, to give me expert advice on managing and protect-
like sustainable development, integrated management, and the
ing our oceans. And, I've appointed two oceans ambassadors to
precautionary and ecosystem approaches. And most important-
promote our oceans and their sustainable use. We've also estab-
ly, it puts these principles into practice.
lished the National Oceans Management Research Network,
With the many competing users of our oceans, finding a way to
which links university oceans researchers across Canada.
address everyone's needs has never been so important. No
And I formed an intergovernmental Oceans Task Group, repre-
oceans activity operates in isolation. Meeting our oceans goals
senting federal and provincial Ministers from across Canada, to
means bringing people together to talk about their interests, and
foster a stronger oceans dialogue among different levels of gov-
how their needs fit into the larger oceans "picture":
ernment.
· Levels of government.
We've made a lot of progress over the last two years, and we've
· Communities.
only just begun. After two solid years of oceans work, we're now
· Aboriginal groups.
ready to take the next step. We've developed Canada's Oceans
· Non-governmental organizations.
Strategy, a comprehensive action plan to build on the lessons
Each has knowledge and expertise to contribute. Each deserves a
we've learned through our oceans pilot projects, and to bring
say in how our oceans should be managed.
about even more important changes in how we manage and pro-
tect our oceans.
17
Ministerial Perspectives on Oceans and Coasts at Rio+10
International Leadership
And we recognized that it will take a long-term global commit-
ment to clean up our oceans and prevent land-based activities
Canada's progress at home mirrors our progress internationally.
from harming our marine environment. Indeed, building global
Indeed, we fully recognize that we're part of a larger oceans "sys-
consensus in these and other areas is essential as we prepare for
tem". Our national efforts must complement our international
the World Summit on Sustainable Development in Johannesburg
efforts. Because if oceans are a global asset, then they present a
next year. At the Summit, Canada will continue to advance our
global responsibility. And Canada takes its international oceans
belief in inclusive and cooperative oceans governance.
commitments very seriously.
From the experience we've gained in the field we're convinced
For instance, we're a strong supporter of the UN's informal
that the integrated management approach - coupled with the
process on oceans. We feel it's important to have a process like
ecosystem and precautions aches, collaborative decision-mak-
this in place to explore new and innovative means of managing
ing, and a strengthened stewardship ethic - are worth
and protecting our oceans in an informal environment, where
considering as other oceans nations explore ways to implement
"give and take" among nations is encouraged. We've also strong-
the Rio vision.
ly supported the Intergovernmental Oceanographic
Commission since its establishment here in Paris 40 years ago.
Another initiative I strongly support is a regular state-of-the-
Over the years, the IOC has become a key part of UNESCO, and
oceans report. We need a baseline against which to measure our
its new priorities are fully supported by Canada.
progress in managing our oceans. Canada's oceans strategy will
provide for such reporting. I encourage other countries to con-
We're also committed to conserving and managing straddling
sider the benefits of oceans report. I can assure you that Canada
and highly migratory fish stocks on the high seas.
will pursue and promote these and other oceans management
I'm particularly proud of the leadership we've shown in ratifying
principles and ideas with vigour and determination at the
and promoting the United Nations Fish Stocks Agreement, or
Summit in Johannesburg.
UNFA - a high priority for me, as Minister, since I accepted this
And if this meeting is any indication of our collective commit-
job two years ago. In fact, Canada was proud to host the first
ment, I'm confident that we'll emerge from the Summit with an
Intergovernmental Review Meeting of the GPA in Montreal just
even stronger conviction to protect and develop our oceans over
last week. Countries from around the world came together to
the long-term.
talk about how we can control the effects of terrestrial pollution
on our fragile marine environment. I had the pleasure of co-
Conclusion
hosting the conference, and chairing a two-day ministerial panel
Ladies and gentlemen. Mesdames et messieurs. Canada saw Rio
on how to build on our progress so far. And we have much to
as an opportunity. An opportunity to find ways to better man-
celebrate on this front. UNFA will enter into force this month,
age our oceans. And an opportunity to find ways to leave our
allowing us to fully implement UNFA at the domestic, regional
oceans stronger than we found them.
and global levels.
We took this challenge to heart. Our Oceans Act gave us the tools
And we're a very strong supporter of the Global Program of
we needed to understand, protect and enhance our oceans and
Action, or GPA. In fact, we were the first country to implement
their resources over the long-term. And it's given a wide range of
our own National Program of Action for the protection of our
Canadians the opportunity to get involved in the decision-mak-
marine environment from land-based activities. Our NPA is giv-
ing processes for our oceans, and play a positive and meaningful
ing us a strong and effective mechanism for co-operation on
role in Canada's oceans heritage.
many levels leading to a number of positive initiatives for our
oceans. The Meeting's outcome - the Montreal Declaration - con-
We still have much to learn - and much work ahead of us.
tained a number of key commitments. We endorsed a new
But meetings like this give me hope that as a global community,
action plan to give every coastal nation a practical guide on how
we can find ways to demonstrate our commitment to our
to prevent sewage and poorly treated wastewater from entering
oceans, share ideas on how we can translate this commitment
the marine environment. We committed to strengthening
into reality, and ultimately give future generations the strong
regional seas programmes to play a key role in the implementa-
and sustainable oceans heritage they deserve.
tion of the GPA. We also recognized the need to co-operatively
On behalf of the Government of Canada, I thank you for this
identify new financing mechanisms, to help countries around
opportunity.
the world meet their goals under the GPA.
18
Toward the 2002 World Summit on Sustainable Development, Johannesburg
MARINE AND COASTAL RESOURCES IN MOZAMBIQUE:
A CHALLENGE FOR A POLICY TOWARDS SUSTAINABLE
DEVELOPMENT
Mozambique
Honorable Francisco Mabjaia
Deputy Minister for Co-ordination of Environmental Affairs, Ministry of Co-ordination of
Environmental Affairs, Mozambique
GENERAL BACKGROUND INFORMATION
sandy soils and a savannah vegetation. Three hydrogeological
provinces can be identified as:
Geographical Framework and climate
i. A series of dune belt developed along the whole coast south-
Mozambique is situated on the eastern coast of Southern Africa,
ern of Save river on which the porous eolian sands form a
between 10°27' S and 26°52' S latitudes and 30°12' E and 40°51'
regional phreatic aquifer with fresh groundwater. The per-
E longitudes. The total land area is 784090 km2. The country is
meability decreases from the coast inlandwards, as a
divided into 10 provinces. About 70% of the country is covered
consequence of an increase in clay content.
by savannah and secondary forests. Approximately 45% of the
territory have potential for agriculture. About 60% of the land is
ii. The alluvial valleys developed along the main rivers may
classified as domesticated land, that include crop and permanent
contain productive stratified good quality aquifer.
pasture lands.
iii. In the volcanic terrains, primary and secondary fractures are
The maritime area is about 666 km2. The total area of the
the most important waterbearing features in the rocks.
Exclusive Economic Zone is about 562 km2.The shelf area is
The climate in the region north of the Zambezi river is under the
about 104 km2 and extends up to 200 m depth. The
influence of the equatorial low pressure zone with a NE mon-
Mozambican coastline is about 2700 km in length and is char-
soon in the warm season. The climate south of Zambezi river is
acterised by wide diversity of habitats including sandy beaches,
influenced by subtropical anti-cyclonic zone. North Sofala along
sand dunes, coral reefs, estuarine systems, bays, mangroves and
the Zambezi river lay a transitional zone with high rainfall fig-
seagrass beds.
ures (Saetre and Paula e Silva, 1979).
The coastal zone from Ponta do Ouro in the south to latitude
The winds in the northern part of Mozambique are influenced
16°S immediately north of Angoche is composed by unconsoli-
by the monsoon system with NE winds during the southern
dated Quaternary to recent sediments, mostly sand dunes and
summer and SW winds during the southern winter. Central and
sandy plains, but interspersed with heavier textured soils (alluvi-
Southern Mozambique are dominated by the SE trade winds.
ums) at the lager river mouths. At latitude 16°S and at Macambo,
The average annual precipitation is about 1200 mm. The rainfall
Nacala and Memba bay areas, Tertiary basalt occurs. From
is mainly restricted to the warm season November to April.
Angoche northwards heavily faulted Cretaceous to Tertiary sedi-
According to the classification of Kbppen, the northern (Cabo
ments line the coast. The sedimentary deposits occupy two
Delgado, Niassa, Nampula and Zambezia) and coastal region
distinct basins separated by the large area of crystalline rocks of
have a tropical rain savannah climate. Whereas the upland areas
Mozambique Belt (Precambrian). The southern basin correspon-
of the interior have a humid temperature climate. Ocean cur-
ding largely to the present wide Mozambique plain, from
rents, particularly the Mozambique warm current, may
Maputo river as far as north of the Zambezi river and the
influence the rainfall.
Rovuma Basin now occupying a narrow coastal belt of Nampula
Province and successively becoming larger towards the north
Mozambique posses over 100 rivers, and the major ones are:
from Lurio river to Rovuma, in the Cabo Delgado Province. The
Rovuma, Lario and Zambezi in the north, Pungu6, Buzi,
North-Mozambique basin constitutes a mesa-Cenozoic sedimen-
Gorongosa and Save in the centre and Limpopo, Incomati and
tary succession with an age ranging between Lower Cretaceous
Maputo in the south. These rivers drains about 208 km2 of water
and Mio-Pliocene (Kairu and Nyandwi, 1997).
rich in nutrients into the coastal waters. About 80% of this water
enters the ocean from Sofala Bank, central Mozambique.
The morphology of the coastal area is characterised by low lands,
Zambezi river, the largest river in eastern Africa, alone, con-
rising inland to the altitude of 200 m above the sea level or
tribute with 67% of the total river discharge in the whole
more. The coastline is characterised by a strip of beaches, recent
country (Seatre and Jorge da Silva, 1982).
dunes and inland lagoons in the south; by mangroves, swampy
depressions and series of low beach ridges in the centre and
The country is regularly affected by tropical cyclones, floods and
mangroves, small dunes alternating with cliffs in the north. The
draughts. In February/March 2000 the country was severely
alluvial valleys have fertile clay soils and a steppe-like vegetation.
affected by the strongest floods ever observed in the past fifty
The predominant extensive plains and inland dunes have poor
years. These floods had caused severe damages to the coastal
habitats and infrastructures.
19
Ministerial Perspectives on Oceans and Coasts at Rio+10
Demography
improving the marketing of agriculture products, adjusting the
The current population of Mozambique is estimated at more
internal and external imbalances, improving resource distribu-
than 16.5 million. It is expected to grow at an annual rate of
tion, expanding the responsibility of the private sector in the
2.5%, and in the year 2025 it is estimated to be about 35 mil-
economy activities. These economic reforms have rendered pos-
lions. About 40%-45% of the population is composed by the
itive results, GDP has grew from about 6%-per annum in
youth and children (<15 years old). The working or active popu-
1995/1996 to about 12% in 1997/1998, while inflation fell from
lation (between age 15 and 65) constitute about 50% of the total
about 50% to 4% in the same period. Consumption per capita
population; thus, about half of the population is dependent.
gradually increased from 0.8% to 1% in 1988 and remained sta-
Urban population is quite representative and shows a consider-
ble at about 2% in 1989 and 1990. Forest and wood land
able increase with years. In 1950 urban population represented
increased by 7.7 % between 1986 and 1989; in the same period
only 5.4% of the total population, and it increased to about 33%
the production of cereals increased by 5%, the livestock, pig pro-
in 1995.
duction observed increased of about 27%, marine catch
increased by 28%, the export increased by 16%.
The fertility rate is likely to drop in the future, as the family plan-
ning programs become more effective and extended to the rural
In spite of these economic achievements the foreign debt is still
areas, the status of women in the society improves and the
high compared with the Gross Domestic Product and its foreign
poverty diminishes. Further, it is more likely that the mortality
earning. For instance, the balance of payment in 1995 and 1996
rate would decrease and the life expectancy would increase in
was -256.l x 106 and -90.2 x 106 US$, respectively. Mozambique's
the future as the medical care becomes more accessible to most
economy and social status remains fragile. The first national
of the people and status of living of the population improves.
assessment of poverty in Mozambique, carried out in December
The most causes of death in Mozambique are infectious and par-
1998, showed that 70% of Mozambicans are poor. The average
asitic diseases, as in other developing countries. This analysis
Mozambican lives on only USD 220 per annum (World Bank,
does not take into consideration the effect of FUV/AIDS, that
1999). However, recent government policies are contributing to
currently the estimates indicated that about 16% of the
improve this situation. The recent debt relief confirms the sus-
Mozambican population is infected.
tainability of these policies.
About 2/3 of the Mozambican population live in the coastal
Coastal Resources Utilisation and Development
zone., for security reasons. During the war coastal zones were rel-
Fisheries and aquaculture
atively safer (UNCED, 1992). Other reasons that attract people to
the coastal zone are related to the easy access to food and
The fisheries resources are mostly located in two major shelf the
employment facilities. Most of the infrastructures such as large
Sofala Bank, in the center and Delagoa Bight in the south, and
cities, tourism, industry, commerce, harbours are located in the
in the bays. The major resources include: Shallow water shrimp
coastal zone. The average population density in the coastal area
in Sofala Bank, deep water crustacean on the slope, scad and
is about 120 people per km2 , against overall population density
mackerel in Sofala Bank and Delagoa Bight, the demersal fish in
of 2 people per km2.
the southern and northern regions. In the coast region there are
large artisanal fisheries which include mollusks and form the
Economy
basis of subsistence of several local populations.
Mozambique is among the group of the least developed coun-
The fisheries sector employs between 50,000 to 60,000 people,
tries in the world. The country debt was around 1 billion of US$
and its contribution to the economy is substantial, it represents
in the beginning of 1990's, in 1996 was about 5 billion of US$.
about 40% of the total export earning, The estimated potential
Several causes both of political and natural natures have con-
of the fish in Mozambique is about 310,000 tons. Recorded
tributed for the current critical economic situation in
amount of marine fish at the landings were about 32,000 tons in
Mozambique. As a result of these factors, during the decade 80's,
1980, about 80,000 tons in 1980, and about 120,000 tons in
the Gross Domestic Product fell dramatically, the trade account
1992. The artisanal and semi-industrial contribute with more
deficit worsened, and public expenditures rose alarmingly.
than 50% of the total fish production. The most valuable fishery
However, Mozambique's geographical position and resource
resource is the shallow water shrimp and its bycatch, deep water
potentials offered ample space for the country's rapid social and
shrimp and scad and mackerel. These resources represented
economic development. It is located in the sea side and so it
about 54% of the total export in 1993. The shallow water shrimp
offers harbour and transportation facilities to the neighbouring
resource alone contributed about US$20 million in 1979-80.
countries. It has a variety of natural resources including large fer-
The current production of shallow water shrimp is about 7000
tile land, several forest and wildlife resources, minerals, water
tons per year. Unfortunately, in spite of the restriction in the
resources and large potential for hydroelectric power produc-
fishing effort, this resource shows signs of overexploitation in
tion, marine and coastal resources.
Sofala Bank, where most of this resource is located. The catch
In order to reverse the negative economic development the
yield is decreasing. Environmental factors such as the artificial
Mozambican Government initiated in 1987 a Structural
Zambezi flow regime brought by the Cahora Bassa dam activity
Adjustment Program aimed at reducing state control over the
may contribute for the reduction in the availability of the
economy, promoting the family sector in agriculture and
shrimp in Sofala Bank (Hoguane, 1997).
20
Toward the 2002 World Summit on Sustainable Development, Johannesburg
Other resources that are overexploited are those located in the
In spite of the recognition of the potential of the mineral
Bays of Maputo and Inhambane. The government policy is to
resources in Mozambique, the mineral industry still does not
encourage the fishing of other resources apart from traditional
play a major role in the country's economy. its contribution is
fishing area. The scad and mackerel production stopped in 1990
only 2% of the GDP. Reasons for the week development of the
due to the fall of the major fishing company owned by jointly
mineral industry are associated with, among others, the aban-
by Mozambique and former Soviet Union governments. This
donment of the property by the owners during the
means that the resource is underexploited and therefore avail-
independence and the destruction during the civil war.
able for new fishing licensing.
Recreational parks and tourism
The central Mozambique offers excellent conditions for prawn
Tourism offers an important future economic potential for the
culture. Maputo is another area where it is possible to develop the
country. Historically, Mozambique had a thriving tourism indus-
shrimp culture. The activity is being promoted for the invest-
try, mainly in the centre and south of the country, with
ment.
Rhodesia and South Africa providing the potential markets. Now
The fresh water resources are mostly located in Lake Niassa and
the opportunity exists to tap both these historical markets and
in the Cahora Bassa reservoir. The annual recorded catches are
the tourism markets of the north. Soon after the war stopped
about 30,000 tons although the estimated potential is about
development plans were put forward. Mozambique has excellent
90,000 tons.
potentials for both the coastal and wildlife based tourism.
Ports and harbours
Coastal tourism is well developed in the southern part of the
There are three large ports in Mozambique: Maputo, Beira and
country, south of Save River. This regions is characterised by
Nacala, and several small ports: Inhambane, Quelimane, Pebane,
beautiful sand beaches and extensive corals. This type of tourism
Angoche , Pemba. Mozambique harbours provide services not
expanded rapidly after the end of the civil war in 1992. Many
only for national customers but also, and mostly, for the neigh-
areas in the southern Mozambique are now experiencing tourist
bouring countries. Perhaps most of the foreign services provided
pressure due, in part, to uncontrolled tourism activity. Some of
by Mozambique is through its harbours.
the tourism activities include beach sailing, and game fishing.
Several game fishing competitions take place a year in Bazaruto,
Mozambique harbours handle annually several tons of cargo to
Inhambane, Maputo and Ponta do Ouro.
and from: Swaziland, South Africa, Zimbabwe, Zambia and
Malawi. Some of the cargo to and from Congo is also handled in
Wildlife based tourism offers good prospects for economy. There
Mozambique ports.
are two forms of land based tourism: (i) Photo-safaris and (ii)
hunting safaris. Photo-safaris were very of little significance in
Both the road and railways networks are built to facilitate region-
the past two decades. Safari companies, associated with the civil
al trade rather than the national economic integration of the
war, were unable to attract these kind of clients. Hunting safaris
country. The transport sector used to be an important foreign
contributed considerably for the country's economy. Between
exchange earner from the transit facilities offered to the neigh-
1965 and 1970 about 1310 tourists hunted in Mozambique. The
bouring countries. This sector accounted for 12.7% of the GDP
resulting revenue was about US$87,000 per year for the govern-
in 1975. It dropped to 8.8% of the GDP in 1989 and picked up
ment (licences and administrative fees) and US$642,000 per year
again in the 90's. For instance in the period 1995-1997, the har-
for the safari companies.
bours and railways sectors earned about 16.5 US$ million in the
services provided to sugar handling. Current Government poli-
Institutional framework
cy is to give priority revitalisation and rehabilitation of the
There are several institutions dealing entirely or partially with
infrastructures (harbours, roads, railways) that were destroyed
one or more issues regarding marine affairs. These institutions
during the war.
structure from national level to regional level. The province is
Offshore minerals
the lowest authority level for most of the institutions. There is
no single institution responsible for all the marine affairs. Co-
The predominant minerals in Mozambique may be grouped in
ordination between institutions has been always an issue of
three categories as follows: (1) energetic (coal, natural gas and
concern within the government and the public concern. There
petroleum), (ii) metallic minerals (gold, iron, copper) and (iii)
were created a number of inter-institutional committees that
non-metallic minerals (marble and precious stones).
include besides the government representatives, non-govern-
The delta of the Zambezi River accumulates large amounts of
mental organisations and private sectors, to address issues that
heavy-minerals deposits such as ilmentite, rutile and zircon; sim-
transcend the mandate of a single institution.
ilar situation exists around the estuaries and deltas of other
The Ministry of Co-ordination of Environmental Affairs, created
major Mozambican rivers, such as Limpopo, Save, Ligonha,
in 1995 under the Presidential decree 6/95 of 16 of November, is
Lurio and Rovuma. Accumulations of heavy-mineral can also be
the responsible for the execution of the environmental policy,
found either on beaches or in sand dunes. The most promising
co-ordinate, evaluate and control initiatives for correct planning
deposits are those located between Quelimane and Quinga that
and utilisation of the natural resources in the country. Thus, the
are being currently exploited.
ministry prepares and enforces legislation for sustainable devel-
opment and rational exploitation of the resources.
21
Ministerial Perspectives on Oceans and Coasts at Rio+10
Major issues of concern and problems
marine and coastal resources. Deterioration of the water quality
and pollution have further, implications on human health.
The major issues associated with marine and coastal environ-
Indeed, most of the causes of death in Mozambique are infec-
ment in Mozambique may be summarised into six major
tious and parasitic diseases, all associated with poor hygiene and
categories: (i) fresh water shortage, (ii) pollution of water, (iii)
water quality. Further, the destruction of the coastal environ-
destruction of coastal environment (depletion of mangroves,
ment reduces income from the fisheries and tourism. Reduction
corals, seagrass beds, vegetation over sand dunes), (iv) loss in
in fish resources has implications in the economy, employment
biodiversity, (v) overexploitation of fishery resources of high
facilities and reduces capacity for the local community to meet
commercial value or high social impact, (vi) use of inadequate
basic needs (subsistence). It should be pointed out that shrimp
harvesting practices.
fishery is one of the major sources of income for the country.
The causes of these issues may be grouped into two categories: (i)
environmental and (ii) anthropogenic. Fresh water shortage is
Transboundary consequences
associated to both climatological factors (drought) and to
Major transboundary consequences of the identified issues are
human activity (effect of the dams, deviating water for irriga-
based in the fact that most of the resources in question are
tion). Pollution is mostly due to human activity through use of
shared with neighbouring countries, and hence, for their sus-
agricultural-chemicals, urban sewage and industrial wastes.
tainable exploitation require an integrated management
There is some source of bacteriological pollution due mainly to
approach. Freshwater shortage is associated in part to the restric-
the discharge of highly fertile water. The destruction of the
tion for use in the highland countries. Considerable pollution
coastal ecosystems is due to both environmental and human
affecting the Mozambican waters is due to intensive agriculture
activity. Storms cause the destruction of the coastal protection
activity in upper river (e.g. Limpopo, Incomati, Umbeluzi, Save
(erosion) and of the corals and seagrass beds. Destructive human
and Zambezi). Most of the fleets fishing shallow water shrimp in
activity in the coastal zone include overexploitation and misuse
Sofala Bank are owned by foreigners or are joint venture with
of the resources (vegetation, corals and seagrasses), including
nationals. Most of the fish products are for exportation (mainly
over-grazing and wrong tourism practices. Over-exploitation of
to European market). In addition, demersal fisheries caught in
the resources are primarily driven by food needs and high
game fishing are shared with South Africa, and most of the game
income demand. Mozambique is one of the poorest countries in
fishermen are from that country. Hence, reduction in availabili-
the world, and most of the people live in absolute poverty. In
ty of these resources is of a considerable transboundary nature.
order to lift the country out of the critical economic situation it
Constraints to action
impels (unwillingly) for more pressure into the resources.
Major constraint to action is related on one side to the lack of
Major impacts of the issues
understanding of the ecosystem structure and function, and to
Environmental consequences brought by these issues are
institutional and legal framework limitations on the other side.
diverse, and often have feed back implications. Freshwater short-
Lack of qualified personnel is the key factor behind our limited
age contribute for rapid deterioration of water quality, as in such
knowledge. Very often we do not know how most of the ecosys-
a case there is high probability for recycling the water, and fur-
tems function, how each intervening factor contributes to the
ther, the flushing time of the water is longer. The reduction in
system, and how the different factors are inter-related each
the water volume and the drop in the water quality have further
other. Institutional capacity goes from the lack of infrastructures
implication in the downstream ecology. Water pollution also
for research and monitoring to the lack of co-ordination among
contributes for low water quality and affects severely the living
different institutions dealing with marine issues. Lack of co-ordi-
resources (both fauna and flora). The destruction of the coastal
nation often leads to duplication of actions with unnecessary
ecosystems affects primarily the productivity and the biodiversi-
expenditure of resources. Sustainable exploitation of resources
ty, and then, causes the reduction in the resources availability. In
requires thorough research and permanent monitoring, which is
particular, the depletion of the vegetation cover over the coastal
too expensive for a developing country. In addition to these lim-
sand dunes stimulates coastal erosion, which in turn contribute
itations, in some cases the legislation may not provide for
to the death of corals and seagrass by siltation. Overexploitation
sustainable development, particularly where there is a free access
of the fishery resources results in reduction of the stocks and loss
to the resources, or absence of regulation.
of biodiversity. In addition, the studies on the vulnerability of
Progress made to-date
the Mozambican coastal zone to the global climate changes,
have revealed that the coast is highly vulnerable to flooding in
Progress achieved to date has been entirely inspired by the
the event of sea level rise. This is because most of the coastal
Government commitment to the implementation of Agenda 21
zone is a low laying area.
and other international environmental ageements, specifically
Socio-economic consequences related to marine and coastal
with regard to aspects related to the protection of the oceans and
issues are immense considering that a significant percentage of
seas including coastal zones. The government of Mozambique
the population, about 40%, live in the coastal zone and their liv-
has been particularly engaged in the protection and promotion
ing depends on the resources available in these regions, and
of rational use of coastal and marine resources, and in the pro-
further, the economy of the country depends largely in the
motion of sustainable development in the coastal zones.
22
Toward the 2002 World Summit on Sustainable Development, Johannesburg
Achievements described below are in conformity with program-
an integrated management strategy for natural resources. In fact
matic areas defined by Agenda 21. Mozambique has
the co-ordination role that this institution plays stresses the
concentrated on building institutional capacity for environmen-
importance of the principle of a collective, participatory and har-
tal management and in the consolidation of the existing ones.
monised management process rather than a sectoral, isolated
One of the Major achievements since Rio 1992 was the estab-
and not coordinated one.
lishment of the Ministry for Coordination of Environmental
In June 1994, the Government approved the National
Affairs in 1994 with the mandate to co-ordinate and ensure sus-
Environmental Management Programme (NEMP), which is the
tainable development of the country, the establishment of the
master plan for the environment in Mozambique. It contains a
Council for Sustainable Development (CONDES) and the pro-
national environment policy, environment umbrella legislation,
motion of the Pan-African Conference on Sustainable Integrated
and an environmental strategy. The Ministry for the Co-ordina-
Coastal Management (PACSICOM).
tion of Environment Affairs (MICOA) has taken the lead for
Along the same period several other coastal and marine man-
environmental management in Mozambique. Within MICOA's
agement institutions were created as need raised. With support
framework, a coastal zone management unit (CZMU) was creat-
of UNESCO, UNESCO Chairs of Marine Sciences and
ed in 1995, whose main responsibility was to co-ordinate
Oceanography and of Man and Environment, were both estab-
activities in the coastal zone. The Unit was responsible for the
lished at the Eduardo Mondlane University. The universities and
institutionalisation of a coastal zone management structure
research institutes have been active in the capacity building in
within MICOA and underwent several activities pertaining to
specific areas of coastal and marine sciences. In parallel, several
public awareness, inter-institutional co-ordination, develop-
environmental NGOs were established including some interna-
ment coastal planning, community-based demonstration
tional NGOs such as WWF-Mozambique, which plays significant
projects, information dissemination, coastal ecosystem research,
role in marine conservation and protection. LJNESCO/IOC have
and monitoring and training.
been active in capacity building in the area of marine sciences in
This unit developed into a full Department that now deals
Africa. Under IOC leadership, programs such as ODINEA that
directly with coastal zone management in its aspects of inter-
evolved into ODAFRICA and GOSSAfrica were initiated.
institutional interaction and ecosystem management. MICOA
Furthermore, an effort has been put towards recognition, estab-
has also developed a Center for the Sustainable Development of
lishment and documentation of management plans for the two
Coastal Zones in Xai-Xai. The Center aims at providing technical
(Inhaca and Bazaruto) already existing Marine Protected Areas
and management advice to the Government and other institu-
(MPAs). One of the recent products of that endeavour is the
tions, dealing with more specific aspects of planning, training,
extension of the limits of the Bazaruto National Park, an MPA
awareness, education, monitoring, research and data-bank.
aimed mainly at the protection of the Dugongo (Dugong
The Government facilitated the creation of an ad-hoc inter-insti-
dugong), an endangered species whose viable population in the
tutional technical committee for coastal zone management, in
Eastern African Region is found in that area.
1996. The committee, which is lead by MICOA, is responsible for
The adoption and ratification of several international and
discussing and reviewing the co-ordination of activities among
regional conventions and protocols has been assumed by the
stakeholders. The Committee has a secretariat hosted by MICOA
Government of Mozambique as a means of pursuing goals and
and the members are nominated at the highest level at the
objectives of the Rio Summit. Of particular importance are the
Ministry or by invitation trough MICOA in the case of NGOs or
CBD, UNFCCC, CCD. The law of the sea, the regional seas pro-
intergovernmental bodies.
gramme and the Nairobi Convection and related protocols. We
As for the institutional arrangements for the coastal zone, it is
are preparing the ratification of RAMSAR Convection.
proposed that the current inter-institutional committee become
Mozambique as a SADAC country has co-operated towards the
a technical subcommittee of the already created National Council
implementation of SADAC Protocol on Fisheries whose main
for Sustainable Development (CONDES), in the light of the newly
goal is to promote sustainable development of the fisheries sector
approved Environmental Law. CONDES is composed by key
in the whole region. Presently, Mozambique is laying the grounds
Ministries in coastal zone activities, represented at the level of
for the introduction of a Monitoring Control and Surveillance
Ministers, and representatives of civil society and academia.
system for fisheries legislation enforcement. This system will
Policy development
gradually be implemented in territorial waters and along the
In 1998 a macro-diagnosis of the Mozambique coastal zone was
jurisdictional waters, allowing for rapid information flow and
produced, which outlines the major environmental issues for
effective low enforcement along our EEZ. Still within the SADAC
coastal zone management as well as the approach for inter-sec-
a protocol on shared watercourses was signed and countries are
toral cooperation in the area. Mozambique started the
trying to implement an integrated river basin management.
preparation of a "National Coastal Zone Management Policy"
Further, a protocol on environment is under-preparation.
and a "National Coastal Zone Management Program". These doc-
Institutional framework
uments, once approved will constitute the overall policy
The creation of the Ministry for the Co-ordination of
framework for coastal zone management in Mozambique. The
Environmental Affairs, was a major step taken in the direction of
CZM policy includes the establishment of the Center for
23
Ministerial Perspectives on Oceans and Coasts at Rio+10
Sustainable Development of Coastal Zones with the mandate for
of this Plan include promotion of agriculture, rural development,
training, education, raising awareness at all levels of society, a
education and health, and government decentralization.
systematic approach to coastal planning and development, and
The establishment of marine protected areas also represents a
the use of ecosystem approach in dealing with the fragile coastal
bright opportunity in this combat against poverty. Local com-
ecosystems, among other priorities.
munities look at this as an opportunity for a better management
The Environmental Law was developed and then approved by
of their resources, so improving their living standards. It is also
the Parliament in 1996 - Lei do Ambiente - and constitutes the
an opportunity for sharing the incomes from other activities
first attempt to introduce a new concept of the environment and
(e.g. tourism). At the same time, the Government's role in mak-
a new vision and strategy for its management, both for the insti-
ing sure that the processes are in line with its policy towards
tution's activities and for the public in general. According to this
better conditions and a better environment for all is also ful-
umbrella Law, MICOA has the responsibility, on behalf of the
filled. Mozambique has recently approved the extension of the
Government, of taking measures to control, monitor and super-
boundaries of Bazaruto National Park. The total area of this MPA
vise the implementation of natural resources management, land
- one of The Two in Mozambique, being Inhaca Reserve the sec-
use and best practices towards a cleaner environment. Civil soci-
ond - has increased from about 500 km2 to about 1400 km2,
ety is also called to contribute in this strategy, having an
which makes it probably the first or second largest MPA in the
important role on natural resources uses and good governance
Eastern African Region.
control. The concept of "polluters pay" was introduced in this
The Government had approved some acts and ratified some
legislation. The environmental impact assessment (EIA) process
international conventions related to marine affairs. The Fisheries
is also regulated since 1998.
Act, 1996, establishes the criteria for sustainable exploitation of
Other important legislation approved by the Parliament is the
fish resources and defines regions and seasons for close fishing
Law 10/99, which lays the "Principles and Basic Guidelines for the
activity.
Protection, Conservation and Sustainable Use of Forestry and
In addition to these more broadly base acts there are a number
Wildlife Resources." The regulation establishes, among others,
of specific regulations of the aspects of the environment includ-
species of fauna and flora to be protected, protection areas and
ing the Farming and Hunting of Wildlife, 1970, Regulation of
role of stakeholders on natural resources uses and protection.
Foreign Fishing Boats, 1978, Diplomas establishing reserves in all
While producing national environmental legislation, the coun-
parts of the country, and the act to control shrimp fishing, the
try has adopted and ratified, since 1996, important international
use of processed wood and ivory and general hunting of wild
and regional environmental conventions. Ratification included
animals.
the Conventions on Biological Diversity; the Framework
Under the category of health related acts, the most significant
Convention on Climate Change, the Basal and Bamako
are acts dealing with the control, handling and processing of
Conventions on trans-boundary transport of Toxic Waste,
food, and the Pesticides Regulation, 1987.
Montreal Protocol on the Ozone Layer, and the Convention on
Protection and Management of Marine and Coastal
The designation of protected zone areas in the Land Act Cultural
Environments in the Eastern African Region (Nairobi
Properties Protection Act, 1988, The reserve under the Forest Act
Convention). The Global Programme of Action for the
and the National Parks. The establishment of marine protected
Protection of the Marine Environment from Land-Based
areas also represents a bright opportunity in this combat against
Activities (GPA) was also adopted. The Nairobi Convention rep-
poverty. Local communities look at this as an opportunity for a
resents a particularly important Convention for Mozambique
better management of their resources, so improving their living
and countries in the WIO area. Two of its protocols - the proto-
standards. It is also an opportunity for sharing the incomes from
col on protected areas and species and the protocol on oil spills
other activities (e.g. tourism). At the same time, the
- will bring a very important framework for co-operation in the
Government's role in making sure that the processes are in line
region. Mozambique is hosting the Third COP of this
with its policy towards better conditions and a better environ-
Convention in December 2001.
ment for all is also fulfilled.
As already stated, Mozambique has a population markedly
The Acts that have fixed penalties include the Shrimp Fishing
poor: 70% of its people live below the line of extreme poverty.
Regulation, The Regulation of Foreign Fishing Boats, Regulation
This situation is particularly serious in most coastal areas, since
of Hunting, Regulation of Precious Wood, Cultural Properties
these are densely populated and the soils are in general very
Act, The Use of Pesticides Act, and all which regulates the use of
poor for agriculture. Further, extreme events such as drought
resources mentioned above.
and floods observed in the last decade have further deteriorated
Since 1987, legislation proposals have included mandatory
the situation of most families. Further, coastal zones are sites
preparation of environmental assessment studies. These studies
with great potential for tourism, transport and fisheries that
have involved as a method for determining the most ecological-
attracts further more people.
ly-sound methods for pursuing a development activity. Two
As a general policy, the Government has launched its Action Plan
legislation schemes have required the preparation of these stud-
for the Reduction of Absolute Poverty (PARPA). The main pillars
ies, the Processing of National Investments, 1987 and the
Mining Act.
24
Toward the 2002 World Summit on Sustainable Development, Johannesburg
The coastal zone can and must benefit from the existing inter-
co-operation vis-a-vis Africa's marine environment. During that
national legal instruments in the field of the environment, some
meeting the African states represented at ministerial level, com-
of which were already ratified by the country. The introduction
mitted themselves to join effort for sustainable development of
in the internal legal system of the provisions of the environ-
coastal and marine resources. From the recommendations set it
mental conventions and the development of the activities listed
is emphasised the following, thought with particular relevance
in them, will certainly bring benefits to coastal zone protection.
to academic and research institutions:
Decentralization and participatory process
· The need for development of sound technical understanding,
based on the integration of scientific, social and economic
The government is making effort toward decentralization as a
variables, the monitoring of social, economic and natural;
materialization of democratic process. And good governance.
Local Government at provincial and district levels are becoming
· Conditions and the forecasting of changes. Thus a holistic and
more engaged in policy development and enforcement. The
multidisciplinary approach in both formal and informal edu-
issue of ICZM is becoming more familiar to most of the stake-
cation;
holders at the local level. In fact, most of the policy developed
· The need for building human and technical capacities in nat-
so far had its foothold in the local government institutions and
ural and social sciences relevant to the needs of the region;
local community, where local habits and traditions were taken
· The need for expanding curricula to include coastal and
into consideration.
marine environmental issues at all levels of education;
The government encourages and promotes the participation of
· The need to strengthen the collection and dissemination of
the civil society, organized in the most diverse ways possible
scientific information as a basis for effective management of
such as associations, NGO's or traditional groupings, in the var-
coastal areas;
ious development initiatives and in the implementation of the
government policy. In this context partnership between public
The PACSICOM was upgraded into an African Process that had
and private sectors and the civil society is now a reality and is
three main stages as follows:
proving to be instrumental in the implementation of sustainable
(i) The Maputo Conference, held in July 1998, whose main
development policies.
objective was to identify and raise awareness of the major
Regional dimension
issues of concern and the need for integrating effort towards
mitigation/prevention of these problems.
At the regional level, Mozambique supported the establishment
in Maputo of SEACAM, the Secretariat for Eastern African Coastal
(ii) The second, held in Cape Town in December 1998, whose
Area Management, in 1997. The initiative was a follow up to deci-
main objective was to review the conventions (Nairobi and
sions taken by the region during the Seychelles meeting on
Abidjan) signed by the African States, assess the successes
integrated coastal area management in the Eastern African
and failures in their implementation; and
region. The Secretariat has been active in areas such as informa-
(iii) The third phase, that will be held in Johannesburg in the
tion dissemination, training and guidelines development.
Year 2002, during the World Summit on Sustainable
In 1998, Mozambican concept of coastal zone management was
Development (Rio +10), whose main objective is to meet
presented to a broad forum of African countries in the Pan-
with the partners and discuss the ways towards an effective
African Conference on Sustainable Integrated Coastal
implementation of initiatives for promotion of sustainable
Management (PACSICOM), which was held in Maputo. The con-
development and conservation of nature. During the Cape
cept was widely accepted and the foundations for regional
Town meeting, the African States are expected to present
programs for the co-ordination of coastal management were laid.
concrete proposals for addressing the issues of their major
concerns to the partners.
Mozambique, recognising the importance of coastal zones and
their resources in the overall development of the country, con-
Future perspectives
scious of the threats imposed both by man and the natural
The government of Mozambique will consolidate the founda-
processes in the availability of the resources, aware of the chal-
tions laid to the achievements of goals defined in the Agenda 21
lenges for sustainable use of these resources due, in part, to the
through strengthening its institutional capacity to meet the nec-
conflicting interventions in the coastal zones and also, due to
essary requirements for the full implementation of Rio Summit
lack of understanding of the ecosystem structure and function-
decisions. This would be done in the context of the absolute
ing, and recognising further the transboundary nature of the
poverty reduction plan of action, which constitutes the main
issue, invited the fellow coastal country member states of Africa
objective of the government.
for discussion and adoption of an integrated strategy for sus-
In this regard the resources use and the overall social and eco-
tainable management of the coastal zone and the resources on it
nomic development should be done on a sustainable basis. This
- The PACSICOM process.
implies that the development strategies should be harmonised
The First meeting of PACSICOM, held in Maputo in July 1998,
with ecologically sound management. Of particular interest are
represented an appropriate window of opportunity for intergov-
the marine and coastal zones where the government prioritises
ernmental dialogue, as well as regional and international
a number of activities related to integrated management of the
25
Ministerial Perspectives on Oceans and Coasts at Rio+10
natural resources. The main issues for this programme are: (i)
Hoguane, A. M. 1997. Hydrodynamics, Temperature and salin-
Fisheries, (ii) coastal and marine ecosystems management, (iii)
ity in mangrove swamps in Mozambique. A PhD thesis.
coastal and marine protection, (iv) marine parks and (v) tourism.
University of North Wales, Bangor, UK. pp 193.
Major challenges
Hoguane, A. M. 1997. Shrimp abundance and river runoff in
sofala Bank - the role of Zambezi. Presnted at the workshop
The agenda 21 was not fully implemented due mainly to:
on sustainable development of the Cahora Bassa dam and
· Limited financial resources, which continues to be the main
the valley of Zambeze.
barrier to the implementation of the Rio 1992 agreement;
INE, 1998, Mozambique in Figures, booklet, Maputo,
· Limited capacity in developing world;
Mozambique, 58 pp.
· High level of poverty in developing countries;
INE, 1999, Conjuntura Económica, no. 3, Maio, Maputo,
· Unsustainable government policies
Mozambique, 14 pp.
· Low public participation in decision making
Kauru, K. and Nyandwi, N. 1997. Guidelines for assessment,
monitoring and management of physical shoreline changes
The expectation to Rio+10
for West Indian Ocean region. IOC/OSNLR project on
Considering the challenges outlined above, the main expecta-
coastal erosion. (in press)
tion in Rio+10 can be summarised as follows:
Massinga, A. and Hatton, J., 1996, Status of the Coastal Zone
· Increased co-operation (south-south and north-south);
of Mozambique. In: Integrated Coastal Zone Management
in Mozambique, ed. by C.G.Lundin & 0. Linden,
· Identification of additional funding for capacity building
Proceedings of the Workshop, Inhaca Island and Maputo,
activities in developing countries;
May, 148 pp.
· Promotion of synergies between environmental conventions
MICOA. 1996. Programa nacional de gestão ambiental.
related to coastal zone management and marine resources;
Ministério para coordenação da acção ambiental. pp 99.
· Integration of coastal zone management strategies in poverty
MICOA/IUCN, 1998, Macrodiagnostico da Zona Costeira de
reduction policies.
Mogambique (Macro-diagnosis of the Coastal Zone in
Suggested reading
Mozambique), 1. Documento Principal (Main Document),
IUCN/NORAD, July, Maputo, 109 pp.
Chonguiga, E. 1997. Integrated coastal zone in Mozambique.
in The Jomey from Arusha to Seychelles - Successes and fail-
MICOA/ADM, 1999, Estrategia de Desenvolvimento do da
ures of integrated coastal zone management in East Africa
Zona Costeira do Distrito de Manjacaze, Chidenguele,
and island states. 0. Linden & C. G. Lundin ed p. I19-131.
Novembro, 32 pp+Annexes.
DAP. 1996. Fish catch statistics.
MICOA, 1999, Project Document: coastal zone management
project, DANIDA component support, Maputo, II 7 pp.
David, C., Motta, H. and Achimo, M. 1996. Vulnerability of
coastal resources to climate changes in Mozambique: A call
MICOA, 2000, Assessment of Research Capacity of Institutions
for integrated coastal zone management. (in press)
and Gaps Analysis of Information Required in Coastal Zone
Management in Mozambique, draft Report (unp.rep)
DINATUR, 2000, Balanço do Desempenho do Sector do
Turismo entre 1995 e 1999, Ministry of Tourism, draft
MICOA/UGC/EMCO, 2000, Training Needs Assessment: Final
report, May, Maputo, 11 pp.
Report, ICZM in Mozambique, DANIDA supported Project,
May, Maputo, 25 pp + Annexes.
FAO, 1999, Land-Based Sources and Activities affecting the
Marine, Coastal and Associated Freshwater Environment in
Motta, H., 2000. Integrated Coastal Area Management in
Comores, Kenya, Mozambique, Seychelles and United
Mozambique: from Seychelles to Maputo, 1996-2000. Paper
Republic of Tanzania, EAF/5, Ed. D. Waruinge and D. Ouya,
to be presented to the III Ministerial Meeting. 26 pp.
Nairobi, Kenya, 42 pp.
Saetre, R. and Jorge da Silva, A. 1982. Water masses and circu-
Gove, D. 1991. Marine Sciences in Mozambique. Proceedings
lation of the Mozambique cahnnel. Revista de Investigação
of a workshop on tropical coastal lagoon ecosystems.
Pesqueira, Maputo. No. 3, pp 83.
Inhaca Island, Mozambique, December 3-5, 1991. pp 67-68.
Saetre, R. and Paula e Silva, R. 1979. The Marine fish resources
Gove, D., 1995, The Coastal Zone of Mozambique, In:
of Mozambique. Reports on surveys with the R/V Dr. fridjof
Proceedings of the Workshop and Policy Conference on
Nansen. pp 179.
Integrated Coastal Zone Management in Eastern Africa
Rodrigues, M.J., Motta, H., Pereira, M., Gongalves, M.,
including the Island States. Ed. O.Linden. Report from the
Carvalho, M., Schleyer, M. 1999, Reef Monitoring in
Swedish Agency for Research Cooperation with Developing
Mozambique. I: The Monitoring Programme and 1999
Countries - Marine Science Program, pp: 251-273.
Report, December, Maputo (in prep).
26
Toward the 2002 World Summit on Sustainable Development, Johannesburg
Skagen, D. W., Palha de Sousa, L. and Pacule, H. 1997. The
industrial shallow water fishery at sofala Bank 1996-97.
Instituto de Investigag2io Pesqueira, Maputo. Internal
report.
Sociedade terminal de acucar - statistics of the amount of
sugar handled at the terminal of sugar in Maputo harbour
in the period 1995-1997.
UNCED. 1991. Mozambique country report for UNCED'92.
World Resources - a guide to the global environment - the
urban environment 1996-97. A joint publication by the
World Resources Institute, LNEP, UNDP, the World Bank.
New York, Oxford University Press. 1996.
World Bank, 1999, Consultations in Preparation of the
Country Assistance Strategy for the World
Bank Group for Mozambique, November 1999 to March 2000,
draft report, October, 5 pp.
World Bank, 2000, A Preliminary Assessment of Damage from
the Flood and Cyclone Emergency of February-March 2000,
A Document of the World Bank, March, Maputo, 28 pp.
27
Ministerial Perspectives on Oceans and Coasts at Rio+10
28
Toward the 2002 World Summit on Sustainable Development, Johannesburg
THE CHALLENGES OF PUBLIC POLICY FOR
SUSTAINABLE OCEANS AND COASTAL DEVELOPMENT:
NEW DIRECTIONS IN INDONESIA
Republic of
Minister Dr. Rokhmin Dahuri
Indonesia
Minister of Marine Affairs and Fisheries, Republic of Indonesia
OPENING REMARKS
and practices through which we can achieve the political transi-
tions, legal evolution and cultural transformation required for
Before beginning my remarks I would like to thank UNESCO for
sustainable development of our oceans and coasts. We must rec-
its sponsorship of this conference, as well as the other Ministers
ognize that establishing a comprehensive framework is a
present for their support. In addition, I would like to give a spe-
dynamic and never-ending task, a cyclical process of issue iden-
cial thanks to the Conference Co-Chairs, Dr. Patricio Bernal and
tification, program development and formalization,
Dr. Biliana Cicin-Sain for their excellent work in putting this
implementation, evaluation, and modification. It is this dynam-
Ocean and Coasts Rio+10 Conference together. I would also like
ic process that constitutes the business of making public policy
to thank the organizing committee for inviting me to speak
for sustainable ocean and coastal development. And, as politi-
before this distinguished group of international and marine
cians and experts, scientists and managers, it is our duty to fully
diplomats, experts, scientists and leaders, and to the Coastal
participate in this public policy process to achieve our goal.
Resources Center at the University of Rhode Island for helping
to make my attendance and participation possible. It is a rare
My choice of the word process is intentional. It is process that dis-
privilege and an honor to stand among you here.
tinguishes the making of good public policy and recognizes the
dynamic nature of effective governance. But beyond our broad
In the 1992 Rio Conference, we recognized that up to that time
agreement that this process is dynamic and ongoing, what do we
approaches to ocean and coastal management on all scales had
mean when we talk about ocean and coastal public
not always been successful in achieving sustainable develop-
policy? Most importantly, we are talking about government com-
ment. As part of this recognition, we accepted the Rio
mitment and government action. There is no public policy on
Declaration commitment to work in a number of specific areas
coastal and marine resources without government commitment
using approaches that are 'integrated in content and are precau-
followed by government action, or at least not positive public
tionary and anticipatory in ambit'. Toward these ends, coastal
policy. As we all know, public policy set through lack of govern-
States further committed to focus on such mechanisms as man-
ment action can be just as powerful, but in a negative way.
agement and coordination, data collection, science and
information, financing, technology and human resources devel-
In a broad sense, the work before us in this Conference is about
opment and capacity building.
monitoring and evaluating our progress in terms of moving
along the continuum of positive public policy making for ocean
In many ways, it is difficult to say exactly what this has meant
and coastal resources. As scientists and managers we understand
over the last ten years in terms of implementation. Public poli-
the need to monitor and evaluate our progress based on the best
cy, especially regarding ocean and coastal resource use and
marine and coastal science available, and to adjust our course as
conservation, is a difficult and sometimes hazy process that
needed. But our monitoring and evaluation is not only about
includes powerful vested interests and complicated issues of
using the best marine science available. Monitoring and evalu-
access and use-rights. Complicating this is a modern technolog-
ating our progress in terms of the continuum of public policy
ical and commercial capacity that is speeding the depletion of
requires that we evaluate how well we have done in meeting the
our resources by meeting the increasing global population's
needs of civil society as well as the natural environment. As a
desire for consumption of ocean and coastal products. Demands
result, we are dealing in the realms of human emotions, needs,
for these resources inland and far away in other countries are
feelings, culture and other social and political factors that, while
now being met, resulting in far more pressure on coastal and
often less quantifiable, arc no less real and important to our
marine resources than could have been imagined years ago. This
progress toward sustainable development.
greatly extended ability to service demand for consumption of
ocean and coastal resources, combined with other impacts such
While the Rio Declaration on Environment and Development
as global warming and pollution, indeed present a formidable
identified twenty-seven broad principles to guide national and
challenge for our governments. However, since our entire future
international actions, nowhere did it provide practical guidance
is intimately tied to achieving sustainable development of ocean
to individual nations confronting the socioeconomic, cultural,
and coastal resources, we accepted the sustainable development
political and scientific complexities that we all are confronting.
challenge at Rio and find ourselves here to review our progress.
Nor could we expect the Rio Declaration to provide these.
Addressing the complexity of practical implementation is the
I am sure that much will be presented in this conference that
job of each of us gathered here, based on the conditions and cul-
indicates progress of which we should be proud. I am equally
ture we find in our own nations. In Indonesia, these
sure that much will be presented revealing that we have still not
complexities are daunting indeed, perhaps more than most
achieved our goal of finding the right combination of policies
29
Ministerial Perspectives on Oceans and Coasts at Rio+10
other nations as a result of our tremendous biophysical and
lized for little other than small-scale subsistence fishing and
human diversity.
some recreational use by the more privileged.
The Indonesian Context
Foreign fishing fleets, many of them fishing illegally, were har-
vesting our offshore stocks because we had not developed the
Geographically, our country extends over three time zones and
capacity or priority to harvest pelagic fish stocks. Due to the size
more than 6,000 km from our eastern borders in the Philippine
of our Exclusive Economic Zone (EEZ), the number of ports and
Sea to the western borders in the Indian Ocean. We have an
the kilometers of coastlines, enforcement of international agree-
82,000 km coastline, the second longest in the world. Our seas
ments was problematic. Unsustainable local fishing practices
contain what is considered by some to be the greatest marine
such as using cyanide and dynamite on the reefs had existed for
biodiversity in the world within a single nation. This blessing is
more than a generation and were considered "indigenousî prac-
balanced by nature, as we are also host to almost every natural
tices. The depletion of coastal fish was becoming evident, even
hazard known, including explosive volcanoes, intense earth-
to subsistence fishers, yet most coastal villagers did not realize
quakes, floods, and tsunamis, all of which directly impact our
the scale or sources of threats to their resources.
coastal populations and ocean resources. Our people reflect this
tremendous natural diversity. Indonesia is the fourth most pop-
Activities such as the gleaning of the reefs for fish and inverte-
ulous country in the world with over 200 million people and
brates to supply the international market of marine ornamentals
literally hundreds of distinct languages and cultures.
were likewise becoming unsustainable. Depletion and degrada-
tion were coupled with new concerns such as overpopulation of
Despite growing levels of trained professionals, high technology
Crown-of-Thorn Starfish and local bleaching events on the reefs.
and college-education, the vast majority of our people have fair-
Conversion of coastal habitats for aquaculture was followed by
ly low skill levels. There are very few mid-sized enterprises: most
loss of critical habitat, flooding and coastal erosion in the villages.
industry is large-scale factories or small family operations.
Non-coastal residents and foreigners were enjoying the greatest
Marine transportation and shipping has shifted from labor-
benefits from ocean and coastal exploitation in our country.
intensive to technology intensive activities. Commercial fishing,
which shifts the distribution of wealth from large numbers to a
Since then, the Asian monetary crisis, our own internal political
few, has become high-tech and large-scale as well, and is operat-
evolution toward democracy, and the international events of the
ed mostly by foreign interests. Sixty percent or 130 million of
past few months, coupled with a weakening of the global econo-
our lower-skilled people and eighty percent of our industry are
my are adding additional economic and political pressures that
located along the coasts.
have the potential to further complicate ocean and coastal man-
agement in Indonesia. But our response has been strong and I can
Indonesia is an example of a 'large coastal nation" in the same
add Indonesia's report to this conference as one of those showing
category as Australia, the United States and Canada. We have
significant progress. And, our internal response to these com-
large-scale geographic issues such as a broad range of climates,
plexities are in fact also examples of how we have responded to
ecosystems, community structures and diverse sociocultural
our commitment to the twenty-seven broad principles outlined
groups. Distance and remoteness are significant factors for com-
in the Rio Declaration on Environment and Development.
munication and governance. Indonesia can also be seen,
paradoxically, as a "small island nation' in the same category as
Indonesia Changes in Governance and
the Philippines and Micronesia with small-scale issues. About
Institutions Since Rio
17,000 islands in our archipelago are identified as small islands.
Following Indonesia's signing of the Rio Declaration in 1992,
Less than 9,000 islands have names, and less than 6,000 are
our government began an important process of elevating ocean
inhabited. Traditional communities who continue to embrace
and marine resources on the political agenda. As a result,
different customary marine tenure rights occupy many islands.
Indonesia separated marine sector management from other
Two ethnic groups, Bajo and Buton, are classified as sea nomads
institutional and economic sectors for management purposes in
who still move from one island to another and practice open-
1994 through its Sixth Long Term Development Plan. Following
access property. Increasing coastal populations have led to
this, and in order to address the growing need to integrate ocean
significant conflicts among our ocean and coastal resource users.
and coastal issues previously handled by more than ten different
Given all this, our policy context is very complex and many of
Ministries, Indonesia established my new Ministry of Marine
our policies and programs must address extremely varied sets of
Affairs and Fisheries in 1999. My Ministry contains five
characteristics and needs. Herein lies Indonesia's great challenge-
Directorate Generals including Coastal and Small Island Affairs,
-enormous diversity spread over a vast area.
Research and Technology, Enforcement and Surveillance,
Indonesia at Rio
Capture Fisheries, Culture Fisheries, and Institutional and
Capacity Development. In addition, my Office of the Secretary
Entering the Conference at Rio, Indonesia's tropical forests and
General provides experts on law and governance issues that span
minerals were considered our principal resources and were the
and support all other Directorate Generals. This was a tremen-
focus for both exploitation and conservation activities. As we
dous event that has been equated with the creation of NOAA in
focussed on the depletion of our terrestrial resources, our marine
the United States.
resources quietly suffered. Except for ports, our coasts were uti-
30
Toward the 2002 World Summit on Sustainable Development, Johannesburg
Simultaneously, our government reform movement triggered a
One of my first steps to bridge the capacity gap and encourage
momentous push toward decentralization and participatory
local action was to initiate development of a national coastal
governance after almost fifty years of strong central government
management legislation, through which technical assistance and
control during which all mandates emanated from the closed
resources can flow to local communities and governments. This
central government in Jakarta. A new National Maritime
legislation encourages horizontal and vertical integration among
Council was formed consisting of politicians, private sector rep-
government agencies, provides guidelines for regional and com-
resentatives, NGOs and government officials. Law 22 in 1999
munity coastal management planning and implementation, and
provided the legal mandate for decentralization of broad author-
takes a non-regulatory, voluntary approach to local participation
ities to local governments. Law 25 in the same year provided
and actions under a national program. I am proud to say that this
local control of financial resources that empowers local govern-
legislation is already being discussed throughout the country and
ments to implement these new. A significant element of Law
will be presented to Parliament for ratification in 2002.
22/1999 was district control of marine resources out to four nau-
In preparation for the passing of this legislation, the Ministry
tical miles and provincial control of marine resources out to 12
has started to develop numerous policies to guide capacity devel-
nautical miles. As a result, local communities and governments
opment and action by the government and communities. These
have control over ocean and coastal resources for the first time
include national guidance documents for coastal management,
since the 1945 Constitution, which provided for complete cen-
small islands management, coastal area spatial planning, coastal
tral government control of all oceans and coastal resources.
and ocean hazard mitigation, habitat rehabilitation, capture and
My Ministry has now assumed the unique challenge and oppor-
culture fisheries development and licensing and tracking for
tunity to design from the. beginning a program that supports
domestic and foreign fishing operations among many others.
and horizontally links local government actions and policies,
These form the backbone of my public policy regime in terms of
and simultaneously builds a vertically integrated national pro-
both empowering the public to take control at the local level,
gram around national standards that represent national
and giving expression to public aspirations at the national level.
interests. Our priorities are to increase supervision, control and
We have also initiated a number of pilot programs to develop
production of coastal, marine and small-island resources, and to
Indonesia-based models for local community and local govern-
improve economic efficiency in their utilization; to develop
ment coastal management. In East Kalimantan we developed the
information, policies and mechanisms for participatory integrat-
first watershed-based Bay Management Plan in Indonesia and
ed management; to expand the understanding of marine
facilitated the establishment of the first ever local government
resources to our population; and to empower the local commu-
inter-departmental working group focused exclusively on inter-
nities to manage their own coastal resources.
departmental coordination and budgeting regarding coastal and
Central to our national interest is the protection and manage-
ocean management. In South Sumatera, we created the first GIS-
ment of our ocean fish populations and increased production
based provincial coastal atlas and strategic plan that was so
from cultured stocks to reduce pressure on ocean-based
successful a tool that eight other provinces have developed sim-
resources. For example, we are establishing a vessel monitoring
ilar atlases and strategic plans using their own resources to
system for that will monitor all licensed fishing vessels in order
complete the tasks. In North Sulawesi, we have the first ever vil-
to regain control of our pelagic resources and retain more of the
lage-based and enforced community marine sanctuaries in
benefits related to these resources. At the same time, I have ini-
Indonesia and are beginning the national community-based
tiated a number of programs to help local entrepreneurs develop
marine sanctuary program in 2002. These community-based
culture fisheries operations and other programs that support sus-
marine sanctuaries will ultimately form a string of protected
tainable development of aquaculture enterprises and use of local
areas throughout the thousands of coastal villages in Indonesia,
fish resources.
serving as community protected and maintained breeding areas
However, local communities and governments in Indonesia have
and multiple-use reserves.
historically looked to the central government to create policy, to
Education of future generations is also a critical part of my
protect resources, to enforce rules and to generate activities, par-
agenda. I am currently leading the establishment of a new
ticularly in the last several decades. Even in the era of
Marine Policy Research Center at the Bogor Agricultural
decentralization, a recent attitudinal survey about ocean and
Institute, the premiere coastal university in Indonesia. This ini-
coastal resources management indicates that this perspective is
tiative has already resulted in establishing student and faculty
still held by the vast majority of the population surveyed (more
exchanges with the University of Rhode Island in the United
than 70%). To succeed in empowering local communities and
States. We have developed the Indonesian Coastal University
government, we must change the residual belief that the central
Network to link and build capacity in coastal universities across
government is solely responsible for ocean and coastal resources
the nation and a national internet-based network of marine
and change the expectations for central governmentís provision
NGOs is similarly linking non-governmental organizations
of services related to these resources. And, as most of our techni-
focused on coastal issues.
cal capacity still resides within the central governmental
We have made significant progress in managing our national
agencies, we must also bridge the capacity gap to enable local
marine parks, such as Komodo National Park near Bali, by
stewardship and initiative.
31
Ministerial Perspectives on Oceans and Coasts at Rio+10
empowering local communities to manage these resources. In
our challenge is to draw from experiences around the world, try
Bunaken National Marine Park in Northern Sulawesi, local gov-
to understand the underlying principles of the models available,
ernment, NGOs and communities are working together with
and then adapt them to our local context. In Indonesia, our
donors to develop and enforce a tiered zoning program, begin a
awareness and capacity to do this is improving, but we need
reef monitoring and rehabilitation program, and develop a
much more knowledge and experience in coastal management,
shared management system with community patrols. New part-
and in many cases we are addressing these needs for knowledge
nerships with dive operators include the first user-pays fee system
and experience with the generous support of the donor com-
in Indonesia with 90 percent of the funds going to park manage-
munity, for which we are grateful. Especially important now are
ment. Bunaken Marine Park has also recently been proposed as a
programs that focus on building capacity to analyze and formu-
World Heritage Site and we hope to establish it as a national cen-
late national policies for fisheries management and coastal
ter of excellence for national capacity-building purposes.
resources management, as well as preparation and implementa-
In addition, my Ministry supports a national bi-annual confer-
tion of local management plans for coastal and areas.
ence for coastal management professionals that in 2000 was
CONTINUING CHALLENGES
attended by more than 1 000 national and international partic-
Indonesia is not alone in facing the challenges ahead. We are
ipants. Our next national conference is in May 2002 and I
struggling to balance several competing priorities, all of which
encourage all of you to attend and present papers that con-
need resources and attention. From land-based sources of marine
tribute to our continued progress. In addition to our national
pollution to marine transportation issues, sea level rise, coral reef
and local conferences, we are increasing our linkages to the glob-
degradation and small island management - how is one to
al community by participating in programs such as the
choose? In Indonesia, we have taken the best possible first steps
International Coral Reef Initiative and international NGO pro-
forward by recognizing the need to manage ocean and coastal
grams, as well as hosting international marine science
resources through an integrated rather than sectoral approach
conferences such as International Coral Reef Symposium 2000
and establishing a new Ministry of Marine Affairs and Fisheries
in Bali. These developments and activities are critical for keeping
through which to realize this need. However, the challenge we
current with the global community and on-course internally. It
accepted at Rio of balancing and finding our way through the
also allows us to borrow, adapt and disseminate innovations for
many socioeconomic, political and scientific complexities we
and from our experimental programs.
face in establishing that elusive integrated framework of sustain-
The economic and social development of coastal communities is
able ocean and coastal development will remain with us long
also a major mandate of my Ministry. Work is slow amidst
into the future.
increasing populations and rapid internal migration that
The last 10 years have gone by quickly. And, just as in the Rio
increases the potential for conflict around resource access and
Declaration, I believe that offering practical guidance here for
use. I have initiated a significant microenterprise development
implementing all ocean and coastal management programs is
program, with special emphasis on alternative income streams
impossible. However, we have learned much in the past few
for women, to improve the standard of living while also increas-
years in Indonesia and I believe that there are a few important
ing awareness in coastal villages of the implications of local
lessons that I can offer to this Rio +10 Conference in terms of
actions for ocean and coastal resources.
public policy for sustainable oceans and coastal development.
In addition, my Ministry supports a national bi-annual confer-
First, the importance of setting the public agenda cannot be
ence for coastal management professionals that in 2000 was
overstated. In order to achieve integrated governance of ocean
attended by more than 1 000 national and international partic-
and coastal resources there must be an alignment of vision and
ipants. Our next national conference is in May 2002 and I
mission in terms of the entire national public agenda. This is
encourage all of you to attend and present papers that con-
probably the single most important action that national gov-
tribute to our continued progress. In addition to our national
ernments can take for rapid success in sustainable ocean and
and local conferences, we are increasing our linkages to the glob-
coastal development. It is also probably the most difficult. And,
al community by participating in programs such as the
while local and national public agendas must necessarily move
International Coral Reef Initiative and international NGO pro-
along their own individual timeliness vertically and horizontal-
grams, as well as hosting international marine science
ly linking local and national agendas is directly linked with our
conferences such as International Coral Reef Symposium 2000
rapid expansion of ocean and coastal management in Indonesia.
in Bali. These developments and activities are critical for keeping
As a result, I believe this should be the linking element and con-
current with the global community and on-course internally. It
stantly in the mission of national government and donor efforts.
also allows us to borrow, adapt and disseminate innovations for
To achieve this, national policy agendas must be designed down-
and from our experimental programs.
ward looking and local agendas must be designed upward
These are just a few examples of the progress we are making. In
looking, each incorporating the others aspirations and enabling
all, my Ministry is currently coordinating ocean and coastal
the other's success. Moreover, the structure of these must be
resource management projects in over half the provinces in the
designed internally to match domestic needs rather than
Indonesia and in 45 separate districts and cities. As with all of us,
designed through the tyranny of project funding from abroad.
32
Toward the 2002 World Summit on Sustainable Development, Johannesburg
In practical terms, setting the public policy agenda means look-
through international bodies, to continue to improve our under-
ing for, and/or creating, the triggering mechanisms required to
standing of the importance of the externalities we incur and
catalyze rapid change and open the door for policy innovations
create, and to continue to develop innovative approaches to mit-
in integrated ocean and coastal governance. Good fortune came
igate these externalities without major detriment to our own
from bad fortune for Indonesia as the Asian monetary crisis
people. Without international consensus and willingness to sac-
acted as a powerful triggering mechanism and produced a refo-
rifice equally, the needs of the world will usually come second in
cusing of the national economy on natural resources conversion.
priority to the needs of a nation.
Ocean and coastal resources were suddenly hot topics in terms
It is our job to find solutions that are compatible with our own
of foreign currency capture, the national budget, food security
national needs, and to make conscious and well-considered deci-
and conflict over access and use-rights.
sions to intentionally change our behaviors and policies based
Second, and following closely behind setting the public policy
on these needs. We can experiment, adapt the models of others,
agenda for oceans and coastal governance, is the need to engage
discuss widely the possibilities and implications, but the deci-
our governments in much larger geographic-scale efforts for
sions are ultimately ours to make and the work is ours to do. It
implementing ocean and coastal initiatives. Isolated communi-
is a challenge of the spirit, as well as the mind, to integrate
ty-based activities and small pilot projects taught us much in the
change with historic and cultural identity. It is a difficult balance
early phases of ICM about the potential results of management
to recognize some things cannot move too quickly while recog-
opportunities. And, continued scientific research is critical to
nizing that speed may be the determining factor in the
inform our programs. However, we must admit that integrated
preservation of our renewable ocean and coastal resources.
management of ocean and coastal resources is by nature a gov-
In Indonesia we are moving fast, while still looking for better
ernance function that must be conceived, proposed and carried
approaches that meet the needs of our nation. We are all the
out on large scales in order to produce the results we want.
while remembering that managing ocean and coastal resources
While certainly a more complex task than smaller demonstra-
means managing peoples' complex behaviors and feelings.
tion projects, largescale efforts are required in order to produce
While we struggle to push innovation, we also spend time facil-
the results necessary to maintain a position in the competitive
itating and listening. In cooperation with our international
public agenda and address the critical issues that exist.
partners, which have been extraordinarily generous with
Finally, it is important to use the support garnered through the
Indonesia, we are moving forward with experimentation, adap-
public agenda to rapidly set the policies that provide practical
tation, and discussion of the options for integrated governance
guidance for action at all levels. As all the management gurus tell
of our commonly held oceans and coasts, and are emerging with
us, the most common mistake in reengineering private or public
our own capacity and public agenda to take action. Together we
structures is moving too slowly. In Indonesia we are moving as
are all on the road to search for a comprehensive framework for
fast as possible to set new policy through our new national
integrated governance of ocean and coastal resources. And
coastal management legislation and supporting guidance docu-
through this search, I am sure we will find solutions to the prob-
ments that I described earlier. These in turn are being
lems caused by old behaviors that are no longer sustainable
implemented around the country through our government
while holding on to the essence of our national culture.
budget. I cannot emphasize enough the importance of moving
quickly. While triggering mechanisms open the governance
door for innovation and rapid progress, and working at large
scales offer the promise of bigger and more attractive results, the
public agenda doors often close with the announcement of the
latest crisis and so we must seize the day while it is offered.
As we are learning in Indonesia, it is important to rapidly put in
place the governance infrastructure for support and action to
continue after our day in the spotlight has faded. This infra-
structure must be designed to quickly accomplish the first order
outcomes of formalized institutional structures and constituen-
cies while preparing the way for second and third order
outcomes leading to integrated governance of ocean and coastal
resources.
These are some of the lessons we have learned internally. To see
all that we are learning, I invite you to our National Coastal
Management Conference in Bali from May 21-24, 2002.
Although it would be nice to think that nations will place glob-
al ocean and coastal conditions and needs above their own, this
is unrealistic. We need to continue to work together directly, and
33
Ministerial Perspectives on Oceans and Coasts at Rio+10
34
Toward the 2002 World Summit on Sustainable Development, Johannesburg
MEXICO'S PERSPECTIVE ON OCEANS AND COASTS TEN
YEARS AFTER RIO
Exequiel Ezcurra
Mexica
President, National Institute of Ecology, Secretary of the Environment and Natural Resources, Mexico
Currently, Mexico confronts a problem of slow economic
Caribbean waters, a region which -because of its location in the
growth and continuing degradation of its natural resources. The
tropical convergence zone- is highly vulnerable to extreme cli-
growing disparities between developed and developing nations,
matic phenomena such as tropical hurricanes or the generalized
coupled to our own internal inequalities, have evolved in paral-
warming of its waters, and is thus threatened by global warming.
lel with the gradual but unrelenting degradation of our
These are some of the immense problems we have to tackle in
environment. For Mexico, this process has represented a grow-
Mexico's oceans and coasts. There is a lot of work ahead, and we
ing dependence on imported food supplies, as well as increased
have to address the issues with responsibility. However, the
levels of poverty. Effective international cooperation for sustain-
opportunity that this meeting offers to look back and reflect on
able development should include a system capable of ensuring
what the Rio Conference meant for many of us, is indeed gold-
better prices for raw materials from the developing world, whose
en. So much has happened in these ten years; so many things
producers are forced to compete unfairly with the highly subsi-
have changed.
dized primary producers of developed countries. Otherwise, the
growing pressures to obtain a meager income from impover-
In 1992 we only had one small marine protected area in Mexico
ished natural systems will lead inexorably to the continued
-the Veracruz Reef National Park. Largely as a result of the
degradation of the world's ecological base.
extraordinary momentum that the Rio summit brought into our
country, in 1993 Mexico decreed its first large marine protected
This degradation also includes, unfortunately, our coastal and
area in the Upper Gulf of California. Since then, it has been a
marine resources. Mexico is a mega-diverse country, not only in
landslide: In subsequent years marine protected areas were
its land systems, but also in its seas. The selective extraction of a
decreed in Loreto and Cabo Pulmo, also in the Gulf of
few commercially valuable fisheries in our species-rich seas often
California; around the Marias and Revillagigedo Islands in the
implies a great impact on our ecosystems, where a high propor-
Pacific; in the Alacranes Reef in the Gulf of Mexico; the
tion of the accompanying fauna is harvested as by-catch and
Chinchorro Key in the Caribbean, and in Los Petenes on the
thrown back into the ocean. As in other tropical countries, this
coast of Campeche.
is the case with our shrimp dragnet fleet, where the by-catch pro-
portion can be as high as ten to one.
Many other areas with coastal lagoons have been also added to
our national system of reserves. Funding has been ensured for
Together with the decline of our fishery reserves in open waters,
some of these areas through a GEF donation that was converted
we have also observed during the last decades a negative trend
into a model trust fund for conservation. In parallel, increased
towards environmental degradation in our coasts. Oil and indus-
Federal funding was committed to support the operation of our
trial chemicals, urban discharges, the flow of agricultural
growing system of protected areas, with a special emphasis in
residues, and the cutting of mangroves, among other causes, are
our own coastal and marine reserves.
major driving forces of degradation in our estuaries and lagoons,
which function in our tropical coasts as nutrient traps, and play
Our national listing of endangered species was modified in 1994
an immensely important role in the juvenile life cycle of many
to include a new category of species that, even if they were not
open-water fisheries. Mangrove forests occupy a large proportion
themselves under any risk, may provide crucially threatened
of our coastal lagoons, and the environmental services they pro-
environmental services. Thanks to this new regulation, man-
vide are immense. However, aquacultural farming and tourism
groves now enjoy full protection and their clear cutting is now
developments are putting this critical environment under
legally punishable by Mexico's Environmental Attorney General.
increasing pressure.
Similar rules and standards were established in the 1990s to con-
trol the discharge of wastewaters into coastal areas, protect
Coral reefs, a fundamental life supporting system in tropical
breeding grounds around coastal lagoons, and regulate the catch
seas, have been showing some disturbing signs of damage result-
of strategic fisheries. The National Fisheries Chart was also mod-
ing from human activities. Coral bleaching, and sometimes the
ified in that period to include new concepts of integrated
death of the coral polyps themselves, have become a recurrent
adaptive management and to provide more legal protection for
problem in some of our coasts, revealing the high level of envi-
marine and coastal reserves.
ronmental stress to which these fragile communities are being
subject. Marine pollution, increased turbidity from deforestation
Our General Law of the Environment was modified in 1996, four
and coastal runoff, eutrophication resulting from wastewaters,
years after Rio. Among other changes, the new law establishes
and increased sea temperatures induced by global climate
the right of the Federal Government to plan the environmental
change, all seem to be playing their synergistic role in the decay
use of coasts and seas and to enforce these plans. Based on this,
of one of our richest ecosystems. This is especially true in our
more than ten large-scale, coastal and marine-use plans have
35
Ministerial Perspectives on Oceans and Coasts at Rio+10
been made to regulate the development of our coasts and seas,
failed to come true. But, looking back, it is clear that during these
and to protect their seriously fragile environments.
last ten years we also started to act, we lost our paralyzing iner-
Finally, during the last decade international cooperation was
tia with respect to protecting the marine environment. Perhaps
actively promoted, in projects such as the Bight of the
the biggest dream of Rio was simply that: to start acting, to set
Californias, a critically important coastal region shared by
societies in motion, to start doing something to revert the trends
Mexico and the United States, or in actions such as the program
of global environmental degradation and of global inequity. Rio
of international observers in our tuna fleet, possibly the most
implied, for many countries, both a call to action to protect our
intensely watched fishery in the world.
environment and a call to compassion towards those that have
been left out of global access to natural resources.
All these changes occurred and evolved in Mexico as a result of
what we may call the "spirit of Rio." In this last decade, our prob-
This dream is now as legitimate and compelling as it was then.
lems in marine and coastal regions have continued to
Let us work to rekindle the illusions. Our coasts and our seas
accumulate, and we are still far from solving them. In Mexico,
need it.
like in most countries in the world, many of the dreams of Rio
36
Toward the 2002 World Summit on Sustainable Development, Johannesburg
ADDRESS TO THE RIO+10 WORLD CONFERENCE ON OCEANS
AND COASTAL AREAS
Honorable Victor I. Kalyuzhny
Russian
Deputy Minister of Foreign Affairs of the Russian Federation and
Federation
Special Representative of the President in the Caspian Region
Mr. Chairman,
decrease or totally disappearing. No wonder that we are witness-
Ladies and Gentlemen,
ing a growing concern with the fact that the balance between
benefits and damage from offshore oil and gas exploration activ-
Since the Rio 1992 Summit, Russia has undergone dramatic
ities is changing for the worse.
changes. One of them is a greatly enhanced "ecologization" of
legal awareness of its population, deepened, though not yet
In many respects, the problems encountered by Russia in this
nation-wide, public concern over the state of environment,
sphere seem to be typical of other countries with the developed
progress and problems related to the harmonization of techno-
power industry infrastructure.
logical progress and health of natural flora and fauna.
The contradictions related to the increased use of coastal
The issue of ensuring a full-fledged life for the present and future
resources inevitably aggravate the problems of social and eco-
generations and state of planet Earth itself concerns all states
nomic development. Conflicts of interest brought about by
and every individual. As Russia's President noted, this country "is
multiple jurisdiction and competition among users of resources
involved in all global processes."
in the absence of dispute settling mechanisms, inadequate forms
of protection of resources, as well as the lack of national and
One of the features of the world in the third millennium is the
local policies of coastal area management providing for
fact that mankind is turning again to the place that once became
informed decision-making undermine the possibilities of sus-
the cradle of life on Earth - to the World Ocean.
tainable development in the future.
The man came to the sea about a million years ago. According to
The UN Conference on Environment and Development held in
scholars, he was fascinated by the blue plain that stretched out
Rio de Janeiro in 1992 recommended coastal countries to devel-
behind the coastal cliffs. Hiding among the trees, he spent hours
op and implement integrated coastal area management
watching the sea unaware of the future alliance with it. In order
programs, taking into account their specific conditions. In accor-
to survive, the man picked up all kinds of "seafood" left by
dance with this recommendation Russia pays great attention to
waves. That was how the initial, though "gastronomic", infor-
this aspect. For example, Russia is participating in the multidis-
mation on marine resources was being accumulated1.
ciplinary program for East Baltic coastal areas sponsored by
Today, people who realize the importance of environmental and
UNESCO-Intergovernmental Oceanographic Commission with-
economic links between the sea and the coast and who are con-
in the framework of the Baltic Floating University project.
cerned with the oceans' future, are exploring ways to solve the
Measures are being taken to reduce pollution of coastal waters
interrelated problems of satisfying the growing demand of the
from rivers in order to develop certain coastal regions.
population for natural resources of the World Ocean while both
However, it is obvious now that the length of Russia's shoreline
preserving the riches and diversity of the marine environment
and complexity of the problems arising there demand a broader
and maintaining the primary function of the Ocean - oceanic
approach to solve them. The Russian Federation has large coastal
Earth's crust - that is to sustain geological and biological process-
areas. Its sea component (shelf) alone makes up one third of
es to provide normal functioning of our planet.
Russia's land territory, or more than half US territory (excluding
Historically, coastal areas, rich in resources, have been among
islands), and is ten times as large as the surface of France. With
most exploitable areas all over the world. More than 60 per cent
the World Ocean shoreline extending 777,000 km, the length of
of the world population live within a 60-mile coastal area, and
the Russian coastline is 60,000 km.
the process of its migration from mainland to coastal areas is on
In environmental terms, the coastal area constitutes an outer,
the rise.
transitional zone between the continent and the ocean and,
So, there is no wonder that an acute conflict exists between the
consequently, is a zone of ocean-land interaction. It boasts the
desire to immediately use and consume coastal resources and the
major oil and gas deposits, the greatest specific biodiversity and
necessity to provide for their sustained reserve. In many coun-
the highest bioproductivity. The coastal area is a sort of purifica-
tries, as well as in Russia, this conflict has reached a critical
tion plant for pollutants from the shore.
point. Many parts of coastal areas have been polluted by wastes
The specific natural features of Russia's coastal area at moderate
from local and inland industrial and agricultural sources. Lifeless
and southern latitudes provide enormous opportunities for
gulfs and bays and general pollution of environment devoid sea-
recreation activities. Moreover, this is a zone of busy navigation
coasts of their recreational attractiveness. Fisheries are facing
1 See Yu. M.Yakovlev, "The Sea and the Man". http://www.fegi.ru/PRIMORYE/SEA/people.htm.
37
Ministerial Perspectives on Oceans and Coasts at Rio+10
as well as port and hydrotechnical facilities construction. Life
regulated by different laws, vesting the responsibility for monitor-
within coastal areas in its economic, social and cultural aspects
ing, registration, preservation, protection and management of
is closely linked to marine activities and greatly depends on nat-
the coastal natural resources with different government bodies.
ural factors. This close linkage to the marine ecosystem and
At the same time, an analysis of the economic, social and envi-
particular dependence on nature and elemental forces of the sea
ronmental situation in the regions in question reveals the
determine the specific character of coastal areas to be reckoned
necessity of:
with while developing the structure, principles and legal frame-
· Working out of special regulations establishing a legally opti-
work of management of these regions.
mum regime for the "coast-sea" line on the great extension of
It would be impossible to work out any socio-economic projects
Russia's coastal area and territorial sea;
of coastal development without taking into consideration the
· Drawing up a legal framework to harmonize interests of dif-
ecological situation in Russia's coastal area. The Russian coastal
ferent users of natural resources: oil producers, fishermen, sea
area is a zone of dynamic economic activities, meanwhile, its
recreation businessmen, etc.
natural features make it extremely vulnerable to any human
intervention into the natural evolutionary process.
· Adopting a legal act defining a coastal area (coast and sea line,
characterized by closely interrelated environmental, econom-
Our country recognizes the need to develop an efficient legal
ic and social factors) as the economically and environmentally
mechanism to preserve natural coastal territories as the most
integrated whole.
precious national asset and ensure their general accessibility
and integrity.
We believe that a legal framework of coastal area management
should take into account appropriate rules of international law
At present, management of natural resources within Russia's terri-
(relating to the marine environment conservation, support for
tory is governed by the Constitution of the Russian Federation, which
traditional fisheries and many other activities) established by
is of fundamental significance, and a number of federal laws:
both multilateral, including universal, conventions (first of all,
· Law of the Russian Federation on Environmental Protection
the UN Convention on the Law of the Sea), and bilateral treaties
(1993);
to which Russia is a party.
· Law on the Continental Shelf of the Russian Federation
It is precisely in the light of these approaches that a special draft
(1995);
law on coastal areas is being developed. It builds upon the inter-
· Law on Inner Sea Waters, Territorial Sea, and Adjacent Zone of
national legal expertise in this area, including the European
the Russian Federation (1998);
Union Model Law on Sustainable Management of Coastal Zones,
FAO documents, as well as legislative acts of certain countries
· Law on the Exclusive Economic Zone of the Russian
(Netherlands, Great Britain, Sweden, USA and others).
Federation (1998);
On the basis of scientific and economic factors testifying to the
· Federal Law on General Organizational Principles of Local
urgent necessity of legal definition of the regime of coastal area
Self-Government in the Russian Federation (1997 version)
management in Russia, the legislative act under preparation
· Federal Law on Environmental Impact Assessment (1998 ver-
could include the following key provisions:
sion);
· For management purposes, a coastal area covers an adjacent
· Law of the Russian Federation on Mineral Resources (2000
sea area with its outer boundary coinciding with the outer
version);
boundary of the exclusive economic zone, as well as an appro-
· Federal Law on Share of Production Agreements (1999 ver-
priate coastal strip, the population of which strongly depends
sion)
on the sea;
· Land Code (1993 version)
· Extension of the constitutional provision on the "joint juris-
diction" of the Russian Federation and its constituent entities
· Law on Natural Medicinal Resources, Curative and
to cover the issues related to coastal zone management. One
Rehabilitation Sites and Health Resorts (1995);
of the possible ways in this regard is to establish within the
· Law on Specially Protected Areas (1995);
government structure a consultative body consisting of repre-
· Law on Wild Fauna (1995);
sentatives of federal, regional and local authorities, economic
entities, NGO's and local population. The main task of the
· Law on the Protection of the Atmospheric Air (1999);
consultative body should be to promote the harmonization of
· Forest Code of the Russian Federation (1997);
interests of the area and those of its population and various
· Federal Law on Sanitary and Epidemiological Health of the
users of natural resources;
Population (1999);
· Another possible way to implement the "joint jurisdiction"
· Water Code of the Russian Federation (1995).
concept is to draw up plans of coastal zone development.
Such plans are seen as a basis for activities in the area. They
The brief list above shows that the peculiarity of Russia's legisla-
should be initiated by local self-government structures, while
tion in force lies in the fact that different natural resources are
finally approved by a Federation's constituent entity or at the
38
Toward the 2002 World Summit on Sustainable Development, Johannesburg
federal level. The law is supposed to specify obligatory and
I would like to note separately the extreme importance of the
optional elements of such plans, a procedure of their prepara-
across-the-board introduction in the process of drilling at the
tion using the experience acquired in the process of
Caspian of the so-called zero discharge method, when all the
environment impact assessment of economic activities, and a
waste formed is taken to the shore and stored in special dump-
procedure of their coordination and approval;
ing grounds.
· Definition of areas not subject to privatization (such as recre-
A five-Party Caspian centre, which Russia deems necessary to
ation zones, national parks, areas along communications
create on a permanent basis for monitoring the Caspian envi-
lines, etc.);
ronment and offering relevant recommendations to the
· Basic rules of holding tenders for long-term lease. The key cri-
governments of the coastal States, is to become the instrument
terion for nominating a winner should be in particular the
of protection of the Caspian.
feasibility of projects from the point of view of social devel-
Unfortunately, in practice things are moving ahead slowly so far.
opment and conservation of the natural environment;
There is a view that the conclusion of any specific agreements at
· Other important sections of the draft law are supposed to be
the Caspian is of no use until a new legal status of the sea is
special sections related to conservation of nature (in particu-
defined. Such logic has its right to be voiced.
lar environmental requirements concerning military
But the life is not an abstract scheme. In the conditions when an
facilities), mandatory insurance of companies engaged in
environmental disaster is emerging at the horizon, it is, to say
exploration and exploitation of natural resources and trans-
the least, counterproductive to link measures aimed at its pre-
portation of mineral products.
vention with any other affairs.
A new legislative act should be based primarily on the idea of
Our position in respect of the projects of construction of sub-
conservation of the unique coastal area for the present and
marine trans-Caspian pipelines is also motivated by
future generations. The main criterion of quality of such nor-
environmental considerations. The Caspian sea is a closed water
mative endeavours could be the extent to which such an act
body situated in the zone of high geodynamics. Therefore,
provides for both development of the coastal area and its acces-
before starting to implement such projects, the coastal States
sibility and environmental activities.
must solve together the issues of their environmental security.
Finally, I would like to emphasize a regional aspect of this prob-
What I mean is, first, to minimize the possibility of pipeline acci-
lem which very important for Russia and involves global
dents, and second, to establish responsibility for the damage
consequences. Taking into account a known conflict of interests
caused and the procedure of its compensation.
between offshore oil and gas developers and fishermen, Caspian
Conservation and development of the Caspian Sea environmen-
States are particularly in need of common legal mechanisms. An
tal system on such a basis including the famous Caspian
ideal solution would be an adoption of the Convention of the
sturgeon population combined with environmentally moni-
legal status of the Caspian Sea that would regulate the entire set
tored offshore exploitation of marine mineral resources would
of problems, including the protection of its environment and
specifically contribute to the implementation of the Rio
use of biological and mineral resources. Persisting differences in
Platform during the third millennium.
the views of the Caspian States regarding the new status of the
Thank you for your attention.
Caspian Sea in the context of their understanding that the
Convention can be adopted only by consensus, do not, howev-
er, allow the solution of the issue by one act. Taking into account
these circumstances and the deteriorating ecological situation at
the Caspian-this especially concerns a critical situation of the
unique sturgeon population of the sea-Russia strongly advocates
a stage-by-stage advancement towards a consensus solution on
the status, the conclusion, in a priority order, of a package of
five-Party environmental agreements that would permit the
coastal States to urgently take collective measures aimed at the
protection of the Caspian environment and its fishery resources.
What I mean specifically is the conclusion of agreements on the
protection and use of bioresources of the Caspian Sea, on the
protection of the Caspian Sea natural environment, and on the
cooperation of the Caspian States in the field of hydrometeorol-
ogy and monitoring of the Caspian Sea environment.
Russia positively views the work on the preparation of the frame-
work convention on the protection of the marine environment
of the Caspian, which is performed by the experts from five
Caspian States with the technical Assistance of the UNEP, favors
its early accomplishment.
39
Ministerial Perspectives on Oceans and Coasts at Rio+10
40
Toward the 2002 World Summit on Sustainable Development, Johannesburg
CHINA'S OCEAN AND COASTAL MANAGEMENT
Dr. Ni Yuefeng,
Deputy Administrator, State Oceanic Administration, Beijing, China
People's Republic
of China
Introduction
The choice of the social development pattern determines the
fate of environment issues and their countermeasures. In the
On the occasion of the forthcoming tenth anniversary of
course of global development, the society is faced with such
UNCED, it is of great importance to hold the Global Conference
problems as population, bipolarization and consumption pat-
on the Ocean and Coastal Zone at Rio +10.
tern, etc.; the economy is facing the economic mansion built on
The ocean and the coastal zone are of important strategic signif-
the basis of high consumption of resources and energy and the
icance to the development and progress of human society.
situation where the gross national product equals the national
Ushering in the 21st century, man has fully realized that the
total pollution; the environment is confronted with desertifica-
ocean is an important component of the life-supporting system
tion vs. forest, global environment vs. ecological crisis, and
of the globe. Through unceasing explorations, the strategy of
environmental deterioration in the developing countries. The
sustainable development has evolved while the ocean is the
1972 Stockholm Environment Conference resulted in an under-
treasure house of resources for realizing the sustainable develop-
standing all over the world of the enironmental problems,
ment. The coastal zone is an area with the closest relationships
especially the problem of environmental pollution, and the
between the ocean and man, and the highest values. From
1992 Rio Conference on Environment and Development
ancient times, the coastal zone has been an important place
(UNCED) evolved a new understanding of the environmental
where man lives and carries out productive activities, a gateway
problems, which are no longer just an issue of pollution, but
of the coastal countries in their contacts with foreign countries
have gradually developed into the global issue of ecological cri-
and an outpost of their national defence. It has now become a
sis and disaster. The environmental problems are, in the final
zone where the economies, cultures and sciences of the contem-
analysis, caused by the choice of the strategy for social and eco-
porary world gather together. However, the ocean and the
nomic development, thus leading to an assessment of the
coastal zone are also encountered with numerous problems of
limitations of the traditional development pattern, seeking a
sustainable development whereas management is one of the
completely new development strategy in the light of the social,
major ways of maintaining the health of the ocean and coastal
economic, resource and ecosystem harms done to the environ-
eco-environment and its sustainable use.
ment, and finally resulting in the strategy of sustainable
In this paper, I am going to share with you how my country -
development.
China, in pursuance with the aspirations of UNCED, has devot-
With the advances of marine science, man has gained a deeper
edly implemented Agenda 21 in terms of ocean and coastal zone
understanding of the marine resource and environment as well
management, and what are we going to do as future strategies in
as of the service functions and values of marine ecosystems. The
the new millenium.
marine economy is developing rapidly. Therefore, the ocean has
Development of Marine and Coastal Zone
become an essential component part of the sustainable socioe-
Management Towards the 21st Century
conomic development and constituted an important basis for
affecting the choice of the strategy for social development. The
The ocean and the sustainable development
marine scientific rescarch and the social practice have made firm
The ocean is an essential component part of the globe's life-sup-
man's belief in returning to the ocean. Mankind has realized that
porting system. Occupying 71% of the earth's surface, the ocean
the ocean, with its huge system capacity, is regulating the glob-
is the cradle of life and the huge environmental regulator, thus
al environment and supporting man's subsistence and
making the earth a suitable place where the vulnerable and air-
development. In the utilization of the ocean over several thou-
breathing mankind can live and go in for production. Over a
sand years before the 1960s, the subjects of marine economy had
very long historical period, man has been operating in part of
been marine fishery, sea-salt industry, and marine communica-
the continental areas occupying 29% of the earth's surface. The
tions and transportation. It was not until the 1960s that the
rapid growth of population, the accelerated exhaustion of
development of offshore oil exploitation and mariculture
resources and the increasing deterioration of environment has
became the sign and symbol of modern marine development.
made the problem of environment and development a global
The world output value of marine industries has seen a rapid
strategetic issue. In seeking to solve the strategic problems of
growth, which was 13 billion US dollars in 1969, 250~280 billion
global socioeconomic development, man has realized the signif-
US dollars in 1980, 600~800 billion US dollars in 1991, account-
icance of sustainable development and the role of the ocean,
ing for 5% of the world total output value and now has been
and has returned to the ocean once again.
estimated at more than 1500 billion US dollars, accounting for
15% of the world total. And the order of the output values of
41
Ministerial Perspectives on Oceans and Coasts at Rio+10
world marine industries has developed from the primary, sec-
regional management and a high-level management over the
ondary and tertiary industries in the 1950s~1960s, through the
coastal zone. It refers to the coordination, supervision and man-
secondary, tertiary and primary industries in 1990, to the terti-
agement with respect to the space, resource, eco-environment of
ary, secondary and primary industries now. Marine economy has
the coastal zone as well as its development and utilization by
become a new area of growth and an important component part
means of such functional behaviors of the government as strat-
of the world's economy.
egy, zoning, planning, legistlation, law enforcement and
The ocean and the land are both the object of man's cognition
administrative supervision so as to effect the sustainable use of
and possess the socioeconomic attributes that can be utilized for
the coastal zone.
the benefit of mankind itself. This has aroused man's urgent
Significance of the United Nations Conference
demands for developing and utilizing the ocean, promoted its
on Environment and Development as a milestone
overall understanding of the relationships of basic interests
in history
between the ocean and the nation which correspondingly led to
The United Nations Conference on Environment and
the occurrence, formation and development of man's marine
Development has epoch-making significance in the world's his-
concept. The marine concept is an understanding of the essential
tory of development. The 1972 Stockholm Conference should
attributes of the ocean which man obtains through the practice
be, so to speak, the first milestone in the history of environ-
of economic, political, military and transportation activities, etc.
mental protection as it paid attention to the environmental
Since the ancient times, the marine concept has undergone five
pollution problems and awakened man's awareness of the need
stages of evolution: (1) Before the 15th century, the ocean had
to protect the environment on a global scale. But in choosing
provided us with "the convenience of water transport and the
the development pattern, it did not break away from the devel-
benefit of developing fishery and salt-making"; (2) From the 15th
opment at the expense of damaging the environment. In the
century to the early 20th century, the ocean constituted the easy
late 1980s, in the light of the problems of population, resource
transport passage for trade and expansionism; (3) From the First
and environment as well as the predicament of development
World War to the years before the 1960s, the ocean became a
brought about by the industrial civilization, it became necessary
hotly contested strategic point and an important battlefield; (4)
to proceed from the integrity of modern science and technolo-
Between the 1960s and the 1980s, there appeared the concept of
gy, develop productivity being oriented to the coexisting values
marine territory, and the development of the relevant industries
of mankind and natural systems and seek for the development
brought along by the offshore oil exploration and exploitation
pattern of sustaining man and nature as well as socioeconomy
and the mariculture industry marked the beginning of the mod-
on the basis of inheriting and displaying the advantages of agri-
ern epoch of ocean development; (5) Since the 1990s, the ocean
cultural and industrial civilizations, centring around the
has been realized as an essential component part of the man's
interaction between man and natural systems with the informa-
life-supporting system and valuable wealth for sustainable devel-
tion civilization as the managerial tool, thus resulting in the
opment. To grasp the formation and trends of the modern
strategy of sustainable development, which is cognition of the
marine concept is an important aspect in the modern marine and
issues of environment and development from a higher plane.
coastal zone management.
This is the distinguishing feature of the 1992 Rio Conference on
Ocean and coastal zone management has become an important
Environment and Development as the second milestone in
tool of the coastal countries to realize sustainable development.
man's history of environmental protection and the Conference
The development of the modern ocean and coastal zone man-
should also be rated as one of the most significant events in the
agement tends to be comprehensive, dynamic and closely
late 20th century and would be of far-reaching significance to
combined with socioeconomy. The integrated marine manage-
the environment and development in the various countries of
ment has become a high-level managerial form in the field of
the world in the 1990s and the early 21st century.
marine management. With the overall marine interests of the
To carry out ocean and coastal zone management on the princi-
State and the sustainable development of the ocean as goal, by
ple of sustainable development has become a sign of the
means of formulating and implementing strategies, policies and
beginning of the new historical period in ocean and coastal zone
plans, zoning, legislation, law enforcement, coordination as well
management after the Conference on Environment and
as administrative supervision and inspection, and under the sys-
Development. The United Nation's "Agenda 21"adopted by the
tem of unified management and management by various sectors
1992 Rio Conference on Environment and Development urged
and at various levels, the space, resource, environment rights
the coastal countries to undertake to carry out integrated man-
and interests of the sea areas under national jurisdiction as well
agement and sustainable development in the coastal areas and
as their development, utilization and protection are subject to
marine environment under their national jurisdiction and
overall planning, coordination and management so as to
made principled stipulations concerning the objectives, action
achieve the aim of raising the systematic efficacy of marine
plans, implementation conditions of the integrated ocean and
development and utilization, promoting the coordinated devel-
coastal zone management, thus constituting a guide to the
opment of marine economy, protecting the marine
marine and coastal zone management carried out by the coastal
eco-environment and safeguarding the national marine rights
states. The World Coast Conference held in November, 1993
and interests. The integrated coastal zone management is a
summed up the new experiences of various countries in carrying
42
Toward the 2002 World Summit on Sustainable Development, Johannesburg
out marine and coastal zone management, worked out the the
whole mankind, and is also taken as a guiding document for
technical documents for the coastal zone management and pro-
drawing up the China's long-term development plan for nation-
posed theories, methods and measures for the integrated coastal
al economy and social development. However, the basis for the
zone management, thereby vigorously promoting the experi-
implementation of sustainable development is "development",
ments in the integrated coastal zone management conducted by
the economic development is the prerequisite of sustainability,
the developing countries. Since the 1990s, initiated by the rele-
the quality of economic growth is of utmost importance, the
vant UN organizations, and supported and urged by the World
natural conservation is the basis and improvement of social
Bank, UNDP and the organizations in the developed countries
quality is the goal.
for aid to foreign countries, the integrated coastal zone manage-
The sustainable development in the coastal area requires the
ment has made great headway and 95 coastal countries have
support of marine environment and ecosystem. The ocean
launched the integrated coastal zone management in 385
makes China's coastal region the birthplace and forward posi-
regions. This is where lies the historic significance of the Rio
tion of China's reform and opening to the outside world as well
Conference on Environment and Development.
as the focus of national economy and the most vigorous hot
The strategic problems being faced
place in regional economy. In China, the area of the coastal
region accounts for 14% of the national total, its population
The contemporary world is still encountered with the problem
over 40% of the national total, the GDP more than 60% of the
of environment and development, and the subjects of general
national total and its annual rate of growth is nearly 5 percent-
concern are the problems of resource, environment and popula-
age points higher than the national average; The gross output
tion as well as the role of the ocean's contributions and the
value of agriculture accounts for about 40%, and that of indus-
sustainable development in solving the common problems of
try about 67%, the total volume of retail sails of social consumer
the world. The ocean is facing more prominent problems, and
goods over 59% and the total volume of export trade about 88%,
such issues as marine rights and interests, marine resource and
of the national total; The level of coastal urbanization has
wealth, marine eco-environmental health, national and region-
reached 25.5%, 1.2 percentage points higher than the national
al security, high seas resource sharing, etc., have become the
average; and over 90% of the national import and export mate-
subjects of marine management; The major problem in the
rials passes through the coastal ports. The coastal region is
ocean and coastal zone management is how to establish the
playing an important role in the national communications,
national, regional and global response mechanisms. In the
information exchange and contact with the international mar-
socioeconomic system, the hot issues are still protection of the
ket as a "passage" and a "bridge". The coastal economy is growing
ocean as the resource treasure-house for sustainable develop-
constantly, and the marine economy has gradually become an
ment and development of the leading factors of sustainable
important component part of coastal economy and, in recent
development; occupation of the ocean as the major battlefield
years, it has been developing at an annual average growth rate of
for competition in science and technology and the commanding
over 20%. In 1999, the national output value of major marine
point in the 21st century; impelling the ocean to become the
industries amounted to 365.1 billion yuan (RMB).
major motivating force of economic development; development
of favourable conditions in so far as the ocean is the focus of
The development of the coastal region plays an important part
political contentions; realizing that the ocean is the major area
in the national development and the maintenance of prosperity
where lies a nation's destiny and prosperity and the symbol of its
as well as in establishing China in an unassailable position in the
rise and fall, developing marine economy and attaining control
increasingly fierce international competition in the 21st centu-
of the sea by relying on science and technology. As a result of
ry. The superiorities of coastal development lie in the ocean, the
constant deepening of cognition on the ocean, the ocean has
foundation of sustainable development is in the rational use of
become an important domain in the international competition
the ocean and the fundamental way out for solving the prob-
in the century with respect to politics, military affairs, economy,
lems restricting the development is in relying on the ocean.
science and technology, resource and environment.
Although the marine economy is developing rapidly, the marine
development has not become the prop industry in the coastal
China's strategies
area and the major marine industries are those traditional ones
China's implementation of the strategy of sustainable develop-
such as marine fisheries, and marine communications and trans-
ment has its own implications. The Chinese Government has
portation, etc., which have a strong dependence on the marine
made positive response after the Rio Conference on
environment and ecology. Without the guarantee of marine
Environment and Development, put forward the ten major poli-
environment and ecology, the superiorities of the coastal region
cies concerning environment and development as the State's
in development would soon vanish and it would be impossible
programme of action in realizing the coordinated development
for the coastal region to realize its sustainable development,
of environment and economy and taken the lead in formulating
which would further affect the process of China's sustainable
the "China Agenda 21" which reflects China's strong sense of
development.
historical mission and responsibility for fulfilling her due duties
To better act in the spirit of the China Agenda 21 in the
for the international community and her resolve of unremit-
marine fields and promote the sustainable development and use
tingly making greater contributions to the common cause of the
of the ocean, the Chinese Government has formulated and
43
Ministerial Perspectives on Oceans and Coasts at Rio+10
implemented the China Ocean Agenda 21, which expounds the
munications and transportation, and salt-making from sea
basic strategies, strategic objectives, fundamental countermea-
water; the newly emerging marine industries including maricul-
sures for the sustainable development of the oceans as well as
ture and stock enhancement, offshore oil and gas exploitation,
the major programme areas. To become a truely strong marine
coastal tourism, direct utilization of sea water, marine medicines
state, China is drawing up the strategy of revitalizing the nation
and sea food development; as well as some future marine indus-
through ocean. This is the phasic requirement in China's imple-
tries which are in the stage of technical reserve such as ocean
mentation of the Ocean Agenda 21 and the requirement of the
energy utilization, deep-sea mining, marine information, multi-
times for national development. Its overall thinking is to take
purpose use of sea water, etc. The marine industries have
revitalizing the nation through ocean as strategy, lay emphasis
constituted an important component of coastal economy and
on both development and conservation, be supported by science
are now just beginning to take shape. But the marine environ-
and technology, be drawn by the hi-tech industries, lay up
ment affects climate change, distribution of rainfall and
strategic resources, improve qualities of life, safeguard national
occurrence of natural calamities, thereby possibly exerting a
security, bring along the development of the relevant industries,
direct or indirect influence on the economic and social develop-
effect the sharing of high sea resources and evolve a large sys-
ment in the coastal area and even in the inland region.
tems engineering. The strategic objectives for revitalizing the
Developing and protecting the ocean has constituted an impor-
nation through ocean are integrated marine management,
tant integral part of China's environment and development.
advanced marine science and technology, well developed
While they are rapidly presenting huge economic benefits,
marine economy, healthy marine eco-environment and solid
China's modern activities of marine development have also
national comprehesive marine strength.
brought along a series of resource and environment problems.
China Ocean Agenda 21
For instance, the serious overfishing of offshore fishery resources
has done a great harm to the marine living resources; The con-
The ocean's contributions to and support for China
stant increase of the total amount of pollutants dumped into the
China is a major marine state, but not a rich one. China boasts
sea has aggravated the environmental pollution in some sea
a continental coastline of over 18000 km and an insular coast-
areas and worsened the ecological environment; Lack of high-
line of over 14000 km; According to the stipulations of the
level plans and coordination mechanisms have resulted in
United Nations Convention on the Law of the Sea, China also
prominent contradictions among the various sectors using the
exercises sovereign rights and jurisdiction over its broad conti-
sea and irrational development and use of the sea; The econom-
nental shelf and EEZ. Located in Northwest Pacific, China's sea
ic development is out of balance among various coastal sections
area strides across the tropic and temperate zones with a great
and some individual regions have not completely been lifted out
variety of marine life, high biodiversity, a vast shallow sea and
of poverty while, in the economically developed coastal sec-
tidal flat, numerous coastal bays, a deepwater coastline of over
tions, there also exist quite a lot of environmental problems; The
400 km, rich in the reserves of oil and gas, and solid mineral
global climate change and the increase of economic activities in
resources as well as ocean energies, and a multitude of coastal
the coastal area have caused the marine disasters to occur more
landscape resources. However, there are obvious disadvantages
frequently and on a larger scale, and the economic loss arising
in China's sea area resources. China's per capita area of sea, sea-
therefrom has increased and the consequencies have been more
land area and the per capita area of sea within the 200 nm are all
serious. However, with the constant increase of China's national
quite small and the coastline coefficient is only 0.00188. But the
economic strength, China will be able to control and solve the
ocean occupies an important strategic position in China's
marine problems now available and actively involve itself in the
national economy and social development, and marine econo-
international marine affairs.
my is showing a momentum of rapid development. Between the
China's marine policies
early 1980s and the late 1990s, the gross output value of the
major marine industries throughout China had increased by 32
The China Ocean Agenda 21 has clearly set forth China's marine
times and it amounted to over 400 billion yuan (RMB) in 2000,
policies. In the development of future marine undertakings, the
with an added value of 202.2 billion yuan (RMB) and an annual
coordinated development in both the sustainable ocean use and
average growth rate of 25%, which was much higher than the
the marine undertakings should be the guiding ideology for the
average rate of national economy.
oceanic work in China in the 21st century. The principles of tak-
ing the development of marine economy as the core task,
Challenges and opportunities faced by the marine
quickening, as appropriate, the step of development, integrating
undertakings in China
the development on the land and in the sea, promoting the
China's marine undertakings are confronted with tremendous
marine industries by relying on science and education and
challenges and opportunities. China's jurisdictional sea areas are
developing in a coordinated way should be adhered to and
rich in marine resources, including those of living organisms, oil
implemented. In developing the ocean at a moderately fast
and gas, solid minerals, ocean energies, marine tourism, etc. The
speed, while a high speed development is maintained, emphasis
various activities of marine resource development have evolved
should be laid on better benifits and bringing the ocean devel-
into different marine industries, among which are traditional
opment onto the road of technology and capital-intensive
marine industries such as those of marine fishing, marine com-
development. The strategy of the integrated development on
44
Toward the 2002 World Summit on Sustainable Development, Johannesburg
both land and sea should be implemented in the overall plan-
(3) Promote ocean development activities according to plans
ning of the land development in the coastal land and sea areas.
and along the set orientations by combining the ocean
By adhering to the policies of coordinated development of
development with the social and economic sustainable
regional economy, different types of development areas shall be
development in the coastal areas for gradually solving the
formed in the coastal zone. Ocean development must take the
key constraining problems in the coastal socioeconomic
road of developing the ocean through science and education by
development so as to promote the social and economic
taking various energetic measures, implementing the overall
sustainable development in the coastal region.
development strategy, promoting the progress of ocean science
(4) Promote the sustainable development of coastal islands by
and technology, raising the productivity level of ocean develop-
taking into consideration the development, utilization and
ment, promoting the close cooperation among science,
conservation of coastal islands in the light of the national
technology and education and the marine development activi-
economic construction as a whole and the sustainable
ties, and by pushing forward the sustainable, rapid and healthy
development of the coastal region; Attach importance to
development of the ocean economy. Ocean development
the special position of islands in the territory, improve the
involves many sectors, conservation of the marine ecological
integrated management of sea islands and protect the bio-
environment involves many fields and marine research covers a
diversity on and around the islands.
number of disciplines, so coordinated development is an objec-
tive requirement, which requires multidisciplinary cooperation
(5) Conserve the marine living resources for sustainable uti-
in the study of the ocean and man's better understanding of the
lization; Establish marine protected areas of coral reef,
ocean; coordinated development of various sectors such as oil
mangrove, seaweed bed and island, as well as those of
industry, transportation, fisheries, tourism, salt industry etc. so
spawning and nursery grounds of fishes, shrimps and crabs
that each has a role to play; coordinated land-based and offshore
in the bays and coastal areas so as to protect biological
activities for the joint conservation of the marine ecological
species and special ecosystems; Manage well the coastal
environment; balance between the marine development and the
fishery of the masses and the mariculture and stock
bearing capacity of marine resource and environment for the
enhancement in the tidal flats and shallow waters; Develop
sustainable use of the ocean; enhancement of the capacity of
clean mariculture technologies; Improve fishing technolo-
participating in the international marine affairs, tracking of the
gies and methods and carry out moderate fishing of
developments in the international marine science and technol-
economic fishes; Develop ocean ranching technologies;
ogy, study on international marine laws, and active involvement
Strengthen rational development, use and manegement of
in the international marine scientific research, the global marine
the resources in the exclusive economic zone.
environmental protection as well as the development and man-
(6) Promote sustainable development and utilization of the
agement of the international sea-bed and polar marine
ocean by relying on the progress in science and technolo-
resources.
gy. Explore and seek for new exploitable marine resources
by carrying out further surveys on the marine environment
Basic countermeasures of the China Ocean Agenda 21
and resources; Research into and develop new technologies
In the light of China's national development strategies and the
and methods, and develop deep-sea mineral resource, bio-
demands of national economy and social development, the
logical resource, chemical elements in sea water, ocean
basic countermeasures of the China Ocean Agenda 21 are to:
energy resource, marine pharmaceutical resource and cre-
(1) Develop basic countermeasures for the sustainable devel-
ate new and hi-tech industries; Develop science and
opment and utilization of the ocean by laying emphasis on
technology for ocean observation and raise the levels of
the prevention and control of damage to the marine eco-
marine forecast and information service.
logical environment and resources and giving full play to
(7) Establish an integrated marine management system. Form
the guiding role of the market in the rational distribution
step by step an integrated decision-making mechanism for
of resources with the United Nations Convention on the
ocean development and management, and formulate uni-
law of the Sea as the international legal basis and the devel-
fied guiding principles for ocean development, ocean
opment and management of China's seas as the objective
technologies and conservation policies; Gradually improve
basis.
the coordination between ocean development and man-
(2) Guide the establishment and development of ocean indus-
agement; Reinforce the integrated ocean management by
tries by following the principle of sustainable
formulating and perfecting the laws and regulations on the
development; Ensure fair distribution of sea area space and
integrated marine management, and establish and
resources among various marine industries through inte-
improve the law-enforcement system.
grated coordination; Promote clean prodnction; Explore
(8) Protect the marine environment. The central and local
new resources, and develop new technologies so as to
coastal governments should coordinate in the marine envi-
establish and develop new marine industries by relying on
ronmental protection work in order to prevent the
the progress of science and technology.
degradation of marine environment due to land-based pol-
lution; The gross pollution load in the key sea waters
45
Ministerial Perspectives on Oceans and Coasts at Rio+10
should be controlled and monitored, and the integrated
and marine management and marine service for public good.
management model and the demonstration sites for the
The China's marine managerial system and operating mecha-
coordinated development of environment, economy and
nism have basically come into being. Since 1998, the
society should be established; Further strengthen control of
fundamental functions of the State Oceanic Administration
ocean dumping; Formulate and implement contingency
have been marine legistation, planning and management, and
plans for preventing and controlling marine pollution;
its basic duties are sea area use management, marine environ-
Strengthen capacity-building in marine environment mon-
mental protection, marine science and technology promotion,
itoring, surveillance and law-enforcement management.
international marine cooperation, marine disaster prevention
(9) Improve the ocean observing, forecasting, early warning
and mitigation, and safeguarding of marine rights and interests.
and disaster mitigation work. Perfect the ocean forecast
In 1999, the State Oceanic Administration adjusted the offshore
and early-warning system and carry out timely and accu-
law enforcing organs, and established the China Marine
rate forecasting of natural marine disasters; Develop
Surveillance Headquarters and headquarters for various sea
disaster prevention and mitigation countermeasures, and
areas, which are responsible for the integrated law-enforcement
contingency plans so as to reduce the loss from natural dis-
work in all the sea areas under China's jurisdiction. In addition,
asters.
the marine management organs of coastal provinces and munic-
(10) Strengthen international cooperation. Promote positively
ipalities have been set up one after another, thus resulting in a
the international cooperation in the research, develop-
marine administrative system consisting of both the central and
ment and protection of the Northeast Asian waters;
local marine management organs. On the whole, China is prac-
Enhance the international cooperation in the research,
ticing the system of unified supervision and management
development and protection of the Southeast Asian waters;
combined with management in various sectors and at different
Participate in the international cooperation in the global
levels and the mutually supplementary and promoting mecha-
marine research, marine environmental protection, inter-
nism of operation between the integrated marine management
national seabed resource development and management,
and the marine sectoral management.
and research on the Antarctic and Arctic as well as the
Construction of marine laws and regulations
waters around the poles.
The Chinese Government has attached great importance to the
(11) Promote participation of the public in the marine under-
construction of marine laws and regulations. So for, China has
takings and the popularization education and professional
established nearly 30 ocean-related laws and regulations cover-
education in ocean knowledge with the aim of creating a
ing such fields as territorial sea and contiguous zone, exclusive
new situation where the whole nation cares for and pro-
economic zone and continental shelf, marine environmental
tects the ocean, the people from all walks of life
protection, maritime traffic safety, fisheries and mineral
participate in developing marine undertakings and the
resources, etc. In the light of the variations in the marine envi-
coastal masses of the people cooperate in developing and
ronment and ecosystems as well as the needs of national
protecting the ocean.
economy and social development, China revised the Marine
China's Ocean and Coastal Management
Environmental Prolection Law in 1999, which officially came
into force as of April 1, 2000. The Law has newly added the
Present situation of China's ocean and coastal
Supervision and Administration of the Marine Environment, the
management
Marine Ecological Conservation and the Prevention and Control
China is one of the earliest countries to carry out marine man-
of Pollution Damage to the Marine Environment by Coastal
agement. In the Zhou Dynasty over 3000 years ago, King Wen
Construction Projects. The Law lays special emphasis on the
appointed special officials responsible for fishery administration
implementation of the system to control the total pollution load
and stipulated the closed fishing season; The Han Dynasty insti-
for sea disposal in major sea areas, establishes the legal status and
tuted fishery officials in the imperial house; In the Board of
role of marine functional zoning and defines the rational use of
Works of the Ming and Qing Dynasties, there are middle-rank
sea areas, and the conservation of marine ecology as well as the
officials specialized in fishery administration; and in the late
related legal liabilities.
Qing Dynasty, fishery bureaus were set up in the coastal prefec-
However, the Marine Environmental Protection Law alone can-
tures; And the management of salt production has also had a
not by far meet the needs of managing and protecting the sea as
history of over 2000 years. Since the founding of New China, the
a resource under China's full sovereinty. At present, China is
marine industries have recovered and developed. Following the
actively pushing on the legislation on the sea area use manage-
establishment of the departments for marine sectoral manage-
ment. Since its promulgation and implementation jointly by the
ment, as the marine affairs are increasing and tend to be
State Ocean Administration and the Ministry of Finance in 1994,
comprehensive, the State Oceanic Administration of China has
the Interim Regulations on the Management of National Sea
been founded and become the competent authority of the State
Area Use has played a great role in controlling the disorderly,
responsible for marine affairs. Its major tasks are to organize and
excessive and gratuitous state in the past sea area use and ocean
coordinate the national oceanic work and take charge of organ-
development. The sea area, as a specific geographic region and
izing and carrying out marine survey, marine scientific research,
resource base, needs to be protected, and rationally planned and
46
Toward the 2002 World Summit on Sustainable Development, Johannesburg
used through law. The sea area should be owned by the State and
National Plan for the Eco-Environmental Construction and
its ownership and rights of use are protected by law; The neces-
Conservation came into being in 2001, which, proceeding from
sity that the right of sea area use shall be affirmed through
the reality of the eco-environment construction and conserva-
examination and approval and the user pays system reflect the
tion in China's jurisdictional sea areas, gives priority to the
State's macro regulation and control over the distribution and
China's nearshore sea area and coastal zone while giving consid-
structure of sea area uses so as to suit the needs in the regulation
eration to the distant sea waters, and stresses the immediate
and control of the market under the system of market-oriented
objectives while looking ahead into 2030. The purpose of the
economy with Chinese characteristics. In October, 2001, the
Plan is to make a rational distribution of marine resources and
Law of the People's Republic of China Concerning the Sea Area
ecosystem development and carry out marine resource develop-
Use Management was formally approved by the Standing
ment and use, and ecological construction in a scientific,
Committee of Natoinal People's Congress.
rational, orderly and moderate way, thus changing the mode of
production and improving the quality of life in the coastal area;
Marine planning and zoning
and develop the new motive force for the sustainable develop-
Planning and zoning management is an important means of
ment of China's coastal areas, and restore and maintain the
marine management in China. China's implementaion of
sustainability and stability of marine ecosystems so as to satisfy
marine functional zoning, marine development plans and sea
the requirement for China's socioeconomic development in the
area use plans in its jurisdictional sea areas, especially its
new century and meet the demands of the nation in the inter-
nearshore sea area, provides the code of conduct and manageri-
national economic and political competitions.
al basis for marine management. The marine functional zoning
The Chinese Government has intensified the effort of marine
and the sea area use plans fall within the category of resource
environmental protection and pollution control. China's Tenth
management with the aim of laying a foundation for the sus-
Five-Year Plan for National Economy and Social Development
tainable use of marine resources; The marine functional zoning
has clearly proposed to "strengthen the protection of the water
belongs to an advanced arrangement while the sea area use plan
quality in the nearshore sea waters, research into, prevent and
lays emphasis on the arrangement for a given period. The
control red tides, and do a good job of the integrated improve-
marine development plan goes beyond the category of marine
ment and management of the Bohai Sea environment". The state
resource management and penetrates into the field of marine
departments concerned are actively pushing on the integrated
economic management and marine territory management.
improvement of sea areas, and particularly the Bohai Sea,
Between 1989 and 1995, China organized the development of
China's internal sea as the focal sea area, and have successively
national marine functional zoning on a scale of 1:200,000, thus
worked out the Integrated Improvement Plan for the Bohai Sea,
resulting in the reports, registration forms and maps on the
which incorporates the sea area pollution control, adjustment of
marine functional zoning for the coastal prvinces, autonomous
resource development, ecological recovery, scientific and tech-
regions and municipalities directly under the Central
nological demonstration, and supervision and management into
Governmant as well as the national marine functional zoning
an organic whole, and the Bohai Blue Sea Action Plan with the
and atlases. Starting from 1997, China began to revise and
control of pollutants discharged into the sea in the round-the-
improve the marine functional zoning already accomplished and
Bohai region and the ecological construction as the main body;
launched the large-scale marine functional zoning, on a scale of
and mobilized the local people's governments of Liaoning,
1:50,000 for the ordinary regions and 1:10,000 for the focal
Hebei, Tianjin and Shandong around the Bohai Sea to actively
regions. Marine functional zoning has now constituted the basic
participate in the plan making and the work of integrated envi-
foundation for the construction of the marine administrative
ronmental improvement. Besides, the improvement plans for
mechanism, developing ocean-related plans and marine policies
the estuarine sea waters such as the Changjiang River and
as well as selection and designation of marine nature reserves.
Zhujiang River mouths are also being worked out.
Between 1991 and 1993, China carried out the work of drawing
The relevant international organizations and organs have paid
up the national marine development plan, evolving the nation-
great attention to China's integrated Bohai improvement and
al marine development plan, the marine development plans of
management. In 1999, aided by the Asian Development Bank,
the coastal provinces and municipalities and the national spe-
China initiated the research on the project "Bohai Coastal
cialized marine development plans, etc. Now China is working
Resources Conservation and Environmental Management". The
out the National Marine Economic Development Plan, i.e., to
Project of "Partnerships in Environmental Management for the
design a blueprint for the major exploitation of the ocean and
Seas of East Asia" (PEMSEA) jointly sponsored and funded by
the vigorous development of marine economy by proceeding
GEF, UNDP and implemented by IMO has paid attention to the
from the overall interests of the nation and drawing on the
Bohai environmental management and constructed the Bohai
appropriate international experiences and lessons, and in the
Environmental Management Demonstration Project with the
light of the actual conditions and national strength of China, so
transboundary integrated management pattern as the dominant
as to provide guarantee for the coordinated development of var-
factor, which would be carried out in 2000~2004.
ious ocean-related sectors. Under the guidance of the National
Programme for the Eco-Environmental Conservation, the
47
Ministerial Perspectives on Oceans and Coasts at Rio+10
Marine management activities
Sea area use management. In 1994, China released the Interim
China's marine management includes the integrated manage-
Regulations on the National Sea Area Use Management and
ment and the sectoral management; The integrated
established the systems of application, demonstration, examina-
management embodies the basic part and dynamic develop-
tion and approval, licence and user pays for sea area use. In
ments of national marine management. At present, in carrying
October 2001, the Law on Sea Area Use Management was
out the integrated marine management, China lays emphasis on
approved by the National People's Congress. The local govern-
the marine environment monitoring, integrated marine law-
ments are working out their own regulations and measures with
enforcement, sea area use management, marine environmental
respect to the sea area use management based on the Law.
protection, coastal islands management and construction of
Protection and management of marine engineering environ-
marine nature reserves.
ment. Environmental management for the marine construction
Marine environment monitoring. On the basis of a great deal
projects is the content of management added into the China's
of investigation and research on marine environment, China
newly revised Marine Environmental Protection Law, which falls
began in 1978 to conduct the marine environmental pollution
within the responsibility of the State competent anthority in
monitoring with marine pollution as the dominant factor in the
charge of marine affairs. The major systems now being formu-
Bohai and Huanghai seas and set up China's first marine envi-
lated and implemented for the environmental protection of
ronment monitoring network; In 1984, the relevant
marine engineering include those of examination and approval,
departments of the State jointly established the national marine
marine functional control, marine environmental impact assess-
environment monitoring network, which was joined by over
ment, post-monitoring assessment, supervision and inspection,
100 monitoring and research institutions and began to conduct
"three simultaneous" (i.e., Environmental protection installa-
the routine marine environment monitoring in the sea area
tions of marine construction projects shall be designed, built
throughout the country. After more than 20 year's construction
and put into operation together with the principle part of the
and development, China has developmed the basic capacity of
construction projects simultaneously.), and protection of focal
carrying out the water quality, biological, sedimentological,
areas; The work of the environmental management for the
atmospheric environment monitoring in its entire sea area and
marine engineering is being actively pushed on so as to turn the
the ability to apply the ship monitoring and buoy technologies
legal regulations into the practice of management.
as well as underwater detectors and coastal station automatic
Construction of marine nature reserves. As of 1999, China has
detection system, etc.. In recent years, the national marine envi-
established 73 marine nature reserves of various kinds in respect
ronment monitoring has been conducted as planned, grasping
of natural landscape, historical sites and special marine ecology,
the marine environmental quality condition and the trend of
etc., among which 8 are managed by the oceanic administra-
change in the whole sea area, various seas and the sea areas adja-
tions, covering a total area of about 140,000 ha. Establishment
cent to the coastal provinces and municipalities, and releasing or
of marine nature reserves has not only brought about obvious
working out the marine environmental quality bulletins or
results in improving the marine environment, conserving bio-
reports to provide basis for the macro decision-making and
logical resources and biodiversity, and accelerating the recovery
management of the marine environmental protection; and
and rehabilitation of resources, but also provided an important
keeping abreast of the trend of environmental quality in the
base for developing science and culture, ecological tourism,
nearshore focal and hot-spot sea areas so as to provide direct
environmental protection edeucation and cooperation with for-
service for the marine and socioeconomic development as well
eign countries.
as the marine environment management in the coastal
Management of uninhabited islands. China boasts over 6500
provinces and municipalities.
islands with an area of over 500 m2 each, among which only
Marine law-enforcement. China conducts real-time surveil-
433 have residents and the rest are all uninhabited ones. At pres-
lance, supervision and inspection related to the enforcement of
ent, most of the uninhabited islands are still in want of
marine laws and regulations in various activities of development,
management. Over 50% of the territorial sea base points already
use and control in the sea areas under its jurisdiction; spot torts
announced by China is located on the uninhabited islands.
and activities at sea in contravention of laws and regulations; car-
According to the relevant laws and regulations, China has begun
ries out in-situ survey and evidence collecting with respect to the
to conduct protection and management of the uninhabited
maritime cases so as to provide evidence for the treatment
islands and their adjacent sea waters, establish the managerial
according to law; conducts in-situ survey of the incidents and
system conforming to the local reality and strengthen law-
accidents, and stops the illegal activities form doing more harm
enforcement on the uninhabited islands and the sea areas
and reduces their damage and consequencies. China's marine
around them.
law-enforcing contingents include the China Marine Surveillance
Construction of demonstration sites for the integrated
Headquarters, China harbor superintendency administration and
coastal zone management
China fishery administration; China's sea frontier patrol and
marine anti-smuggling group are also a component part of the
At present, the managerial system with the coastal zone as an
marine law-enforcement contingent in China.
independent management unit has not yet come into being in
China. However, a great deal of basic work and construction of
48
Toward the 2002 World Summit on Sustainable Development, Johannesburg
demonstration sites have been carried out in the coastal zone,
model for development and conservation in Fengchenggang of
including the integrated survey of China's coastal zone and inter-
Guangxi with harbour construction as the dominant factor, the
tidal zone, resources, the integrated survey of national sea island
integrated management model in the Hailing Bay of Guangdong
resources, functional zoning of national oceans as well as appro-
with fishery as the dominant factor and the managerial model
priate land areas, and the national marine pollution baseline
for coordination and use of multiple functions in the Qinglan
survey; In terms of the integrated coastal zone management, con-
Bay of Hainan, which have accumutated demonstrative experi-
struction of the demonstration sites for the sea area use
ences and lessons that may be popularized and applied.
management has been carried forward in nearly 20 coastal cities;
Marine scientific research service
Through international aid and participation of the relevant inter-
national organizations, the construction of demonstration sites
To promote ocean development and use, and the rapid and
and capacity building for the integrated coastal zone management
sound development of socioeconomy in the coastal areas, China
with different characteristics have been carried out in China's
has actively conducted marine basic researches, devoted major
Xiamen City of Fujian Province, Yangjiang City of Guangdong
efforts to push on the development and application of marine hi-
Province, Wenchang City of Hainan Province and Fangchenggang
techs, tackled the key problems in the major technologies for the
City of Guangxi and have accumulated experiences which may be
transformation of traditional marine industries and the hi-tech
drawn upon and popularized in the China's coastal area as well as
industrialization, well conducted the basic work in a down-to-
the East Asia region and other coastal countries.
earth manner to protect the integrity and continuity of marine
data, and launched the demonstration projects for developing
Construction of Xiamen demonstration site of Fujian, China.
the ocean through science and technology to speed up the trans-
In 1994, the GEF, UNDP and IMO as well as the State Oceanic
formation of scientific results toward marine economy.
Administration of China and the Xiamen Municipal
Government jointly organized and implemented the Xiamen
Since the mid-1990s, China has carried out a series of important
Demonstration Plan for the Marine Pollution Prevention and
marine scientific research projects and activities. For instance,
Management in the East Asia Seas, with the aim of promoting
(1) The second national marine pollution baseline survey.
the integrated marine management in the Xiamen City and pro-
Covering a total area of 2.68 million km2 and with the 35 estu-
viding experiences for the East Asian countries and other coastal
aries, bays or sea areas adjacent to the middle and large-sized
regions of China to draw upon. The Xiamen City of China is a
cities as focal areas, the survey collected over 23000 samples of
caostal island city as well as a scenic harbour city. The socioeco-
all kinds and obtained over one million data; (2) Research on the
nomic development of the city is closely linked with the ocean.
dynamics of ecosystems and the sustainable use of biological
But the Xiamen City is encountered with many problems of
resources in the Bohai Sea, East China Sea and Huanghai Sea, in
management. Through the implementation of the demonstra-
order to further find out about the structure, functions of
tion plan during 1994-1999, it has systematically analysed the
China's offshore marine ecosystems as well as their service and
major problems in the marine pollution and coastal zone man-
outputs and seek the ways of developing and utilizing the
agement in the Xiamen City, integrated the socioeconomic
marine ecosystem in a sustainable way; (3) Research on the for-
factors and development plan demands and gradually estab-
mation and variation mechanism of China's offshore
lished the integrated coastal zone management system and basic
circulations, the numerical forecast methods and the impacts
capacity, thus obtaining significant benefits.
upon the environment so as to gain a systematic understanding
of China's offshore circulations and the dynamic mechanism of
Capacity building for integrated coastal management in
their variations with the support of modern observing technolo-
northern South China Sea. In the 1990s, the economic growth
gies; develop the numerical forecast model for the variations of
rate in South China has all along been maintained at over 10%,
China's offshore circulations and preliminarily solve a number
which results in the increase of conflicts day by day among the
of important basic problems of the coastal zone resource and
various economic sectors, especially in the coastal zone and
environment related to the offshore circulations; (4) Research on
increasingly more prominent problems of resource and environ-
the key problems with respect to the formation and evolution of
ment. In 1995, the Chinese Government submitted an
China's marginal seas as well as the important resources, with
application to the UNDP for aid to strengthen capacity building
emphasis laid on solving such scientific problems as the lithos-
and choose a demonstration site in the Guangxi Zhuang
tratigraphy structure in China's marginal seas and its dynamic
Autonomous Region, Guangdong Province and Hainan Province
mechanism, the differences in tectonic evolution between the
respectively for planning and implementing the integrated
South and East China Seas and its geological implications, and
coastal zone management strategy, which is then to be popular-
the effect of the formation and evolution of China's marginal
ized and applied thronghout the country. Between 1997 and
seas on the resource, etc.; (5) Research on the key technologies
2000, the project "Capacity Building for Integrated Coastal
for the utilization of coastal zone resource and environment as
Management in Northern South China Sea" which was funded
well as research on tackling key problems in the technologies for
by UNDP, undertaken by the China International Economic and
the coastal zone pollution monitoring, prediction, prevention
Technological Exchange Center and implemented by the State
and control, the large-scale mariculture zone capacity and opti-
Oceanic Administration scored great successes in the three
mization, prediction of the coastal zone marine dynamic
demonstration sites, and initially established the managerial
49
Ministerial Perspectives on Oceans and Coasts at Rio+10
environment and its disasters, the integrated coastal zone man-
Intervention on the High Seas in Cases of Marine Pollution by
agement and the information systems, etc., in which important
Substances other than Oil, 1973; International Convention for
technological breakthroughs have been made and practical tech-
the Regulation of Whaling; Basel Convention on th Control of
nological results obtained.
Transboundary Movements of Hazardous Wastes and Their
China has actively conducted survey of deep-sea polymettallic
Disposal; Agreement regarding the Execution of the Provision of
nodules. Since the mid-1980s, China has collected a large
the United Nations Convention on the Law of the Sea on Dec.
amount of very valuable data from the polymetallic nodules pio-
10, 1982 on the Conservation of Straddling and Highly
neer area in East Pacific covering an area of 15000 km2. In 1991,
Migratory Fish Stocks; as well as the global action plans con-
the China Ocean Mineral Resources Research and Development
cerning land-based pollution, etc.
Association (COMRA) was registered with the United Nations as
In the field of marine environmental protection, China has car-
a pioneer investor for the development of international seabed
ried out research on and given impelus to solving the problems
resources. As a result, China posseses a mining area for poly-
of environment, pollution, harmful algal blooms, ecology, etc.
metallic polymetallic nodule resources covering an area of
in marine development in cooperation with the International
75,000 km2 with the exclusive right of exploration and the right
Seabed Authority, London Convention 1972, IOC/UNESCO,
of preferential development in addition to the sea areas under its
APEC, SCOR and North Pacific Marine Scientific Organization
jurisdiction. In the mid-1990s, China carried out the research
(PICES).
program on the environmental baseline and its natural change
China's Future Strategy for Marine and Coastal
with emphasis laid on biology and ecology and arranged a five
Zone Management
legs' deep-sea environmental survey, which has resulted in a vast
amount of scientific data. The research findings have given a
China will attach great importance to the construction of
strong impetus to China's effort of participating in the environ-
the marine legal system, and establish and prefect the
mental legislation process of the International Seabed Authority
marine and coastal zone management system
and safeguarded the fundamental interests of China. China has
China will further improve the laws and regulations system for
positively participated in the relevant international cooperative
the ocean and coastal zone management, strengthen marine leg-
projects (TOGA, WOCE, JGOFS, GOOS, IGBP, GLOBEC, LOICZ,
islation, law enforcement and legal system publicity and
etc.), and actively promotes the development of NEAR-GOOS.
education and push for such laws as coastal zone management
Participation in the international marine affairs
law, coastal Island development and protection law, etc. so as to
China has done a great deal of work in protecting the ocean
provide guarantee for establishing the rational order of marine
together with the related international organizations. This is
resource development, arranging the productivity in a scientific
manifested in not only the conventions and treaties that the
way, maintaining the sound circle of marine ecology and
Chinese Government has ratified and acceded to, but also the
increasing the development benefits and basis for safeguarding
relevant programs and actions of the international organiza-
the national marine rights and interests and realizing the sus-
tions, including the United Nations Convention on the Law of
tainable use of the ocean.
the Sea; Framework Convention on Climate Change (FCCC);
China will intensify the marine eco-environmental
Convention on Biological Diversity, Convention on
conservation and carry out high-intensity marine moni-
International Trade in Endangered Species of Wild Fauna and
toring, surveillance, supervision and management
Flora; Amendments to Article 21 of the Convention on
China will continue to pursue the environmental protection pol-
International Trade in Endangered Species of Wild Fauna and
icy of "putting prevention first, combiming prevention with
Flora; Convention on the Prevention of Marine Pollution by
control and carrying out integrated management", put into effect
Dumping of Wastes and Other Matter (London Convention
the newly revised Marine Environmental Protection Law, estab-
1972); Amendments, 1989, to the Convention on the
lish and perfect the necessary rules and regulations and push on
Prevention of Marine Pollution by Dumping of Wastes and
enforcement of laws as well as supervision and management.
Other Matter, 1972; International Convention on Civil Liability
for Oil Pollution Damage, 1969; Protocal relating to the
China will conduct high-intensity marine environment moni-
International Convention on Civil Liability for Oil Pollution
toring and special monitoring, and promote the application of
Damage, 1969; Protocal, 1978, relating to the International
hi-techs in the monitoring and their operationalizd transforma-
Convention for the Prevention of Pollution from Ship, 1973;
tion; shape up the technological support system for monitoring;
Amendments to the International Convention for the
regularly carry out marine environment monitoring in the sea
Prevention of Pollution from Ship, 1973 and Supplementary
areas under its jurisdiction; and exercise supervision over the
Article I of Its Protocal, 1978; Amendments, 1990, to the
entire sea area and provide fundamental basis for ocean and
International Convention for the Prevention of Pollution from
coastal zone management.
Ship, 1973 as revised by the Protocal, 1978 (I, V); International
Convention relating to Intervention on the High Seas in Cases
of Oil Pollution Casualties, 1969; Protocal relating to
50
Toward the 2002 World Summit on Sustainable Development, Johannesburg
China will strengthen the plans management and the
China will devote major efforts to developing marine
integrated marine management, and maintain the sus-
science and technology and providing service for marine
tainability of the marine eco-enviroment
management, economic construction and national
In the light of the overall requirement for the implementation
security
of the China Ocean Agenda 21 and the demands for the socioe-
China will continue to carry out the survey of environment and
conomic development of China, China will do its best at making
resource in the sea areas under Chines jurisdiction, their adja-
an overall plan for ocean development so as to support the for-
cent waters and in the open ocean; make a further research on
mulation and implementation of China's strategy of revitalizing
the environmental variation caused by pollution damage and
the nation through the ocean; do a good job of the medium and
the succession of ecosystems in the nearshore sea areas and the
long-term plans for marine environmental protection and envi-
research on the environmental self-purification and assimilative
ronment improvement, gradually restore the damaged
capability of the nearshore sea areas; continue to deepen the
ecosystems and strengthen the construction of marine nature
resource survey and exploration in the sea areas under China's
reserves; carry out dynamic management of marine functional
jurisdiction. In the meantime, efforts will be made to carry out
zoning and, in the light of the requirement for the national
the comprehensive survey and observation research in the polar
socioeconomic development and the level of marine scientific
oceans with research stations as bases, and the research on the
and technological development and on the basis of constantly
marine resources, marine engineering environment and marine
understanding the ocean process, adjust the marine functional
rights and interests as well as the integrated sea area zoning in
zoning so as to better maintain the sustainability of the ocean.
the island-reef zone of the Nansha Islands.
China will intensify supervision and management of all eco-
China will focus the marine hi-tech research on the area of
nomic activities and activities of development and use at sea and
resource and enviroment, with emphasis on the development
through marine functional zoning, adjust the offshore and
of the technologies for marine environmental protection, bio-
marine industrial structure as well as the productivity distribu-
engineering for marine pollution control, marine
tion; control the offshore fishing intensity, develop, as
biotechnology, the technology for utilization of living
appropriate, the marine aquaculture, establish and practise the
resources, the seawater circulation and cooling technology and
total allowable catch system and strengthen the stock enhance-
the key technologies for the post-treatment process of the sea-
ment and conservation of living resources; strictly implement
water used for domestic purposes; research and develop a
the system of marine environmental impacts assessment with
number of sea-bed prospecting and oil and gas resource explo-
respect to marine engineering and coastal construction projects
ration and exploitation technologies, evolve technical products
and control the damage to the marine ecological environment;
and major equipment as well as the exploration technology
and take effective measures to control the coastal erosion and
series for developing the continental shelf sea areas; adopt the
ensure safety in the coastal production and life.
policy of combining technological import with independent
development and shape up the technological series for deep-sea
China will greatly enhance the capacity of marine
resource exploration and exploitation as well as the interna-
service and promote the development of marine econo-
tional, open scientific research vessels.
my and coastal region
China will further prefect the national ocean observing and fore-
China will carry out ocean propaganda and education,
casting service system and the national marine information
and enhance the awareness of the whole society about
service system, improving the equipment and technological
the ocean as its long-term task
capacity of the system, enhancing the capability of the marine
The recognition of the whole society of the strategic position
natural disaster prediction and forecast system, building the
and important role of the ocean in national economy and social
capacity for the early-warning of such environmental hazards as
development is the social basis on which the work of marine
marine harmful algal bloom, marine oil spillage and marine
and coastal zone management may be improved and carried
virus and the forecast of the losses caused by the disaster; hight-
out smoothly. Therefore, it is necessary to strengthen the exten-
ening the capacity of forecasting and predicting the disastrous
sive participation of the public, give full play to the special role
marine variations, effecting the operatoinal forecast of storm
of the grass-roots governments in the coastal areas in organiz-
surge overbanking, nearshore sea waves and surface sea temper-
ing the participation of the masses, and by means of various
ature, and carrying out the experimental research on the forecast
educational ways and diversified publicity, popularize ocean
of sea temperature, current and harmful algal bloom; and pro-
knowledge, raise the marine scientific and cultural qualities of
viding effective service for the coastal zone development, ocean
the labourers and foster the consciousness of the public in par-
development and use as well as safety in production and life.
ticipating in the marine resource conservation and in the
environmental protection.
51
Ministerial Perspectives on Oceans and Coasts at Rio+10
China will continue to strengthen international coopera-
Concluding Remarks
tion and exchange
Ushering in the 21st century, the socioeconomic system is
Since the 1980s, China has joined over 10 ocean-related inter-
encountered with a persistent subjectthe problems of popula-
national organizations, and established cooperative relations
tion, environment and economy while the development of
with over 50 countries and regions, and through cooperation and
socioeconomy will rely more and more on the role of the ocean
interchange, played an important role in training talents, import-
which occupies over 70% of the earth's surface. Many experts and
ing technologies and exchanging information. China will
politicians have foretold that the 21st century will be a new era
continue to improve its capacity of participating in international
of marine development. "The Mediterranean is a sea of the past,
marine affairs, following the developments of international
the Atlantic is a sea of today and the Pacific is a sea of tomorrow".
marine science and technology, studying the international laws
The Mediterranean and ancient Greek civiliaztions have become
of the sea, and actively participate in the international marine sci-
a thing of the past and history is bound to give the opportunity
entific research, the global marine environmental protection and
for the Pacific circle of civilizations to crop up. The marine and
the development and management of the international seabed
coastal zone management will face a severe challenge.
and polar marine resources. China will also positively promote
China has incorporated the rational development and use of
the international cooperation in the research, development and
marine resources and conservation of the marine ecological
conservation of the Northeast Asia sea waters; strengthen the
environment into the overall plan for national economy and
international cooperation in the research, development and con-
social development across the century, marine problems have
servation of the Southeast Asia sea waters; and participate in the
become a national strategic issue and the sustainable develop-
international cooperation in the global marine research, marine
ment of marine undertakings has constituted a basic strategy.
environmental protection, development and management of
The immediate objective in China's oceanic work is to strength-
international seabed resources as well as expedition and research
en marine management according to law, enhance innovation
in the Antarctic and Arctic, and the polar sea area.
in marine science and technology and effectively safeguard
China will give an impetus to the implementation of the United
marine rights and interests, striving to build China into a strong
Nations Convention on Law of the Sea; actively participate in
marine state with integrated ocean management, advanced
the development and conservation of high sea living resources;
marine science and technology, developed marine economy,
push forward the work of the International Seabed Authority;
sound marine ecological environment and solid integrated
take part in the relevant activities of IOC/UNESCO and SCOR;
national marine strength. However, China's modern ocean and
enhance the international cooperation in the marine environ-
coastal zone management is still in its primary stage and needs
mental protection, participate in and cooperate with the
to be vigorously promoted so that it could meet the needs of
follow-up activities of the international conventions and treaties
China's development of marine socioeconomy and develop-
to which China is a party, fulfil its commitments and obligations
ment of the international marine situation. China will make
and push on China's marine environmental protection. China
unremitting efforts to carry out the ocean and coastal zone man-
will strengthen cooperation with the Scientific Committee on
agement work creatively and bring into full play the integrated
Antarctic Research (SCAR) and expand cooperation and
benefits of marine and coastal zone management while con-
exchange with the countries engaged in the Antarctic and Arctic
stantly developing the productivity and further increasing the
scientific and technological activities.
integrated national strength, so as to make her due contribu-
As one of the important countries in the Asia-Pacific region and
tions to the marine cause in China and the world as a whole.
a nation with most rapid development of economy, there is a
need for China to improve cooperation and coordination with
countries of the regional and regional organizations, and
strengthening cooperation and interchange in regional mar-
itime affairs in the Asia-Pacific and West Pacific.
52
Toward the 2002 World Summit on Sustainable Development, Johannesburg
ADDRESS TO OCEANS AND COASTS AT RIO+ IO
AN ITALIAN PERSPECTIVE
Honorable Roberto Tortoli
Italy
Italian Undersecretary of State for Environment
Mister Chairman, Mister Director-General, Excellencies, Ladies
A sustained maritime trade crosses the Mediterranean Sea, via
and Gentlemen,
the Suez Channel, the Gibraltar Strait, the Turkish Straits. Fleets
Almost a decade ago, the Rio Conference drew our attention on
are very often made of old tankers, unsafe in many cases, most
the issue of the environment and its preservation. We are now
of which with no double hull.
aware that human development cannot be sustainable in the
The most serious danger for oceans and coasts is represented by
longer term the way it has been up until now. Advanced and less
oil - or other toxic substances - spilling in the sea. Decisions
advanced countries, though with different responsibilities and
recently taken by the International Maritime Organisation
guidelines, will necessarily have to take awareness of and cope
(IMO) will allow for the elimination of old and unsafe ships in
with a fundamental question. That is, natural resources and their
the future. But it will take time and we do not have all that time.
exploitation are limited by the absorption capacity of the ecosys-
The Mediterranean Sea is a close sea, with low seabed and under-
tem. Such a reality is particularly visible, sometimes in the most
water life already seriously damaged in many areas.
dramatic way, in the marine context.
The Italian Ministry of the Environment has therefore finalised
We are therefore very grateful to the Intergovernmental
an original instrument worth being mentioned here. It is a
Oceanographic Commission of UNESCO and to all Bodies and
Voluntary Agreement among Ministry of Environment, Ministry
Institutions involved in the study of this specific environmental
of Transport, Industrial Associations, Shipowners, Oil
aspect, such as the National Oceanic and Atmospheric
Companies and Environmental Organisations, that will acceler-
Administration of the United States, for convening this Global
ate the timetable currently foreseen for the unilateral
Conference. It is indeed the appropriate time for relevant author-
elimination (striking off) of ships with no double hull. Moreover,
ities and scientists to take full account of the achievements and
other measures aim at reducing the negative impact of possible
lessons so far drawn in this sector. Studies and discussions of
accidents. To provide an example, we shall for instance signifi-
these days in Paris will pave the way for more fruitful and active
cantly reduce dangerous traffic flows transiting via the Bocche di
participation at the World Summit that will take place in
Bonifacio and in the Venice Lagoon.
Johannesburg late next year.
I believe this is an interesting experience, that brings together
As a contribution to the general debate and in my capacity of
Government and private sector in unilateral and voluntary
representative of the Italian Government, I shall focus my pres-
undertakings. The aim of such undertakings is to try to involve
entation on the environmental trends and patterns experienced
business in the preservation of the environment, with no preju-
in the Mediterranean. It is a specific contribution. The geo-
dice to existing international conventions. Their legitimate
graphic position of Italy itself recommends this approach.
concerns, especially as regards the transportation of dangerous
Experts and scientists will have the opportunity to meet and
substances and the utilisation of the most adequate vessels, will
cooperate and exchange data on specific issues in the next
thus be taken on board as well.
months. This is why I shall limit myself to some general infor-
Some other problems are linked to the very intense tourism
mation.
activity taking place in the Mediterranean, to the negative
The Mediterranean Sea is surrounded by forty six thousand two
impact on coasts delivering from growing urbanisation, to inten-
hundred sixty seven kilometers of coasts, including islands, It
sive fishing, and other. During their stay in Paris, the members
accounts, with an area of two and a half million square kilome-
of the Italian Delegation will be happy to provide information
ters, for seven per cent of the global oceans surface, and its cycle
on our own experience and to exchange views on all these
of renewal of the water mass is of approximately eighty-one
aspects with experts and interested parties.
hundred years. It is like a huge bathtub, where the longest dis-
I wanted to draw your attention to the specific initiative of the
tance of a point to the coast is three hundred seventy kilometers,
Voluntary Agreement because I think the role of the State, and
but where more than fifty per cent of its surface is at less than
of all relevant regional or international organisations, though
one hundred kilometers from the closest shore. The
fundamental, is not exhaustive. At present, environmental prob-
Mediterranean area enjoys one of the largest tourism flows in
lems seriously affect ever-increasing sectors of our population.
the world and the majority of its population is concentrated
And this especially in the marine domain, where we need to
along the coastline. Urbanisation, industry, production and con-
engage more radically and more extensively.
sumption of energy, transport, tourism, agriculture, and fishing
I wish the participants to these proceedings all success in their
are among the factors with the utmost environmental impact.
endeavors and would like to express my thanks to UNESCO and
to France for hosting us here in Paris this week.
53
Ministerial Perspectives on Oceans and Coasts at Rio+10
54
Toward the 2002 World Summit on Sustainable Development, Johannesburg
THE AFRICAN PROCESS ON THE DEVELOPMENT AND
PROTECTION OF THE MARINE AND COASTAL
Republic of
ENVIRONMENT
Nigeria
Honorable Dr. Otuekong Imeh T. Okopido
Minister Of Environment (State), Federal Ministry Of Environment, Federal Republic Of Nigeria
Abstract
provide inputs for the upcoming WSSD in 2002. It is on this
premise that this paper on "The African Process" is discussed,
The Sub-Saharan African Coastal and Marine Environment embodies
based on the theme "Implementation of International Agreements on
32 countries with an aggregate coastline, which exceeds 12,000 kilo-
Oceans and Coasts and their Harmonization."
meters. The region faces a multitude of growing challenges at an
immense scale, which if not addressed adequately, could endanger the
The African Challenge
future stability of her development path. Towards intervention, the
Global perception of environmental matters has included some
PACSICOM and Cape Town Conferences were organised, and the two
very important issues concerning the impact of development
major undertakings were later coalesced into the African Process on the
activities on the African regional habitat. Events in the continent
Development and Protection of the Marine and Coastal Environment.
have created an urgent need to reconcile regional and national
While it focuses of the protection of the environment, the main thrust
interests and initiatives with the paradoxical issues of develop-
of the African Process is the creation of enabling condition for long-term
ment and environment, taking into account the factors that are
sustainable development. This paper assesses the status of the African
relevant towards achieving sustainable development in the con-
Process and identifies major new developments and key problem areas
tinent. In consideration of these and the need for positive and
requiring further attention.
timely action, priority attention must be directed at capacity
Introduction
strengthening towards addressing identified key challenges.
I consider it a privileged honour to be invited to participate in the
In recognition of the common nature of the priority environ-
panel on "Implementation of International Agreements on Oceans
mental problems, and of their underlying social and economic
and Coasts and their Harmonization," and to present a paper on
causes, as well as their transboundary implications and globalisa-
"The African Process".
tion undertones, early attempts were made by the sub-Saharan
nations to mitigate and reverse the spreading degradation of the
"The Global Conference on Oceans and Coasts at RIO + 10" takes
coastal and marine environment and their resources. The adop-
place at an important juncture for the African continent, and indeed
tion of the Abidjan Convention in 1981, and the Nairobi
the global environment, as we stand at the threshold of the new envi-
Convention in 1985, were a clear indication of the political and
ronment millennium, which provides novel challenges and
shared leadership roles of the sub-Saharan countries to cooperate
opportunities, but also presents new risks which require innova-
in efforts to counter the degradation of coastal and marine
tive solutions especially for nations with economies in transition.
resources.
It is pertinent to note that this Global Conference comes at the
heels of the United Nations General Assembly resolution to con-
Initial Action Plans
vene the World Summit on Sustainable Development (WSSD) in
The initial thrust of the follow-up action plans to the two con-
South Africa in 2002 to review the status of implementation of
ventions was on marine pollution control, a subject of pressing
the goals adopted at Rio in 1992, and to revitalize regional and
need requiring a harmonized regional policy and strategy.
global commitment to sustainable development. It also follows
However, experience soon showed that underdevelopment, or
the First Steering Group Meeting of the Global Environment
improper development and resources use, are fundamental to
Facility (GEF) Project on the Development and Protection of the
most of the environmental problems and that meaningful and
Coastal and Marine Environment in sub-Saharan Africa held in
lasting environmental protection is intrinsically linked with
November, 2000, at the Hague, Netherlands. At the meeting, a
socioeconomic development. Therefore, the cardinal thrust of
framework was developed for the identification and characteriza-
the action plans gradually shifted from a sectoral approach with
tion of environmental hot-spots and threatened sensitive areas,
focus on pollution control to integrated coastal zone planning
resource and amenities warranting special protection, in order to
and management as the focal tool through which solutions are
design a programme of intervention and solicit support for
being sought. In particular, the state of the sub-Saharan African
implementation in sub-Saharan African.
environment has come into much focus in contemporary times.
Today, this conference, which is stimulated by the NGO commu-
The State Of The Sub-Saharan African
nity and organised in collaboration with the public sector, has
Environment:
created a forum for environmental experts, legislators and the
active civil society to assess the progress achieved on the marine
The Sub-Saharan African coastal and marine environment
and coastal environments since the earth summit in 1992 and to
embodies 22 countries in West Africa and 10 in East Africa includ-
55
Ministerial Perspectives on Oceans and Coasts at Rio+10
ing the Island countries. The aggregate coastline of the 32 sub-
improvements in environmental quality and the protection of
Saharan states exceeds 12,000 kilometers. Sub-Saharan African
natural resources are ultimately contingent on improved
coastal ecosystems include barrier/lagoons, deltas, wetlands,
economic condition of the people inhabiting sub-Saharan
mangroves, coral reefs and seagrass meadows.
Africa.Recognition of this is essential if any long-term
Disregarding amenity values, the most important resources from
progress is to be made in improvement of socioeconomic
an economic standpoint are fisheries, oil and gas, and other min-
conditions in the region.
erals including sand, limestone and diamonds. Tourism also
(iii) The rate of industrial development in the region during the
makes an important contribution to the economy of the region.
previous four decades has been substantial, especially in
Sub-Saharan Africa is rapidly growing more complex. The region
West Africa.According to a UNDP/GEF 1993 report, about
today faces a multitude of new challenges at an immense scale,
60% of the industries in the Gulf of Guinea States are locat-
which if not addressed adequately, could endanger the future sta-
ed within the coastal zone.Therefore, as a result of migration
bility of her development path. During the United Nations
from the countryside, urban areas have grown at 4% annu-
Conference on Environment and Development in 1992, it was
ally during the last 30 years.Urban services are therefore,
made clear that development, environmental protection, and
unable to keep pace with urban growth resulting in inade-
civil and international peace are interdependent and indivisible.
quate provision of housing, roads, sanitation, clean water,
Reports such as ACOPS Conference on Cooperation for
waste disposal and social services.
Development and Protection of the Marine and Coastal
(iv) Growing population and the constant search for more land
Environment in Sub- Saharan Africa (December, 1998),and
for agriculture have resulted in the systematic destruction of
AMCEN'S Role in Sustaining Africa's Future (April 2000), provide
the region's forests and drainage of wetlands. Forests are also
a compelling assessment of the serious nature of the environ-
constantly under threat because of the demand for land to
mental threats that can hinder the sustainable development of
meet the fuelwood and construction needs of an ever-
the sub-Saharan region. UNEP's Global Environment Outlook
increasing population, and to satisfy the market for timber
2000 also indicates that as increased resource demands continue
primarily for export from the continent. About 60% of the
to cause the region's ecosystems to deteriorate, the result could be
original forest and mangrove habitats have already disap-
devastating for human development and the welfare of biotic
peared, and about 150,000 hectares continue to be lost
species.
annually. Deforestation is a major factor in increased soil
Following from these considerations, the need to evolve innova-
degradation and erosion. Also with the loss of these habitats,
tive approaches to address new requirements for development
wildlife populations have declined and the number of
and protection of the environment becomes more apparent, par-
threatened species is increasing at a worrisome rate.
ticularly in the face of the following unveiling crucial issues
(v) Oil and gas exploitation, although limited to a few countries
which reflect the state of the environment:
principally Nigeria, Gabon, Benin, Cameroon, Senegal and
(i)
The region is facing a multitude of problems threatening
Cote d'lvoire, is a resource of major economic importance to
natural resources, some stemming from existing resource
the region, accounting in the case of Nigeria for about 90%
exploitation practices. Development and environment-relat-
of her foreign exchange earnings. However, poor infrastruc-
ed problems are exacerbated by a lack of effective
tural development, low level investment portfolio, and
institutional control, which has encouraged indiscriminate
bureaucratic processes in project investment decisions have
exploitation of resources beyond the capability of the envi-
resulted in large-scale flaring of uncommitted natural gas in
ronment to self-recover.For example, the over-exploitation
petroleum - producing sub-Saharan African nations, thereby
of fishery stocks is caused mainly by poor regulation, inap-
turning a beneficial but depleting asset into a wasting
propriate quotas, selective harvesting of preferred species,
resource. The rate of gas flaring ranges from 68% in Nigeria
use of inappropriate gear and harvesting of small size classes
to over 97% for the Cameroon compared to about 2% of
and reproductive females.
gross production in non-OPEC countries. Gas flaring is asso-
ciated with global climate change and the related negative
(ii) Coastal areas are the most densely inhabited and industrial-
effects of global warming, deforestation, flooding and inun-
ized parts of almost every sub-Saharan country with
dation of coastal lands, and acid rain. Furthermore, arising
approximately 50% of the population residing within 1 00
from extreme events associated with climate change phe-
km of the coastline.The coastal areas are also the location of
nomena, coastal areas are forced to adapt to the resulting
the main import and export centres and provide food sup-
environmental changes and therefore, saddled with the
plies for the landlocked countries of Africa.Essentially, all of
enormous costs of addressing problems associated with
the sub-Saharan countries are under increasing economic
more frequent and intense destructive weather patterns, ris-
stress derived from global and regional economic driving
ing sea levels, salt water intrusion, and fundamental changes
forces.Under these circumstances, the limited resources of
in agricultural system and marine-based resource habitats
many countries are forcing the assignment of relatively low
(Dabeiko and Simmons 1997).
priorities to the critical issues of environmental protection
and the conservation of natural resources.Significant
(vi) Although oil and gas form the most import mineral reserves
in the coastal zone, other minerals including hematite, mag-
56
Toward the 2002 World Summit on Sustainable Development, Johannesburg
netite, limestone, sand and diamonds are also exploited.
Directly deriving from these issues, the state of the African envi-
However, unplanned and uncontrolled rate of mineral
ronment, and in particular sub-Saharan Africa, has come into
exploitation in the region are causing widespread degrada-
much focus in contemporary times.
tion of coastal areas and silting of rivers with concomitant
The African Process
effects on living resources.
As at today, the protection of the coastal and marine environ-
(vii) Touring is a growing industry in some sub-Saharan coun-
ment of sub-Saharan Africa is regulated by two UNEP's regional
tries. The natural beauty of the coastline, combined with
conventions:
favourable climatic conditions, results in coastal tourism
being an important foreign exchange earner for such coun-
The Nairobi Convention which covers the area from Somalia to
tries as Gambia, Senegal, Mauritius, Tanzania and Namibia.
Mozambique, including the Island states.
In the Seychelles, tourism accounts for 18.5% of the GDP
The Abidjan Convention which extends to the Atlantic side,
and more than 70% of foreign exchange earnings. In South
starting from Mauritania, and down the coast to Namibia.
Africa, tourism generates more than US 1.2 billion dollars
However, both of these instruments were negotiated in the early
annually with over 20 million international and domestic
1980s and for many years, very little action-based progress has
visitors to coastal areas each year.
been made. It was for this reason that the Government of
However, poorly planned coastal development is leading to
Mozambique,, together with UNESCO and the Government of
increased pollution of coastal areas of the region. The degraded
Finland organized the Pan-African Conference on Sustainable
quality of coastal waters and coastal landscapes seriously threat-
Integrated Coastal Management (PACSICOM) in Maputo, in July,
ens some traditional tourist destinations and is becoming an
1998. This was followed by the Cape Town Conference, which
impediment to further tourism development. Coastal develop-
was organised by the Government of South Africa acting with
ment is also the dominant cause of the accelerating loss of many
UNEP and ACOPS in November 1998. These two major undertak-
natural ecosystems and wetland habitats with significant but
ings were coalesced into what is now called the "African Process on
often unrecognised amenity values.
Development and Protection of the Marine And Coastal Environment,"
(viii)The marine resources of Africa, including fish, coral reefs and
or the AFRICAN PROCESS.
marine mammals and some reptiles are declining at alarm-
While it focuses on the protection of the environment, the main
ing rates, and the major challenges to them come from
thrust of the African Process is the creation of enabling condition
unscrupulous fishing, shell collection, tourism, coastal silt-
for long-term sustainable development. The importance of this
ing and pollution. Currently, Africa's marine resources are
concept to Africa's socio-political scenario is that it uplifts protec-
not adequately protected under the Abidjan and Nairobi
tion of the environment to the level of political priority through
Conventions of 1981 and 1985, respectively, because there
its direct linkage with the key socioeconomic issues of the envi-
has been a marked downward trend in the implementation
ronment, namely:
of both conventions, even as supplemented by the Maputo
· Poverty alleviation
and Cape Town Declarations.
· Job creation
(ix) The total salt-water fish harvested by countries of the region
was 3.9 million tonnes in 1994 but this figure excludes the
· Improvement in health
catch of foreign fleets that is not landed in the region. FAO
· Enhancement of educational standards
has estimated the total potential fisheries yield as 7.8 million
· Equal opportunity for all
tonnes per year. The further development of aquaculture is
limited by deteriorating water quality, destruction of critical
At the summit of the Organization of African Unity (OAU) which
habitant for recruitment of stock and the lack of financial
held in July 1999 at Algiers, the Heads of State considered the
and human resources.
report submitted by the Government of South Africa on the
result of the Maputo and the Cape Town Conferences and
These various trends and problems reflect the increasing stress on
endorsed the Cape Town Declaration and adopted a resolution
coastal and marine areas of the sub-Saharan region. Land degra-
recognizing the importance of the Abidjan and Nairobi
dation, deforestation, loss of biodiversity, loss of wetlands and
Conventions as framework for action. In addition to the action
threats to fisheries and other living resources, and the pollution
plans of the Abidjan and Nairobi Conventions, there are a num-
of coastal waters with sewage and industrial effluents are contin-
ber of sub-regional programmes and arrangements, most of them
uing. Capacity constraints limit access to information for many
in the form of projects with specific limited goals and duration.
in the continent, and therefore knowledge of critical issues
Among those that deserve contemporary mention at this confer-
involving the need to take action to conserve, rehabilitate and
ence are:
protect the sub-Saharan African environment is often lacking.
Thus, the low level development, or lack of institutional capaci-
(i)
GEF- supported projects on Water Pollution Control and
ty, adequate infrastructure and financial resources continue to
Biodiversity Conservation in the Gulf of Guinea Large
frustrate the reversal of fortunes in the region.
Marine Ecosystem. This will be further discussed.
(ii) UNESCO'S COMAR project on management of African
coasts and marine areas.
57
Ministerial Perspectives on Oceans and Coasts at Rio+10
(iii) Eastern African Coastal Area Management (SEACAM)
On the basis of the reports of the eleven national teams, a
Programme and the associated Marine Science Programme
Regional Comparative Analysis is being developed which will
for Eastern Africa.
enable this initiative to become truly sub-Saharan in scope.
(iv) IUCN's Regional Programme in Eastern Africa focussing on
The First Meeting of the WGIPA was held in December 2000, in
protection of coral reefs, conservation of turtles and marine
Paris. A recent meeting of WGIPA was held in September, 2001,
areas requiring special projection.
at Cape Town, South Africa, to provide an overview on the
(v) IMO's regional and country programmes promoting inte-
advancement of the second phase of this GEF project, which
grated waste management and response capabilities to oil
deals with the development of regional and national pro-
pollution.
grammes of intervention. It is expected that the output of this
project will help the development of national project proposals
(vi) European Union's Integrated Fisheries Management Project
to be presented at the Partnership Conference in South Africa in
in Eastern Africa.
2002, preparatory to the World Summit on Sustainable
(vii) European Union's Regional Environment programme of the
Development.
Indian Ocean Commission (IOC).
Objectives Of The GEFMSP Sub-Saharan
(viii)GEF-supported World Bank project on oil spill contingency
Africa Project
planning in Eastern African Countries.
The overall goal of this Project is to assist sub-Saharan African
(ix) Fisheries Surveillance Project in selected Western African
countries in achieving sustainable management of their coastal
Countries with support of the World Bank and the
and marine environment and resources. The main objectives of
Government of Luxembourg.
the project are as follows:
(x) CIDA- supported Support Programme for Fisheries
· to identify hot spots, that is, areas, sites or living resources of
Management in West Africa in the framework of the Sub-
regional and global significance that are suffering measurable
regional Fisheries Commission.
degradation;
The Global Environment Facility Medium Size
· to determine the sources/causes of this degradation and the
Project (GEF-MSP)
associated scales of impact (national, regional and global) to
As a follow-up to the Africa Process, and through the joint efforts
provide a basis for calculating incrementality at regional and
of ACOPS and the Intergovernmental Oceanographic
extra-regional scales;
Commission (IOC) of UNESCO, a GEF Medium Size Project (MSP)
· to identify areas, sites and resource of regional significance that,
on Development and Protection of the Coastal and Marine
although not currently degraded, are threatened with future
Environment in Sub-Saharan Africa was launched. Eleven African
degradation either because of the sensitivity of the receptor or
countries are participating in the project through a Working
the magnitude of the activity posing the threat;
Group on Integrated Problem Analysis (WGIPA).
· to determine, through root-cause analysis, the fundamental
The Initial membership of the Working Group, which reports to
causes of the damage or threat posed;
the OAU, comprised:
· to design a programme of interventions, including demonstra-
· South Africa
tion projects and pre-investment studies, addressing problems
· Mozambique
of regional priority; and
· Kenya
· to present the programme of interventions at the Partnership
Conference for the Development and Protection of the Coastal
· Seychelles
and Marine Environment in sub-Saharan Africa, in order to
· Ghana
solicit support for the implementation of the programme.
· Cote d'lvoire
The programme is envisaged as a range of interlinked regionally
· Nigeria
coordinated country-driven activities focusing on the priorities
established in the Project. The subsequent interventions to be
Today, I wish to pay glowing tribute to the most successful devel-
supported via commitments made during the Partnership
opment of the GEF-MSP. Its solid implementation has led both
Conference will be directed towards:
UNEP and the GPA Coordinating Office to provide resources for
expanding it to include additional four countries, namely:
· ameliorating the contemporary degradation of areas, resources
and amenities that have been assigned priority at a regional
· The Gambia
level. Initial emphasis will be devoted to pre-investment studies
· Mauritius
designed to determine the efficacy and value of larger-scale
· Senegal
interventions for which funding can then be attracted; and
· Tanzania
· increasing the margin of safety for the protection of areas,
resources and amenities threatened with future degradation
because of continued or envisaged human activities in sub-
58
Toward the 2002 World Summit on Sustainable Development, Johannesburg
Saharan Africa. The application of integrated coastal manage-
already observes, and takes part in the work of the Preparatory
ment including river catchment basins in demonstration
Committee on a rotational basis.
projects will be considered as a unifying approach to develop-
Expected Outcomes Of The GEFMSP Sub-Saharan
ing the mechanisms for such increased protection.
Africa Project
Programme Of Intervention
The Project will provide a foundation both for the future ration-
A programme of intervention will be prepared. These interven-
al allocation of limited national resources of the developing
tions will address specific issues of regional priority such as:
countries within the sub-Saharan region and for securing support
management of fisheries resources; control of coastal erosion;
from external partners for priority actions. Rational prioritisation
integrated management of river basins and coastal zones, includ-
is the sine qua non for optimising the effectiveness of both reme-
ing their living resources; pollution control; protection and
dial and preventative actions. An essential element of this project
conservation of freshwater resources; development of economic,
is therefore the convening, with external assistance, of a
legal and administrative instruments stimulating environmental
Partnership Conference to attract partners and co-financing for
protection and sustainable use of resources; and adaptation to or
priority actions. This course of action was agreed and endorsed by
mitigation of the impacts associated with expected climate
both African Ministers and external partners at the Cape Town
change.
Conference.
Outputs of these activities will be used as the basic inputs for the
Implementation of the project will therefore, lead to the follow-
Partnership Conference that will be expected to review, prioritise
ing outcomes that would not be otherwise achieved:
and endorse, as deemed appropriate, the proposals for:
(i)
Recommendations to national authorities and international
a)
preinvestment studies in areas, sites or resources identified as
community on measures and interventions for the develop-
regionally significant "environmental hot spots",
ment and protection of the marine and coastal environment
b)
programmes for the protection of regionally significant envi-
in sub-Saharan Africa in order to deal with the following
ronmentally sensitive areas, sites or resources threatened by
problems and issues:
anthropogenic activities and warranting additional protec-
· Control or elimination of environmental hot-spots in coastal
tive measures; and
and marine regions of sub-Saharan Africa;
c)
implementation of regional projects proposed for direct
· Protection of threatened sensitive areas, resources and ameni-
implementation through partnership arrangements.
ties warranting special protection;
ACOPS has been asked, as a facilitator of the Partnership
· Concrete project proposals serving as the basis for bilateral or
Conference, to liase with the existing GEF Projects. The need for
multilateral projects to be implemented in partnership between
co-ordination has been emphasised at the most recent meetings
African and non-African countries and institutions ;
of COPs of the Nairobi Convention (Mauritius, Oct./Nov. 1999)
(ii) Assessment of the root-causes of the environmental prob-
and the Abidjan Convention (March 2000) and also at the meet-
lems in the marine and coastal regions of sub-Saharan Africa;
ing of AMCEN (April 2000). No efforts will be spared to ensure
full linkage between this project and regional GEF programmes in
(iii) Adoption of the list of internationally agreed priority hot-
Africa and also those programmes funded and steered by other
spots and sensitive areas in the marine and coastal regions of
agencies and Governments. This will ensure that inputs for this
sub-Saharan Africa; and
project are passed on to other programmes, thus preventing the
(iv) Adoption of the priority listing and securing funding for
possibility of overlap.
agreed actions as per the findings of the project.
Specific And General Stakeholder Involvement
Directly deriving from the above approach, the gaps between
existing GEF projects are generally known on the basis of assess-
The principal stakeholders in the execution of this project are
ments, which are typically carried out. In fact, the ongoing
Governments, at a level which involves the full cabinet support.
follow-up projects for some of the regional GEF projects specifi-
Concrete involvement of Government will be ensured through
cally incorporated assessment workshops to identify gaps
regular meetings of the Preparatory Committee at which they are
emanating from the original projects so that their proper follow-
represented at the ministerial level. In view of the fact that
up is ensured. A regional case example of such project is the Gulf
AMCEN itself is a member of the Preparatory Committee, a good
Of Guinea Large Marine Ecosystem Project.
liaison is ensured with all African Governments. A further control
mechanism is the OAU itself to which the Preparatory
Regional Case Example: The Gulf Of Guinea
Committee reports in accordance with terms agreed in the Cape
Large Marine Ecosystem Project
Town Declaration.
The GEF Operating Strategy calls for the development and imple-
The ministers attending the Cape Town Conference have made a
mentation of projects in the International Waters Programme
major step in recognising the need to involve the civil society and
that can achieve global benefits. The Guinea Current Large
asked for its representative to be included on the Preparatory
Marine Ecosystem (GCLME) project is an ecosystem -based effort
Committee. This process has started and a roster of several NGOs
to energize a paradigm and resource sustainability. The overall
59
Ministerial Perspectives on Oceans and Coasts at Rio+10
objective is to shift from short-term sector-by-sector driven sus-
At this juncture, permit me to share with you my vision of what
taining the production potential for ecosystem-wide goods
the Partnership Conference my accomplish. This conference is
objectives to a long-term perspective, and from managing com-
designed to achieve the following aims:
modities to management and services. The GEF Project Pilot
· To become a major boost for the World Summit on Sustainable
Phase comprised a six-country Gulf of Guinea Large Marine
Development in terms of allowing African countries to demon-
Ecosystem (GOG-LME) project.
strate their resolve in dealing with sustainable development,
One of the key outcomes of activities carried out under this proj-
and also in providing an opportunity for external partners to
ect will be the preparation of the proposals for intervention and
provide their goodwill in assisting one of the poorest regions of
securing of funding for agreed actions as per the findings of the
the world to achieve this important aim.
project. In turn, a concrete programme of interventions will
· To give a large incentive to the development of sub-regional
evolve, serving as the basis for bilateral or multilateral agree-
and other regional projects under the umbrella of internation-
ments to be implemented in partnership between African and
al waters in GEF.
non-African countries and intervention agencies. A major chal-
lenge in the project is to ensure that the resources and external
· To provide useful input into a further stage of the internation-
assistance provided to sub-regions, including those to the
al process, namely the Euro-African Process, which was set up
Nairobi and Abidjan Conventions, are focussed on priority issues
as a permanent institution following the success of the Cairo
whose solution offers the greatest net benefits to the region.
Summit, held in April 2000.
This, in turn, requires that assessments of damage and impedi-
· To provide benchmarks for bilateral co-operation.
ments to environments be holistic and consider all causes of
· To serve as an important tool for intra-Africa co-operation and,
degradation, in order to ensure the implementation of effective
as such assist the peace process in our troubled continent.
protection measures.
· To strengthen the regional conventions in sub-Saharan Africa.
A planned new programme is to extend the present Gulf of
Guinea project from 6 to 16 countries, all of which border on the
Preparatory Committee For The Partnership
Guinea Current LME. The new project would assist these 16
Conference
countries in making changes with a view to ensuring that human
The Preparatory Committee for the Partnership Conference was
activities are sustainably conducted in the different sectors. A key
established by the Cape Town Conference. At the 37th Summit
objective is to ensure that the GCLME and its multi-country
of the Organization of African Unity (OAU) in July 2001, there
drainage basins can sustainably support the socioeconomic
was a resolution of all African Heads of State, which among other
development of the region in a manner that is environmentally
issues:
realistic and does not go beyond the capacity of the environment
to absorb. The project's goal is to build the capacity of Guinea
· endorsed the generous offer of the Government of Nigeria in its
Current countries to work jointly and in concert with other
capacity as the Presidency of AMCEN, to convene not later
nations, regions and GEF projects in West Africa to define and
than February 2002, a high level preparatory meeting of the
address transboundary priority environmental issues within the
Super Prep-Com of the Partnership Conference;
framework of their existing responsibilities under the Abidjan
· endorsed the proposal to convene the Partnership Conference
Convention and its Regional Seas Programme.
in conjunction with the World Summit on Sustainable
Development (WSSD) at the level of Heads of State, and called
Future Perspective: The Partnership Conference
upon the African partners to be present at the highest level;
On The African Process:
· invited all African States to support and actively participate in
The Partnership Conference on the African Process for the
the implementation of the African Process, and to liaise
Development and Protection of the Coastal and Marine
through the Preparatory Committee, on preparation of the
Environmental in sub-Saharan Africa is planned for 2002. The
Partnership Conference.
concept of the Conference was conceived by the Ministerial seg-
ment of the Cape Town Conference and I am proud, as a
The Preparatory Committee has adopted a detailed work plan
Vice-President, to note that ACOPS has played an instrumental
and timetable of activities that would lead to a successful
role in assisting African countries, including my own, in the
Partnership Conference.
preparation of this important event. The Partnership Conference
The Super Prep-Com meeting for the Partnership Conference is
should bring together all stakeholders (representatives from
slated for February, 2002, in Abuja, Nigeria, and will be chaired by
African and non-African countries, private sector, intergovern-
the President of the Federal Republic of Nigeria, His Excellency,
mental and international organisations, non-governmental
Chief Olusegun Obasanjo.
organisations and other partners) for the purpose of promoting
The Super Prep-Com meeting will put final touches to the pro-
the development and protection of the marine and coastal envi-
grammes and projects identified through the MSP project and
ronment in sub-Saharan Africa.
will also finalise strategies for the hosting of the Partnership
Conference in Cape Town. The importance of the Super Prep-
Com meeting can not be over emphasised. Hence the President
60
Toward the 2002 World Summit on Sustainable Development, Johannesburg
of the Federal Republic of Nigeria has approved the formation of
In fact, the UK Government already announced in the Cape
the Preparatory Committee for the hosting of the Super Pre-Com
Town Conference that in view of solidarity displayed by African
which will put in place all local and International arrangements
countries, it would provide over 30 million dollars towards
for the hosting of the meeting in Abuja. With this and for once,
responsible code of fisheries projects in West and Central Africa.
Africa can start to put in place programmes that will ensure sus-
In other words, one of the principal factors which discouraged
tainable management of our coastal and marine resources.
donors to invest major resources towards environmental protec-
tion in Africa in the past, was their perception that there was
Nigeria's Position In The African Process
insufficient commitment by African Governments to drive this
The project of the African Process is accorded high priority in
process. It will be noted that the Partnership Conference will
Nigeria's environmental programme. The nation espouses the
serve effectively as a donor meeting which will review the
African Process, especially since it transcends a purely environ-
Programme of Intervention. It should be borne in mind that this
mental agenda, and also promotes sustainable economic
whole activity is very much action driven and hopes to ensure
development. Nigeria has played an effective role in the African
long term support to provide remedial measures to deal with the
Process, and actively participated at the Cape Town Conference
problems which will be identified in the course of other relevant
in November 1998. Furthermore, since we assumed the
projects in the region.
Presidency of AMCEN in April 2000, Nigeria joined the
Recommendations For Further Action:
Preparatory Committee as a representative of the entire African
continent. Nigeria is one of the countries in which the assess-
From the foregoing, the following recommendations are made in
ment of root cause analysis, identification and prioritisation of
line with critical issues that require the further attention of Africa
environmental hot spots and assessment of sensitive areas is
and the international community within the framework for sus-
being carried out, in preparation for the Partnership Conference.
tainable development vis-a-vis the African Process:
As Minister for Environment, I have committed Nigeria's full sup-
· data collection, analysis, collation and storage, and the mainte-
port to the Chair of the Preparatory Committee to playing a key
nance and accessibility of regional data inventories;
role in mobilising the support of all countries on the African con-
· food security towards the alleviation of poverty; sustainable,
tinent through AMCEN, to the African Process. As a further plus
coordinated training programmes;
for the environment, it is also a happy coincidence that the
Chairmanship of the Preparatory Committee is held by another
· strengthening of the two existing conventions, i.e. Nairobi and
Vice-President of ACOPS, the Honourable Rejoice Mabudafhasi,
Abidjan; and
Deputy Minister of Environmental Affairs and Tourism of South
· expanding the scope of current conventions to wider than
Africa, who shall forge a common front of all coastal countries in
coastal and marine matters.
sub-Saharan Africa. This process, as well as that of GEF and its
It is also pertinent to note that in order to achieve the above set
constituent organisations, namely the United Nations
goals, it will be necessary to implement the following action
Environmental Programme (UNEP), the United Nations
plans:
Development Programme (UNDP) and the World Bank, is likely
to come up with a string of other projects relating to waters and
· build the political will and visionary leadership relating to sus-
totalling some 300 million U.S. dollars.
tainable development;
· build networks and partnerships in the region and with
Sustainability Of The African Process
Overseas Organisations to ensure capacity building and main-
The major risk in working on environmental projects in Africa is
tenance;
that poverty is so endemic and acute, and political instability and
· avoid the brain drain, recognise what we have and remunerate
conflicts so widespread, that environmental issues are accorded
accordingly;
in reality a very low priority indeed. Whilst all these factors still
prevail, it is suggested that activities leading to this Project have
· use experts from the region in preference to overseas experts as
built an unprecedented degree of political support and consen-
far as possible;
sus, culminating in an endorsement by the OAU Heads of State
· convince finance ministries and others in government about
Summit (July 1999, Algiers and July 2001, Lusaka).
the importance of the environment;
The issue of sustainability is more complex. However, leaders of
· capitalise on existing success stories; and
the Preparatory Committee for the Partnership Conference have
· develop a workable, different economic model to facilitate
made it amply clear that if Africa wishes to rely on a continuous
socioeconomic upliftment within sustainable environmental
support by external partners, a lot of preparatory work has to be
settings.
done. Some Governments have already earmarked national
resources in order to ensure that this process works. It is therefore
In addition, the following related priority issues require further
hoped that the willingness of some African countries to regard
attention for timely resolution:
environment as an economic resource would encourage all
· securing sustainable funding streams, through partnerships
African leaders to follow the path of sustainable support, and that
between private and public sector stakeholders in the region
this in turn will stimulate partners to provide major investments.
and with the developed world;
61
Ministerial Perspectives on Oceans and Coasts at Rio+10
· by whom and how the framework for sustainable development
(iii) Protection of the sea safeguards economic security, especial-
should be developed and maintained;
ly by enhancing sustainable eco-tourism and thus
· what mechanisms would be used to coordinate between cur-
strengthening the economic security of African nations.
rent initiatives; and
(iv) Prevention of unacceptable environmental degradation is a
· the geographic extent of the framework agreement, that is,
key ingredient to social, and therefore, political stability.
African or sub-Saharan, etc.
(v) Through firm and concrete commitments to the African
Process, African countries display a harmonized approached
Summary And Conclusion
to the identification of key problems and characterizing
The challenge facing the African environment is immense. It
trans-boundary issues.
therefore requires the cooperative efforts and timely attention of
In conclusion, a successful African Process will be a helpful tool
all stakeholders to manage the process of halting and reversing its
for foreign policy, an amalgam which binds countries together.
degradation. We must trail this route if we are to ensure that its
Africa that cares for its strategic resources is a more prosperous
sustainable development and preservation will be a reality in our
Africa, and a more politically stable Africa. This enables the con-
time.
tinent to enhance the role of its private sector and also make the
Directly deriving from this clarion call, the gravity of the envi-
continent a more valuable partner for external stakeholders. In
ronmental challenges facing us is poignantly underscored by the
addition, efforts towards the protection of the region's coastal
compelling need to pool our common efforts to implement the
and marine ecosystems, and indeed the African environment,
following action-based activities, that is:
can also assist in strengthening of the peace process in various
(i)
to preserve Africa's rich biodiversity, habitats and ecosystem
African countries. Therefore, the African Process must be made a
through the formulation and implementation of policies
reality in our time. Thank you.
and enforcement of laws designed to protect the regional
References
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hoods of the ever-expanding population.
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London, UK, 432P.
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national jurisdiction of coastal States.
ACOPS, 2000: ACOPS' Regional Programmes. Advisory
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(iii) to support AMCEN as the major intergovernmental body
working on the African environment, so that it may realise
AMCEN, 2000: Proposals for Policy and Institutional Change:
its full potential as a regional environmental mechanism
AMCEN's Role in Sustaining Africa's Future (Vol. 1). 8 th
capable of providing guidance on policy, and direction and
Session of the Conference, Abuja, Nigeria 3-6 April, 2000.
coordination towards implementation. Collectively, African
AMCEN Secretariat, Nairobi, Kenya.
nations under the umbrella of AMCEN, should now focus
Austin, A et al, 1999. How much Sustainable Development can
on identifying key interventions and possible initiatives to
be expected from the Clean Development Mechanism?
help implement the clear goals and priorities that were the
Climate Notes. World Resource Institute Washington D.C.
foundation basis for the regional body, to bring about con-
Dabelko, G.O. and Simmons, P.J., 1997. Environment and
crete results in order to ensure that the benefits of shared
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there is sufficient commitment by African Governments to
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drive the African Process, and to undertake a range of sub-
stantive responsibilities for a number of thematic and
Obasanjo, O., 2000: Opening Address by the President, C-in-C,
cross-sectional areas in Agenda 21, as they affect the conti-
Federal Republic of the Nigeria, at the African Forest Forum
nent at the upcoming World Summit on Sustainable
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The benefits derivable from a successful African Process are mon-
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Callaghan Lecture 2001. ACOPS, London, UK 22p
(i)
The protection of the coastal belt and the oceans is a prime
laboratory for testing the linkage between the protection of
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The Deadline. Centre for Petroleum Information, Lagos
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tecting fisheries assists in the alleviation of poverty and
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improving the health of the population.
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organised by the Royal Ministry of Foreign Affairs, Norway,
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UNEP, 2000: UNEP In The Region - ROA-The Regional Office
for Africa. UNEP, Division of Regional Cooperation,
Nairobi, Kenya.
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Kenya.
UNEP, 2000: Report of the Executive Director. UNEP/GC. 21/2.
UNEP, Nairobi, Kenya. 44p
UNEP, 2000: Policy Statement of the Executive Director.
UNEP/GC. 21/8. UNEP, Nairobi, Kenya. 14p.
UNEP/ACOPS, 2000. Report of the First Meeting of the Steering
Gsroup. GEF-MSP Sub-Saharan Africa Project (GF) 6010-
0016). ACOPS, London, 10000.
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AMCEN 8" Session, 3-6 April, 2000, Abuja, Nigeria.
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of the Working Group on Integrated Problem Analysis
(WGIPA-1). ACOPS/WGIPA, ACOPS. London, 124 pp.
63
Ministerial Perspectives on Oceans and Coasts at Rio+10
64
Toward the 2002 World Summit on Sustainable Development, Johannesburg
CLOSING STATEMENT TO PANEL 1:
MINISTERIAL PERSPECTIVES TO OCEANS AND
COASTS AT RIO+10
Republic
Honorable Vice Minister Seoung-Yong Hong
of Korea.
Ministry of Maritime Affairs and Fisheries, Republic of Korea
Excellencies, Ladies and Gentlemen,
Ocean Governance
I'd like to thank all the panel speakers for their excellent presen-
Ocean governance is the sum of the many ways, individuals and
tations. Their perspectives, these valuable inputs of the panelists,
institutions, public and private, manage their common affairs in
will be the critical thrusts and edification for the ongoing devel-
marine domain.The creation of adequate ocean governance
opment of ocean governance.
mechanisms is complicated because it must be more inclusive
At this Paris juncture before the World Summit next year, we can
and participatory than in the past. The ocean governance must
check if there is any deviation from our navigation and reset our
be flexible enough to respond to new problems and new under-
charts. We can expedite the remaining course by benchmarking
standing of older ones. A multi-faceted strategy for ocean
others' success story which avoiding similar perils that may lurk
governance, therefore, is required.
in our course.
Long-Term Strategic Plan
As I suggested in the beginning of this panel, I would like to
The strategic terrain is now simply different from what it was
summarize the dignitaries' presentation in accordance with
even five years ago. With the recognition of sustainable devel-
three categories; vision, ocean governance and the strategic
opment, long-term plans of nations are becoming more and
action plan. I would like to deliver only the key words.
more interwoven locally, regionally, nationally and globally into
Establishment Of New Vision
a seamless net of causes and effects.
We have consensus on the fact that there should be balance, cau-
Ladies and Gentlemen, Paul Stolz defines Adversity Quotient
tion, and especially vision for the sustainable development of
(AQ) as the ability to change obstacles into opportunities. I have
oceans and coasts. Our common future will depend on the
the opinion that the countries with high level of AQ will nor-
extent to which people and leaders around the world develop
mally be the developed ones. Things are the same in the matter
the vision over better world and strategies, and the will to
of ocean governance. If we can exert high level of AQ, we can get
achieve it.
over the obstacles, and anchor at another land of opportunities
in ocean governance.
The world needs a new vision that can galvanize people every-
where to achieve high levels of cooperation in areas of common
Before closing this panel, I once again express my deepest grati-
concern and shared destiny.
tude to all the panel speakers, the audience and, the last but not
the least, the organizing committee for having brought us to this
wonderful conference. I wish all of you the best success in the
remaining panels and pleasant stay in this beautiful Paris.
65
Ministerial Perspectives on Oceans and Coasts at Rio+10
66
Toward the 2002 World Summit on Sustainable Development, Johannesburg
NATIONAL OCEANS POLICY AND PLANNING AND
MANAGEMENT OF EXCLUSIVE ECONOMIC ZONES
Matthew King
Canada
Assistant Deputy Minister, Department of Fisheries and Oceans, Canada
I am pleased to have the opportunity to participate on this panel
· The second was to commit to a governance regime that fully
today and discuss with you the approach that Canada has taken
involved coastal communities in the resource planning process.
in the development of a national oceans policy.
Responding to these challenges, meant re-examining how we, in
Over the next few minutes, I would like to:
government, do business.
· review some of the main aspects of Canada's Oceans Act, that
Since 1999, we have employed a policy development approach
established the policy priorities for a national oceans strategy;
that focussed on "learning by doing" in the implementation of the
· briefly describe our approach to policy development;
Oceans Act.
· outline the main concepts of Canada's Oceans Strategy; and
Over this period, we have invested $ 60 million in the policy
finally,
development process, primarily to launch pilot projects on all
three of Canada's coasts and to build the requisite capacity to
· discuss a few of the lessons that we have learned along the way.
implement the Act.
As Minister Dhaliwal noted in his opening remarks, the Oceans Act
Because of the governance challenges, we felt it necessary to get
set out a national vision for managing the relationship between
out into communities to support a face-to-face approach to policy
our land and our three oceans in a fully integrated and sustainable
development. Accordingly, my department has established oceans
way.
offices in each of the six regions of the country and we have built
In the first instance, the Oceans Act confirms in domestic legisla-
our internal capacity to engage with oceans stakeholders.
tion Canada's international roles and responsibilities in the
We now have 120 staff working on these issues, and we are aim-
territorial sea, the contiguous zone and the exclusive economic
ing to double the complement in the coming year.
zone.
We have now launched over 20 Integrated Management pilot
Under the Oceans Act the lead responsibility for implementing the
projects and identified 13 Marine Protected Areas. Through these
Integrated Management of oceans resources is assigned to one
projects we worked with a wide range of partners to test how the
Minister, the Minister of Fisheries and Oceans.
Oceans Act principles and programs can be applied in real time and
However, the Act respects the mandates and jurisdictions of other
real life situations.
federal Ministers and other levels of government. As such, it
As well, Minister Dhaliwal noted on Monday that Canada has fol-
requires the Minister to work with provincial, territorial and local
lowed up on the Global Programme of Action on the Protection
governments, First Nations and Canadians in the development of
of the Marine Environment from Land- based activities with a
the Oceans Strategy.
National Programme of Action that involves federal, provincial
The Act is very prescriptive in that it:
and territorial governments in Canada.
· States that any Ocean Strategy must be based on the principles
We also have in place key structures to ensure that we are engag-
of Sustainable Development, the Precautionary Approach and
ing and informing our partners in policy development. These
Integrated Management.
include a Minister's Advisory Council on Oceans and a federal -
· It identifies the ecosystem approach to conservation as being
provincial -territorial oceans working group that Minister
fundamental to maintaining biological diversity and productiv-
Dhaliwal announced this year, and an Oceans Management
ity in the marine environment; and
Research Network to link with and engage the academic commu-
nity and to integrate natural science and social science research.
· It provides a legislative basis for three key programs: Marine
Protected Areas, Marine Environmental Quality and Integrated
The Government of Canada will, in the coming months, formal-
Management Planning.
ly release Canada's Oceans Strategy. The Strategy itself will
formally constitute Canada's policy statement on oceans issues,
From a policy development perspective, the Act set out two main
and is based on the experience generated by the pilot initiatives.
governance challenges:
The Strategy will be accompanied by detailed policy and opera-
· The first was that of moving from a sector-specific, Department
tional frameworks for the three key programs set out in the
by Department management regime toward integrated manage-
Oceans Act:
ment of oceans resources based on ecosystem considerations
which cross Ministerial boundaries,
67
Ministerial Perspectives on Oceans and Coasts at Rio+10
The Marine Protected Areas operational framework will set out the
For Canada, implementing the Oceans Act is about behavioural
means by which MPAs will be established in Canada, including
and cultural change. And you need to begin the change process in
the strong role communities will play the process.
a way that makes sense to all stakeholders. We found it helpful to
The Integrated Management Operational Framework is the cor-
start the policy development process with those aspects of the
nerstone of our oceans strategy. It has been designed to promote
oceans agenda that were the most readily understood and appre-
collaboration, address user conflict issues and develop the move-
ciated by the largest number of people.
ment toward ecosystem-based science necessary for decision
In our case, it was Marine Protected Areas. We found that once
making.
various groups had come together and participated in the gover-
And finally, Marine Environmental Quality: We are now complet-
nance structures to establish and maintain MPAs, the leap to
ing the development of guidelines to provide guidance to oceans
setting up Integrated Management planning bodies became a log-
managers to ensure that ocean related activities do not compro-
ical next step.
mise ecosystem structure and function.
However, this type of change does not happen overnight. Ocean
Currently, 23 federal Ministers are independently pursuing
users tend to see any change in the status quo in a Zero-sum fash-
oceans-related initiatives. As I noted, this presents a significant
ion. Asking groups with historically divergent mandates and
governance challenge.
opinions to accept a common policy approach requires a signifi-
cant investment in relationship building.
As such, the Oceans Strategy will also include a federal action plan
that bring together all federal oceans-related initiatives under a
Through our Pilot Projects, we found that the relationships that
common policy framework in three theme areas:
are needed to make integrated management work, develop in
their own time. To rush the relationship-building process is both
· understanding and protecting the marine environment;
artificial and counter-productive.
· supporting sustainable economic opportunities; and
Finally, communications may well be the key to success.
· international leadership
Government representatives need to be committed to bringing
This will help to ensure that future oceans related policy and pro-
groups together. Every group involved in the IM process might
grams are developed with a front-end consideration of integrated
feel uncomfortable at first. As such, there is a need to constantly
management and ecosystem-wide impacts.
work with participants to ensure they know where you want to go
and how you will get there with them.
Let me share just a few of the lessons we have learned that may
be of use to other governments initiating oceans policy develop-
This cannot be done by press release. Governments need to be on
ment.
the ground, inside the planning process, listening to concerns and
participating in, not directing, the search for common ground.
The first is that while legislation is vitally important and will
ground policy development, it alone cannot bring about the
change that is required.
68
Toward the 2002 World Summit on Sustainable Development, Johannesburg
SMALL ISLAND DEVELOPING STATES:
TRENDS SINCE RIO
Samoa
Ambassador Tuiloma Neroni Slade
Permanent Representative of Samoa to the United Nations, New York,
and Chairman of the Alliance of Small Island States (AOSIS)1
Introduction
Oceans and coasts are critical to the natural and cultural heritage
of the world. While many marine areas support a great diversity
The scale of human activities today affect not only the large-
of plants, animals and natural habitats, oceans also play an
scale physical systems of the planet, but also have consequences
essential role in the climatic cycles and other global processes.
that reach far into the future. Most environmental problems that
Marine ecosystems are fundamental to the sustainable develop-
will require policy attention are ones that are well known, and
ment of coastal countries. Coastal marine areas are also
as time goes on these problems will become more severe and
dominated by a nearly continuously living fringing reef, pro-
pose more local as well as global challenges. The future impacts
tecting the coasts from the onslaught of the waves. Associated
of today's decisions thus need to become more and more promi-
with the reefs is a complex and diverse system of animals and
nent in current policy-making.
plants, which use the reef as a habitat, but at the same time, pro-
The world's oceans play a crucial role in maintaining the health
vide the conditions, which are essential for the very survival of
of the planet's ecosystems and serve as a valuable current and
the reef.
future food source for humankind. The oceans provide the only
The marine environment includes unique ecosystems and
means of subsistence for many communities around the world,
threatened species that are increasingly menaced by unsustain-
particularly the coastal populations like those of small island
able use and water pollution. With rapid industrialization and
developing States (SIDS).
absence of strict enforcement of regulations, the environment is
SIDS are widely acknowledged to be ecologically fragile and vul-
exposed to increasing stress.For SIDS, particularly given their
nerable. They face specific and unique constraints arising from
small size, nearly all land-based activities impact directly on the
their smallness, isolation, geographical dispersion and vulnera-
coastal zone. Activities along the shorelines are increasing, as the
bility to natural disasters. Fragile ecosystems, difficulties with
economy is developing. Rapid tourism expansion in just about
transportation and communications, remoteness from markets,
every SIDS region has also given rise to unplanned development
vulnerability to exogenous economic and financial shocks, lack
along the coastline, increasing pressures on the limited resources
of natural resources and heavy dependence on importations are
in these areas.
known and additional constraints. These factors create signifi-
In the process, in all SIDS, significant marine and coastal habi-
cant disadvantages for SIDS, economically and in environmental
tats are being adversely affected as a result of increasing
terms. For SIDS, the ocean and coastal environment is of vital
pollution, over-exploitation, conflicting resource use, and habi-
and strategic importance and constitutes perhaps their only real
tat damage and destruction. Mangroves and wetlands are filled
sustainable development resource.
to create real estate, leased for aquaculture (or the closure of
The political commitment and direction provided by Agenda 21
small bays for aqua farms), and mangrovedependent flora and
and the Barbados Programme of Action (BPOA) for the sustain-
fauna are threatened as a result of these habitat altering and
able development of SIDS, and their subsequent reviews, have
reducing activities.
been used as the benchmark for measuring progress and the
In particular, effluents from industries and coastal urban areas
achievements of the last 10 years. The international community
have impacted on the lagoon systems, and as a result many
recognises the special `case' of small islands, and their situation
lagoon habitats are threatened by this and other pollution.
and responsibilities as custodians of vast ocean spaces. However,
Intensive fishing practices have contributed to the degradation of
the trends of the last decades show that the approach to date has
the lagoon and reef ecosystem. Tourist infrastructure development
not been working to the scale necessary to achieve sustainable
has also given rise to coastal habitat destruction. Degradation is
development. Achievements have been fragmented and have
traceable directly to damage by over fishing, tourism and devel-
not been multiplied or sustained or, perhaps, not focused in
opment activities, and inactive reef management.
areas of greatest need. As Rio+10 is to focus, as far as possible, on
actions and specific initiatives, SIDS are attempting to focus on
Whereas it is difficult to protect the biota around the entire island
"what next", and to look at "new" initiatives. Regional-scale
because of various activities, protection of specific marine areas
ocean governance presents very real potential that has, in some
(MPAs) is possible, and desirable. Protection of the coastal biodi-
cases, produced results. The development of regional approach-
versity on an island or islet may appear to be local in nature;
es by SIDS provides pertinent and useful insights, and there are
however, isolated populations of organisms evolve and form dis-
several worthwhile example highlighted in this paper.
tinct components of the global genetic pool. At the same time,
1This paper, which reflects the contributions of AOSIS representatives and colleagues, is submitted on behalf of AOSIS.
69
Ministerial Perspectives on Oceans and Coasts at Rio+10
many SIDS have taken steps to apply integrated coastal zone
of coastal and near-shore environments. A number of sectors (for
management practices to their coasts. While the concepts are
example agriculture, aquaculture, fisheries, forestry, energy,
often difficult to apply in practice, these concepts have also given
transportation, urbanisation, industry and tourism) have opera-
rise to the idea of integrated island system management that
tions with potentially high impacts on the coastal and marine
takes on a holistic approach to conservation and management,
environment. Island shorelines provide a logistically convenient
and to the interaction between islands and the seas.
location for industrial and commercial activities, and are also
The need for broader, integrated coastal and marine resource
critical for tourism. Coastal environments are subject to the
management approaches cannot be delayed any further. The
pressures of high population and multiple economic activities
consequences of non-action are too risky, and likely to be cata-
across several sectors.
strophic for SIDS.
At the regional level in almost all SIDS, ongoing activities con-
ducive to the sustainable management of coastal and marine
Status of coastal and oceans issues since
resources are in progress. These include training and resource
UNCED 1992
inventories, sharing of experience and production of integrated
The political commitment demonstrated by the BPOA, has been
coastal area management (ICAM) plans.
translated into specific activities at national, regional and inter-
In the area of fisheries management, all SIDS have institutions
national levels, as each country in the SIDS regions work to
responsible for fisheries. Through regional cooperation SIDS can
define paths towards sustainable development. Island govern-
collectively negotiate fisheries agreements. The Forum Fisheries
ments have committed themselves to a range of international
Agency (FFA) of the South Pacific region provides, for instance,
conventions, including the UN Framework on Climate Change
amongst other services, technical support to SIDS for negotia-
(UNFCCC), Convention on Biodiversity (CBD), UN Convention
tion of fishing agreements and other arrangements with foreign
on the Law of the Sea (UNCLOS) and the related implementing
fishers. SIDS in the Indian Ocean have initiated an integrated
Agreement on Straddling and Highly Migratory Fish Stocks (Fish
fisheries project, focusing on research, stock assessment, moni-
Stocks Agreement), Global Programme of Action for the
toring, control, surveillance, and preservation of species
Protection of the Marine Environment from Land Based
training. The Indian Ocean Commission (IOC) is developing an
Activities (GPA), International Coral Reef Initiative (ICRI) and
oil spill contingency plan, as part of its effort to control marine
Global Reef Monitoring Network, Implementation of the Jakarta
pollution from sea-based activities.
initiative on Conservation and Sustainable Use of Marine and
Coastal Biological Diversity. New institutional arrangements,
SIDS and reefs
and small but significant increases in committed human and
SIDS have some of the world's largest reef areas, and have much
financial resources, indicate that the investment in environment
larger shallow-water systems, such as sand banks, sea grass beds,
management and sustainable development is ongoing.
and sponge beds at depths less that 100 meters. A combination
Overview of SIDS marine and coastal issues
of near-shore pollution and offshore over-harvesting, places the
whole of this vast ecosystem at risk of collapsing. Harvesting
The marine and coastal environments represent an important
techniques for both fish and shellfish may cause lasting damage.
natural resource for SIDS. The coastal ecosystems with its high
While pollution from outside the SIDS is a reality, the local
level of biodiversity are extremely fragile, and therefore vulnera-
impacts are often equally damaging.
ble to human interventions. SIDS economies are still mostly
based on the extraction or use of renewable natural resources.
The coastal zone contains some of the most productive ecosys-
SIDS are rapidly moving from production and sale of primary
tems, including sea grass meadows, mangrove swamps, and wet
materials (sugar, cotton, fruits), to the sale of tourism services
lands and rich biodiversity reserves. Major population centers,
based on sun, sand and sea. The small size of the SIDS and their
agricultural areas, ports and other major sites for industrial and
associated eco-regions may be placed at substantial risks by these
commercial activity are co-located in the coastal zone. In addi-
activities in terms of impacts on local habitats and the species
tion tourism is to a great extent located in the coastal region.
they feed and shelter. The biological resources and their related
Combined, these activities and uses have contributed towards
ecosystems are under pressure from developmental activities. It
the deteriorating quality of many coastal habitats. In addition to
is estimated that two thirds of the coral reefs are at risk, and one-
over-fishing, the loss of important coastal nursery areas such as
third are at high risk.
mangroves and sea grass beds may have contributed to the
decline in stocks.
The importance of the marine environment to the smaller
islands is even greater, especially in SIDS where the water to land
Progress in the sustainable development of coastal
ratio exceeds 30:1, and averages over 200:1 for the quartile of the
and marine resources
smallest islands of the various regions. Stresses are occurring at a
Implementing the BPOA in the coastal and marine area has been
regional scale in addition to site-specific coastal and marine pol-
given high priority in almost every SIDS. Awareness of ICAM has
lution from many watersheds. The functions of shoreline
also increased. National environment management strategies
stabilization, fish nurseries, recreation and flood control provid-
(NEMS) provide a framework for implementing ICAM. Coastal
ed by the coastal zone can be drastically curtailed by degradation
zone management is assuming increasing importance in the
70
Toward the 2002 World Summit on Sustainable Development, Johannesburg
SIDS management systems, and are being developed to deal with
Because of lack of island-specific studies, SIDS often use inap-
the growing problems of coastal deterioration caused by rapidly
propriate technologies based on concepts and criteria
expanding levels of beach tourism, growing urbanization of
designed for large countries, which invariably are not suitable
coastal islands and coastal sand-mining. As noted earlier, many
for small island conditions.
SIDS have taken the experiences with ICAM to the stage where
Major policy trends and patterns in SIDS
island systems management can be considered.
Problems of ecological fragility, close interdependence of econo-
Coastal and marine resources
my and environment and vulnerability to natural hazards
SIDS in all regions have made progress towards sustainability of
require the island countries to exercise great care in maintaining
coastal and marine resources. Significant development has been
their natural resource bases. All SIDS regions have adopted the
made in the initiation and adoption of regional action plans
ICRI. The IOC and the South Pacific Environment Programme
reflecting priorities, capacity and resource needs. As noted
(SPREP) have developed guidelines for monitoring coral reefs
above, action plans providing framework for implementing the
and current bleaching of coral reefs.
BPOA in the coastal and marine area have been given high pri-
Constraints in the sustainable development of coastal
ority.
and marine resources
Integrated coastal area management (ICAM)
SIDS have been faced with a number of significant constraints in
Most countries have adopted the ICAM concept. Guidelines
implementing sustainable development initiatives related to
have been developed, and pilot projects have been carried out in
oceans and coasts. Principal among these are:
many island States. The NEMS provide a framework for imple-
· Inadequate coordination and capacity at national level
menting ICAM. Cape Verde, Fiji, and Kiribati, among other SIDS,
for implementation
have developed such plans, but are at different levels of imple-
mentation. Some countries have established specific institutions
Despite States having adopted the ICAM concept in principle,
for coastal management, like the Barbados Coastal Conservation
complete and effective coordination of activities between the
Unit, supported by specific legislation like the Coastal Zone
implementing agencies, private sector and the community is
Management Act. Resource surveys, mapping, and hazard assess-
yet to materialize. Inadequate coordination at national level
ments are other activities that have been carried out within the
has overloaded the capacities of governments and thereby
framework of ICAM.
reducing effectiveness. As it is, island governments are already
At the regional level, activities conducive to sustainable man-
disadvantaged from not having adequate levels of human,
agement of coastal and marine resources, and production of
financial and institutional resources.
ICAM using regional guidelines have been attempted.
· ICAM plans are not integrated into national plan
Fisheries management
Important efforts on ICAM, though technically innovative
Most SIDS have institutions responsible for fisheries. Most South
and successful, have evolved at local level, often leaving them
Pacific countries have adopted policies on the sustainable
isolated from the mainstream of national development plan-
exploitation of fisheries. Through regional cooperation, SIDS can
ning. Such efforts have also not attracted the requisite
collectively negotiate fisheries agreements. The FFA of the South
funding, making them less effective.
Pacific region provides for technical support in licensing
· Inadequate financial resources from national and inter-
arrangements and access agreements for foreign fishing vessels.
national community
SIDS in the Indian Ocean, drawing in part from the experience
The financial resources available to the SIDS for implementing
of the South Pacific region, have initiated an integrated fisheries
ICAM have been inadequate to date. Not inconsiderable effort
project, focusing on research, stock assessment, monitoring,
has been expended in developing guidelines and plans. On
control, surveillance, preservation of species and training. The
the other hand, financial resources for implementation have
IOC is developing an oil spill contingency plan as a part of its
been scarce.
efforts to control marine pollution from sea-based activities.
· Lack of economic tools
Coral reefs
ICAMs have been seen more as an environmental tool rather
All the SIDS regions have adopted an ICRI strategy to address the
than a sustainable development programme, receiving limit-
concerns of their regions. Most regions have established net-
ed funding from national budgets. Many SIDS do not have
works to monitor the health of the reefs. The IOC and the South
the environmental tools (for example, indicators for integrat-
Pacific Regional Environment Programme (SPREP) have devel-
ing environmental considerations with economic
oped guidelines for monitoring of reefs. The current coral
development) that would allow governments to estimate the
bleaching events are being studied by a number of countries,
true cost of environmental degradation.
including many SIDS.
· Inadequate scientific and technological means for imple-
Regional organisations
mentation
Regional organisations have played an important role in infor-
mation collection and exchange. Numerous publications on the
71
Ministerial Perspectives on Oceans and Coasts at Rio+10
various disciplines of coastal and marine management have
University of the South Pacific. This approach to aid program-
become available. These have assisted SIDS in terms of public
mme management has been well received, and is viewed as a test
information material and contributing to greater awareness rais-
case for decision-making in the region. Some 14 project activities
ing. A number of networks and nodes of information exchange
have been approved to date, among them the turtle conservation,
have been established throughout most SIDS regions, augment-
tuna management plans, ocean pollution control, marine orna-
ed by the Small Island Developing States Network system
mentals export and marine studies post-graduate scholarships.
(SIDS/Net).
· Integrated management of watersheds and coastal areas
Capacity building
in Caribbean SIDS
SIDS have also been the recipients of formal and informal train-
Integrated freshwater basin-coastal area management is essential
ing efforts to improve the capacity to implement sustainable
for a sustainable future for the SIDS. This project, funded by the
coastal and marine resource management from regional and
Global Environment Facility (GEF) covers 15 States, and prima-
international development partners and institutions, including
rily targets coastal area management and biodiversity, land and
in the United Nations system. Through these connections, many
marine based sources of pollution. It will strengthen institution-
of the States have been able to mobilise some of the necessary
al capacity at the national and regional levels, provide assistance
resources.
to countries in understanding linkages between fresh water and
marine environments, integrating management of watersheds
Major coastal and marine-related projects under-
and coastal areas, and national priorities within the regional
taken by SIDS
context. UNEP will be the lead agency in cooperation with
The health, protection and preservation of coastal and marine
UNDP and the Caribbean Regional Coordinating Unit.
resources are fundamental to the sustainable development of the
· Marine ecosystem management project, Seychelles
SIDS. Improved coastal and ocean management, sustainable use
of coastal and marine resources, and the reduction of land-based
The objective is for the successful management of Seychelles'
pollution are priority issues in the maintenance of the oceans as
unique and threatened marine ecosystems, with focus on iden-
a source of food and equally important in the development of
tifying, managing and rehabilitating remnant ecosystems
tourism.
through improved skills, scientific understanding and conserva-
tion management knowledge and direction. This project is
The critical state and importance of the marine and coastal envi-
co-financed by the GEF and to be executed by the Marine
ronment demand immediate action of all SIDS. Governments
Conservation Society of Seychelles (a local NGO), the Ministry
need to increase efforts to enhance regional arrangements in
of Environment and Transport (a Government agency) and the
particular, for such arrangements have possibly the greatest
Marine Parks Authority (quasi-governmental).
prospects for effective action. To ensure viability and success, the
efforts of SIDS will require the committed support of the inter-
· Coastal wetland ecosystem conservation and sustainable
national community.
livelihoods, St Lucia
Regional governments need to be empowered and encouraged
The project aims to conserve St Lucia's globally significant bio-
to design, monitor, and assess progress in coastal and marine
diversity by improving the capacity of natural resource
activities. Natural resource accounting must be factored into the
management agencies to manage protected areas and biodiversi-
planning of economic and social activities, so that true costs of
ty. Two new protected areas are established in critical coastal and
development options can lead to selection of those activities
marine zones, which help to develop economic opportunities
that minimise negative impacts on vulnerable and productive
for local communities, including nature tourism, small crafts for
ecosystems.
local artisans, and marketing of local resources (sea moss).
A selection of on-going and planned activities and projects
· Conservation and sustainable use of the barrier reefs,
among SIDS are described briefly below. They give indication
Belize
not only of the range and complexity of the issues, but also of
Belize's coastal zone contains a globally significant diversity of
the approaches and techniques being applied.
ecosystems and organisms, the most striking of which is the
· South Pacific ocean development programme (C-SPOD)
longest barrier reef in the Western Hemisphere, stretching 220
Marine issues, resource management and environmental issues
kilometers along its coastline. The project builds on consolidat-
are key areas in regional ocean development programmes being
ing and implementing the institutional structures, financing
undertaken with the cooperation of major donor countries, the
mechanisms, regulatory frameworks, and conservation. It will
UN system and international institutions.
complement the implementation of the Coastal Zone
Management Act, by undertaking targeted interventions for bio-
This programme focuses on sustainable development of the
diversity protection. The 5-year project funded mainly by GEF,
South Pacific region's living marine resources, ownership and
will be implemented by the UNDP.
accountability for its results by the regional partner organiza-
tions. C-SPOD is working with four regional organizations - FFA,
· Integrated archipelagic ecosystem management and sus-
Pacific Islands Forum Secretariat (FORSEC), SPREP and the
tainable development for the Eastern Caribbean
72
Toward the 2002 World Summit on Sustainable Development, Johannesburg
The overall aim is to assist the Organisation of Eastern Caribbean
· Caribbean coastal marine productivity program
States (OECS) to develop national, long-term integrated island
(CARICOMP)
management and sustainable development strategies through-
This regional scientific programme to study coastal ecosystem
out the sub-region. These national strategies will be linked and
productivity aims to integrate the three main coastal ecosystems
networked so as to develop a sub-regional management initia-
in the Caribbean region - mangroves, sea grasses, and coral reefs
tive for the Eastern Caribbean (Lesser Antilles) eco region, which
- and to assess the nature and influence of land-sea intersections.
will provide the building blocks for the conservation and man-
agement of globally significant biodiversity throughout this eco
SIDS success stories: coastal and marine
region. This will also be linked in and coordinated with the
The following are among the examples of best practices high-
Caribbean SIDS GEF International Waters Project.
lighted by the SIDS Unit of UN/DESA in its assessment of SIDS
· Developing sustainable island resource management
success stories in sustainable development of coastal and marine
strategies for conservation of globally significant biodi-
resources:
versity, Antigua and Barbuda
· CARICOM fisheries resource assessment and management
Antigua and Barbuda depends on a particularly close relation-
programme
ship between eco systems functions and quality of life. The
This programme contributed significantly to the improvement
interactions of important ecosystems such as coastal habitats,
of fisheries management capacity, and scientific knowledge of
forests, watersheds and their hydrology are intimately related to
the state of stocks in the CARICOM region.
each other as well as to all human activities such as tourism, agri-
culture, and social development. Attempts are now being made
· Cooperative programme on marine science, Singapore
to adopt a more integrated island eco system approach, and the
This programme, which involves and a number of countries in
lessons learnt would be globally transferable to other SIDS.
the region, provides support to the regional effort to coopera-
· Marine biodiversity conservation, Mauritius
tively optimize marine science capabilities through
environmental maintenance, ensuring the integrity of the
The objective is to establish a system of marine protected areas
resource base and the protection of human health.
(MPAs) in order to ensure conservation and protection of critical
and unique marine diversity within the Republic of Mauritius. It
· South Pacific ocean development programme (C-SPOD)
will facilitate a consultative process and public policy of marine
Noted earlier above, this programme focuses on regional link-
and coastal resource use, strategic framework, capacities for
ages and mechanisms for the sustainable development of the
management of MPAs, and strengthen enforcement mecha-
region's marine resources.
nisms to effectively conserve globally significant biodiversity.
· Tourism: ecological impact and environmental protection
· Coral reef monitoring in member states of the Indian
measures, Mauritius
Ocean Commission
The severe environmental impact experienced mainly along the
The goal is to assist in the national and regional conservation of
coast was apparent during the study of this project. Results
the high biodiversity of coral reefs and their socio-economic
achieved included establishing and implementing measures for
value, and in the sustainable management of their resources,
coastal protection, improvement of environmental impact, san-
through a monitoring network. Emphasis is given to linking
itation, location and design aspects of tourist centers.
stakeholders, providing decision-making tools for conservation,
enhancing national capacity for monitoring and contributing
Emerging priorities for SIDS: oceans and coasts
actively through data transfer. Four States are involved in this
Dealing with the complex issues involved, and based on the
project which is funded by the GEF and co-financed by the par-
experience of the activities described, has largely confirmed the
ticipating countries.
SIDS priorities set in many national action plans and in the
· Biodiversity protection in the Sabana-Camaguey ecosys-
BPOA. It has also established a pattern of emerging priorities for
tem, Cuba
SIDS, as follows:
The northern archipelago of the SCE, in central Cuba, contains
Information resources
marine and terrestrial biodiversity of global significance. This
Communication and information management
diversity was threatened principally by conventional tourism
development, over fishing and agro-industrial pollution. First
The establishment of effective communication systems, and
stage of the project (1993-1997) successfully established the sci-
information management of ocean and coastal systems is emerg-
entific and institutional foundations for biodiversity
ing as a high priority. In the context of the vastness and
conservation through integrated management of the entire SCE.
complexity of the ocean regions and fragile coastal systems
The consolidation stage proposed here focuses on the imple-
across extensive EEZs, island countries share a fundamental con-
mentation of critical sustainable development activities, in
cern as to how to access up-to-date information, improve on
management through zoning, establishment of protected areas,
data collection, and access to state of art technology. Assessment
monitoring and institutional strengthening.
of environmental assets, threats to ocean grids, coastal resources,
73
Ministerial Perspectives on Oceans and Coasts at Rio+10
and projections that can be factored into planning and sustain-
vided appropriate information sharing agreements are put in
able use thresholds are important. The efficiency of present
place, since SIDS hold globally significant living and nonliving
plans and their future viability and sustainability must be under-
resources, much of which has a reach beyond their EEZ.
pinned by data and information systems that are reliable and of
A focus on developing and consolidating international coopera-
high quality and accessible to all stakeholders.
tive efforts, including substantial direction and involvement
Above all, it is necessary for SIDS to improve the capacity to col-
from SIDS, and mobilising additional financial resources will
lect and store data, as well as the systems for their effective
assist in this regard.
management and utilisation.
Action required
Action required
· consolidating sustainable development of the globally signifi-
· strengthening and support of systematic data collection at
cant living and non-living resources of SIDS, targeted data
national and regional levels;
collection, and research on a cooperative basis;
· support for sharing and transfer of information, tools and
· establishing acceptable arrangements for undertaking data
technology, such as GIS, remote sensing with training in their
collection and research; and
use in resource management;
· ensuring additional financial resources.
· consolidating the Small Islands Developing States Network
Resource management
(SIDS/Net) with other networks with a marine focus, as well as
linking data providers, users and all stakeholders, data centers
There is a growing need to support fundamental planning and
at national, regional and international levels;
management approaches within ocean-related sectors in SIDS,
combined with training on ecosystem relations to the limits of
· consolidating and establishing regional components of inter-
the natural resources systems of oceans and their unexplored
national research and monitoring programmes, such as
potential, and the carrying capacity of SIDS.
GOOS, as a means of gathering of fundamental data and
information; and
Sustainable planning and management frameworks
· developing and improving requisite local capacities, particu-
Subsistence users, community-based managers, and users of
larly in relation to research and data/information collection
coastal and ocean resources, need to be actively engaged in the
and reporting, and in order to comply with obligations under
integrated and sustainable development of oceans, converting
the Laws of the Sea Convention and other international
scientific knowledge to wider ecological knowledge, and utilis-
instruments.
ing traditional systems.
Improving the understanding of biological and physical
The promotion of an integrated planning and management
ocean processes
approach to the protection, rational use, development and sus-
tainable utilisation and conservation of ocean resources, is one
An improved understanding of relevant biological and physical
of the key issues for sustainable development in SIDS. The sup-
processes is essential to achieving sustainable development aspi-
port of the international community is required to improve and
rations. For many SIDS there is need to intensify efforts towards
to ensure international cooperation and coordination with
this end. ENSO analysis and research effects have had far reach-
regard to all these matters.
ing impacts on the fisheries and climate, both regionally and
globally. Improved predictions of weather and climate are
Action required
invaluable for more effective management of fragile ecosystems
· ensuring the development of useable economic accounting
and of limiting damage during periods of natural disasters.
mechanisms;
As knowledge of biological and physical interactions in the
· facilitating improved capacity development for planners and
oceans increase, it will enhance attempts to take an ecosystem
users; and
management approach to fisheries, rather than managing single
commercial species in isolation. Improved understanding of
· encouraging and supporting improved regional fisheries man-
physical ocean processes would also be essential for manage-
agement arrangements.
ment of coastal areas, in terms of erosion, sand deposition,
Coastal management
marine diversity and pollution. It will be of particular impor-
Effective planning and management in coastal areas is essential
tance in the future, as human needs and development venture
to the health of ocean and reef systems. Integrated coastal man-
further into the deep sea areas in the already active search for
agement (ICM) has been considerably promoted, and many
minerals and alternative energy sources.
international agreements have addressed these issues.
The financial resources of SIDS to undertake these globally sig-
Focus and efforts are needed to achieve the global objectives
nificant activities is very limited, and assistance will be required
related to coastal management, and to avoid duplication that
to develop adequate scientific knowledge to support sustainable
could be associated with attempting to implement the coastal
development of the ocean resources. The beneficiaries of this
components of these agreements separately.
improved scientific knowledge will not be restricted to SIDS, pro-
74
Toward the 2002 World Summit on Sustainable Development, Johannesburg
Action required
National level
· consolidating and improving institutional links between rele-
· Island management: establish and strengthen new institu-
vant bodies and groups involved in the development and
tional and administrative arrangements for development and
implementation of coastal management projects;
consolidation of integrated island management plans. Modify
· improving practical guidelines for achieving the objectives of
existing ICAM into integrated island management, including
global agreements within an integrated coastal management
implementation of pilot projects. Ensure capacity building for
framework; and
implementing integrated island management.
· seeking and increasing funding requirements and modalities
· Transfer of clean technology: facilitate transfer of clean tech-
for ICM.
nologies (cleaner production) to reduce pollutants at their
source, and appropriate methods for treating sewage, indus-
Technical assistance and financing
trial wastes and solid wastes.
Funding shortages have been experienced and identified by all
· Community-based management: support the development of
SIDS, and are affecting delivery of programs at the national,
guidelines and the implementation of pilot projects for com-
regional and international levels. The need for cooperative pro-
munity-based management of coastal resources, as well as the
grams to maximise impact is therefore a high priority. Particular
development of alternative livelihoods like aquaculture and
attention needs to be accorded to financial schemes that would
eco-tourism.
mitigate destruction of productivity, and promote rehabilitation
· Marine resources: exploiting living and non-living resources
as well. Delivery mechanisms for financial resources need to be
in the EEZ. Assess and monitor fish catch, processing and
streamlined and cost and time effectiveness considerably
marketing by foreign and domestic fishing companies.
improved. There are many ocean resources that are and will be
Develop legal framework for sustainable fisheries activities.
of special use and interest to the global community. In order to
Develop management plans and policies for assessing, moni-
ensure sustainable development, a consistent and predictable
toring and exploiting resources in the EEZ.
resource flow will be extremely valuable. For almost all SIDS
there is high priority to improved access to financial mecha-
Regional level
nisms that are of an appropriate scale and efficient for the
· Institutions: assist regional institutions to strengthen their
countries involved, and the issue to be addressed.
capacity to negotiate agreements related to the use of marine
Action required
resources.
· exploring further with funding mechanisms like the GEF the
· Protection of marine environment: strengthen the capacity
prospects of SIDS- specific funding, including from the GEF
to develop and implement national and regional action plans,
small grants scheme, to cover island and coastal states, with par-
consistent with the goals of the Global Programme of Action
ticular emphasis on the protection of international waters;
for the Protection of the Marine Environment from Land-
based Activities.
· supporting trust funds for environmental management and
sustainable development to provide consistency and predictabil-
· Ocean energy: SIDS have a high dependence on fossil fuels. A
ity in long-term programs to manage ocean and coastal
shift to new and renewable forms, like that of ocean energy
resources;
(thermal and mechanical), needs to be galvanized.
· pursuing the more effective implementation of the SIDS/TAP;
Specific initiatives for sustainable management of oceans
and
· Implementation of UNCLOS, and related international instru-
· supporting the use of regional and sub-regional institutions as
ments in an integrated manner and support for the
delivery mechanisms and modalities for the implementation of
development of related national policies and legislation.
programmes.
· Boundary delimitation: improved access to survey and moni-
Recommendations for action
toring technologies and the resulting products in order to
ensure responsible and sustainable use of ocean resources and
International support for SIDS
the completion of marine boundaries delimitation.
Local level
· Ocean policies: development and implementation of regional
and national policies so as enhance the sustainable manage-
· Dissemination of information: preparing versions of interna-
ment of the oceans and its resources.
tional instruments related to sustainable use of marine and
coastal areas that are easily understandable to local commu-
· Ecosystem marine resources management: promotion of total
nities and laypeople, showing linkages between different
ecosystem marine resources management through capacity
agreements and benefits to and responsibilities of SIDS.
building and pollution control measures, and further devel-
opment of policy and program options to assist countries to
sustainably manage their own marine and ocean jurisdictions.
75
Ministerial Perspectives on Oceans and Coasts at Rio+10
· Geographic information systems (GIS): quantum increases in
Report of the Secretary General - Progress in the implementa-
use of coastal inventories.
tion of the POA for the sustainable development of SIDS-
· Coastal vulnerability assessments: qualitative improvements
E/CN/17/1999/6, 01 Feb 1999
in coastal vulnerability assessments.
Caribbean Environment Outlook - UNEP -ISBN:92-807-1791-X
· Coral reef monitoring: proactive coral reef monitoring.
National Implementation of the SIDS-POA- UNECLAC
· Resource evaluation: economic evaluation of coastal and
LC/CAR/G.520, 27 Mar 1998
marine resources and the design of economic and regulatory
South Pacific Regional Environment Programme - Regional
instruments.
Submission to UNGA, Special Session, 1999.
References
Sustainable Development Success Stories - special issue on
SIDS- ISBN 92-1-104502-9
Report of the Secretary General Coastal area management in
SIDS, E/CN.17/1996/20/Add.7, 29 Feb 1996
Sustainable Development Success Stories Vol. III, ISBN 92-1-
104486-3
Report of the Secretary General Management of coastal and
marine resources in SIDS, E/CN.171999/6/Add.10, 19 Jan
1999
76
Toward the 2002 World Summit on Sustainable Development, Johannesburg
LESSONS IN REGIONAL COOPERATION FROM
THE ARCTIC
Finland
Ambassador Peter Stenlund
Chair of the Arctic Council, Finland
The significance of regional governance in the Arctic is largely
AMAP's findings gave an important impetus to the negotiations
explained by the unique character of the Arctic Ocean. While it
on the international Stockholm Convention on POPs, signed in
is made up of several large seas, it is essentially a semi-enclosed
May this year. The Arctic Council is not dragging its feet as
ocean that is shared by a small number of surrounding coun-
regards actions to facilitate implementation of this agreement.
tries. The Arctic is home to migratory wildlife that traverses its
The Council has in place an Action Plan with specific initiatives
ice cover and 20% of the world's fisheries, both of which are crit-
on source elimination or reduction of the priority pollutants in
ical to the traditional lifestyle of its indigenous populations. It is
the Arctic region.
a sink for global pollution because of the flow of oceanic and
The programme for the Conservation of Arctic Flora and Fauna
atmospheric currents, and is therefore a bellwether of global
(CAFF) has finalized an overview report on biodiversity and con-
changes caused by human economic activity. The Arctic Ocean
servation in the Arctic, including marine areas.
creates the context for a very fragile ecosystem that is threatened
Recommendations on conservation are being prepared and will
by land based activities, shipping, dumping and exploitation of
be presented to the governments of the Arctic in autumn 2002.
offshore hydrocarbon.
The value of collaborative scientific research as a foundation for
New opportunities to regional cooperation on oceanic and other
governance is illustrated, for example by CAFF's work in the
environmental issues emerged during the final reformist phase
management and conservation of ocean species.
before the dissolution of the Soviet Union. The Arctic countries
On the basis of the Monitoring and Assessment reports and
adopted an Arctic Environmental Protection Strategy (AEPS) in
drawing on national country reports as well as regional and
1991. Five years later, in 1996, the Arctic Foreign Ministers
international information sources, the Arctic Council has in
agreed upon the Ottawa Declaration, and the Arctic Council was
1998 adopted a Regional Programme of Action for the Protection
founded as an intergovernmental forum with a broad pro-
of the Arctic Marine Environment from Land-based Activities.
gramme including all dimensions of sustainable development.
This Action Programme follows UNEP's methodology.
The Arctic Council is a unique international forum for co-opera-
Our Working Group on the Protection of Marine Environment
tion among national governments and indigenous peoples. I am
(PAME ) is coordinating the implementation of the regional pro-
not aware of any other intergovernmental structure where rep-
gramme and supports Arctic States in their efforts to develop
resentatives of indigenous peoples participate in the work on a
national action programmes. To this end, PAME is working
de facto equal footing with governments. The active participa-
closely with Russia, who in September this year finalized the
tion of six Arctic indigenous organizations make it possible for
work an her Arctic National Plan of Action.
the Council to benefit from traditional knowledge in addition to
scientific research.
The Arctic Council is also engaged in work aimed at enhancing
environmental safety in connection with utilization and trans-
Environmental Protection
portation of oil and gas. The Arctic Council offshore oil and gas
The Arctic Environmental Protection Strategy, which with the
guidelines serve as a basis for further discussion among stake-
establishment of the Arctic Council in 1996 was integrated into
holders. The Arctic Council has produced a Field Guide for Oil
the new structure, highlighted the risks posed to human health
Spill and Response and the expert group on Emergency,
and wildlife by persistent organic pollutants, heavy metals and
Prevention, Preparedness and Response (EPPR) is preparing a
long-lived radio nuclides.
Circumpolar Map of Resources at Risk from Oil Spills in the
Arctic.
Environmental monitoring and assessment became a specialism
of the Arctic Council. Scientifically based decision-making is a
The Arctic countries have committed themselves to coordinate
deeply rooted principle. The Arctic Monitoring and Assessment
their efforts in international forums. A good example as the
Programme (AMAP) presented a first comprehensive report on
ongoing development through the International Maritime
the state of the Arctic environment in 1997. The monitoring
Organisation (IMO) of guidelines for Arctic shipping in ice-cov-
programme is still in operation and focuses on trends in con-
ered waters. This work is driven by the Arctic countries with a
taminants and their effects on the Arctic environment. The
stake and with support of PAME.
second assessment report will be delivered to the Ministers in
autumn 2002.
77
Ministerial Perspectives on Oceans and Coasts at Rio+10
Development
Climate change is taking place with strong, variable and largely
unpredictable effects on nature and communities in the Arctic.
The vast, sparsely populated Arctic region is facing huge socio-
economic challenges. The Arctic populations are still very
As an attempt to address these challenges, the Arctic Council
dependent on traditional sources of livelihood. With technolog-
Ministerial Meeting in Barrow, Alaska, adopted a new, ambitious
ical advances, the traditions of utilizing the environment and its
project on Climate Impact Assessment in the Arctic (ACIA). The
renewable resources for survival have often become economical-
project group was asked to address environmental, human
ly unviable and sometimes in conflict with sustainable use. At
health, social, cultural and economic impacts and consequences
Arctic Council meetings, we hear people requesting the Council
of climate variability and change, and make policy recommen-
to pay more attention to human development in the Arctic.
dations. One of the themes subject to scrutiny is possible effects
on marine ecosystems.
The Arctic Council Ministerial in Barrow, Alaska, in October
2000, agreed upon a strategic framework document on sustain-
The start-up of the Arctic Climate Impact Assessment project
able development - the Barrow Chapeau. With this foundation
(ACIA) is the latest encouraging example of the commitment of
for further cooperation in place, the Arctic Council Working
all Arctic states, and several observers, to combine knowledge
Group on Sustainable Development is now working hard on
and work for a common, urgent purpose.
developing the economic, social and cultural aspects of sustain-
Ladies and Gentlemen
able development.
The Arctic Council is a soft law regime. Taking this limitation
An increasingly important issue is the sustainable use of natural
into consideration, the Council has been able to contribute con-
resources - be they living resources or non-renewables. If proper-
siderably to sustainable development in a vast sparsely
ly managed, expanded utilization of natural resources such as oil,
populated region with a harsh climate and fragile environment.
gas, metals and minerals can bolster sustainable growth and well-
An ongoing endeavour is to make the Arctic visible and present
being in the region. But without precautionary measures the
in the preparations for the Johannesburg Summit 2002.
traditional livelihood of indigenous and other local people, as
well as the existence of vast areas of pristine nature, may be in
The basic responsibility for the implementation of regional poli-
danger.
cies lies with the states and their sub-regional administrations.
An expanded dialogue between the public and private sectors is
Expanded use of natural resources and growth in tourism will
crucial. Regional cooperation is establishing a common knowl-
lead to new and more frequently used navigation routes. This
edge base, is spreading information on best practices and lessons
calls for reinforced efforts to enhance the security of marine
learned and has an important role in the development of policy
transport, prevent emergencies or respond to them effectively,
recommendations.
including smooth cross-border assistance among neighbouring
states.
Under the umbrella of the Arctic Council, the protection of the
marine environment is not perceived as a separate issue.
Climate change
Protection is considered to be an integral element in the whole
Climate variability and change are posing a multitude of chal-
structure of sustainable development.
lenges to the future prospects for man and nature in the Arctic.
78
Toward the 2002 World Summit on Sustainable Development, Johannesburg
IMPROVING SCIENCE APPLICATIONS TO COASTAL
MANAGEMENT
Ambassador Mary Beth West
United States
Deputy Assistant Secretary for Oceans and Fisheries, Bureau of Oceans,
of America
International Environmental and Scientific Affairs
U.S. Department of State
Thank you very much for the opportunity to speak to you today
ple, is immediately and publicly available. The result is that all
on emerging issues in ocean and coastal management. We appre-
stakeholders can make better informed decisions about ocean and
ciate the work by the Conference organizers and the Chair and
coastal resources and meet their goals for sustainable development.
other members of this panel. The United States takes a keen inter-
Good Governance
est in science and technology issues and looks forward to a fruitful
discussion today. I want to use my brief time to talk with you
Good environmental governance at the national level depends on
about the promise that new technologies and science bring to our
building and strengthening legal, programmatic, and regulatory
responsible stewardship of the world's oceans, coasts and fisheries. frameworks and governmental institutions that establish and
oversee the manner in which countries meet their social, eco-
Since Rio
nomic and environmental goals.Good national governance is
There is international recognition of the continuing need to
critical to our stewardship of oceans, fisheries and coasts. For
understand marine life, so that national, regional and global
instance, in order to ensure that decision makers have the scien-
actions that address coastal and marine issues are based on sound
tifically based information they need to understand all relevant
science. This conference provides an opportunity to identify areas
considerations when making policy choices, it is important for
of common ground in marine research and discuss opportunities
national governments to include stakeholders and major groups
for constructive engagement among all stakeholders.In fact, since
in broad-based public participation efforts. Inclusion of all inter-
Rio we have expanded our use of marine scientific research, have
ested parties helps to ensure that government decision making
made strides in advancing our understanding of the world's
solicits the views of civil society. In turn, this helps generate the
atmosphere and oceanography and in applying this knowledge to
broadest possible support for policy and its implementation.
practical on-the-ground problems. Innovations in technology,
Implementation of such policies by all governments is important
from satellites to submarines, let us see more, measure more, and
to promote sound science-based decision-making worldwide.
learn more about the oceans than ever before.
Problems Persist
Still, we estimate that 95 percent of the oceans remain unex-
We all recognize that human health and livelihood are inextrica-
plored. Oceanography is maturing from straightforward
bly linked to the sea through food security, shoreline protection,
monitoring and description of exploratory observations to an
trade, medicine, recreation and more. This link to the oceans
understanding of oceans processes and, now, remarkably, to the
increases in importance as the Earth's population and economic
emerging ability to forecast events. Physical oceanographers now
activity in the coastal zone increases.Today over 2 billion people
use long-term, operational observing systems in portions of the
live within 100 kilometers of the seashore and about 1 billion of
world's oceans that complement the atmospheric observing sys-
those people depend on fish for their primary source of pro-
tems in place for the past 30 years.The importance of a system that
tein.Changes in marine and coastal systems can undermine the
recognizes the relationships between the oceans and the atmos-
basic economic and environmental services provided by the
phere is best illustrated by the work that led the international
oceans. These changes include habitat destruction and alteration,
science community to predict the El Nino/La Nina phenomena.
overfishing, eutrophication, changes in hydrology, sediment
El Nino
transport and the input of sewage and chemicals that threaten
The economic and human health consequences of the early
ecosystem and human health.
1980's "El Nino" events so alarmed the international community
With so much at stake for so many of us, it is incumbent on all of
that it undertook a huge, cooperative international effort to pre-
us to try to make sure the best scientific information and applica-
dict the phenomena.This effort led to the development of ENSO
tions are available to improve the management of oceans, coasts
(El Nino/Southern Oscillation), the current observing system.
and fisheries. Let me describe three applications that are using
ENSO, coupled with computer modeling and satellite and ship
new science and technologies to contribute to sustainable devel-
observations, led to the successful forecast--six months in
opment of coastal regions.
advance--of the onset and extent of the 1997 "El Nino" event.
Three Applications
Open Data Exchange
First, in the realm of fisheries, the draft International Plan of
The United States is committed to a policy of full and open data
Action to Improve Status and Trends Reporting, developed by the
exchange and recognizes the tremendous benefits this policy can
FAO Advisory Committee on Fisheries Research, if adopted swift-
have for all nations.The ENSO observing system's data, for exam-
ly, will contribute positively to global food security. The goal of
79
Ministerial Perspectives on Oceans and Coasts at Rio+10
the Plan of Action is to increase our knowledge of the quantity of
contact information and a website address for the GISD project
fish and other marine life and to determine whether the stocks
and I am sure Mr. Daffa will be happy to give you his perspective
are changing over time. This program underscores the role of
as a technical expert and advisor to Tanzanian stakeholders.
marine science in the assessment of fish stocks and their sustain-
The success of the "El Nino" efforts and the promise of the GISD,
able use. Those interested in pure science gain a more accurate
the FAO Status and Trends Reporting, and other oceans initiatives
measure of the world's marine bio-diversity, while those interest-
give us reason to be optimistic about the future.Still, it is impor-
ed in applied marine science gain a better understanding of the
tant to realize that there is much more to be done in marine
quantity and value of stocks in waters under their national juris-
science and its applications. Integrated chemical, biological and
dictions. This is a win-win strategy for both scientists and
physical oceanographic research programs must be supported.
policymakers concerned about improving the quality of life for
They made the difference in the case of "El Nino." The challenge
coastal residents.
is to look for additional ways we can cooperate and innovate in
Second, the Global Ocean Observing System (GOOS) has been
order to enhance our capabilities to address ocean and coastal
under development with substantial U.S. participation to improve
issues that are critical to sustainable development.
the world's capacity to observe the state of the oceans.GOOS pro-
The U.N. Role
vides a framework, that when fully implemented, will ensure that
the nations of the world are able to document the changes in the
The UN system has a critical role to play in facilitating, coordinat-
physical, chemical and biological state of the ocean. GOOS is
ing, and developing standards and guidelines for marine research,
sponsoring a Global Ocean Data Assimilation Experiment and a
information sharing, and operational ocean observing systems.
major enhancement of the ocean floats (ARGO) that collect data
When it comes to the coastal environment, however, we have
from the upper ocean.We will hear more from Mr. Malone about
learned that regional approaches are often most effective.The
how GOOS is being applied.
Cartagena Convention in the Caribbean, the Arctic Council--a
forum involving indigenous communities and the eight nations
Finally, I am pleased to tell you about a new US-led international
with territory in the Arctic-- and the South Pacific Regional
initiative called "Geographic Information for Sustainable
Environmental Program (SPREP) are good examples of regional
Development "or GISD.
bodies in which people collaborate effectively to protect human
The GISD initiative uses a new generation of earth observation
health, prevent, control and reduce pollution and ensure sound
data, state-of-the-art GIS-linked technologies, and field-tested geo-
environmental management of oceans and coastal areas.
graphic knowledge to provide information for sustainable
We believe that the UN system needs to develop regional mecha-
development. The goal is to assist local, national, and regional
nisms to facilitate and coordinate its programs so that a diversity
agencies to address long-term challenges such as disaster mitiga-
of programs can be brought to bear in an integrated way to solve
tion, natural resource management, and poverty alleviation. The
problems specific to each region. We think that regional institu-
early results are demonstrating the value of international collabo-
tions working in the same area must be in contact with each other
ration in using geographic information for a broad range of
and, to the extent possible, co-locate the times and venues of
sustainable development challenges of the next decade.Right now
meetings, especially of Parties to regional Conventions. For exam-
GISD pilot projects are underway in Africa led by USAID and its
ple, a regional fishery and a regional seas meeting held jointly or
collaborating partners.
back-to-back could bring new synergies to both groups. The objec-
One of the applications of GISD is along the coastal zone of
tive should be to bring the fruits of new science and technologies
Tanzania and Kenya--a region that is experiencing rapid urban
to bear on the oceans and coastal issues confronting decision-
development, growth in tourism and mariculture, and expanding
makers. Joint meetings, web sites, publication of directories of
population growth that threaten coastal resources and natural sys-
specialists on relevant regional topics and regular regional report-
tems such as coral reefs and fish-breeding grounds.I am pleased to
ing of priorities for incorporation in the Secretary General's report
let you know that we have Mr. Jeremiah Daffa of Tanzania with us
might better galvanize action.
here at the conference. Mr. Daffa is managing the GISD project in
Tanzania as a part of his work with the Tanzania Coastal
Conclusion
Management Partnership. The GISD initiative provides processing
In conclusion, my presentation today has highlighted several spe-
of satellite data and construction of GIS maps that will help ana-
cific initiatives that will promote science-based decisions on
lyze rates of change over time in coastal resource and land use
oceans and coastal activities. I have also suggested several policy
patterns.These analyses, in turn, will help identify priority loca-
directions for national action--such as full and open data
tions for coastal action planning and conservation, aqua-culture
exchange and promoting public participation. Finally, I have sug-
and tourism development planning and land use zoning. The
gested improvements in coordination among oceans-related
project is intended to provide a major boost to long-term efforts
bodies at the regional and global level. We look forward to con-
to use science to improve the management of coastal
tinuing to explore these opportunities through the course of this
resources.You are invited to join this international effort to use
conference, in further preparations for Johannesburg and beyond.
existing earth observation data and state of the art information
Thank you for this opportunity to share my enthusiasm for
management tools to address the local, national, and regional
improving science applications to coastal management.
challenges facing us all. We have a handout available for you with
80
Toward the 2002 World Summit on Sustainable Development, Johannesburg
DEVELOPMENTS IN THE INTERNATIONAL LEGAL FRAME-
WORK FOR GLOBAL OCEAN GOVERNANCE
Ambassador Satya N. Nandan
Secretary-General, International Seabed Authority, Kingston, Jamaica
United Nations
Introduction
It was not until the 1950s, and the First and Second United
Nations Conferences on the Law of the Sea that efforts were made
The basis for all our efforts to utilize the resources of the oceans
to codify the international law of the sea and create a uniform
and manage the maritime environment lies in the international
system of ocean governance. While the First Conference failed
legal framework for ocean governance that has been progressive-
once again to agree on the limits of the territorial sea, it never-
ly established over a period of several hundred years. In the final
theless made some progress in relation to the issue of fisheries
decades of the 20th century the pace at which this legal frame-
conservation and management by adopting in 1958 the Geneva
work continued to develop accelerated sharply in the face of new
Convention on Fishing and the Conservation of the Living
challenges and increased understanding of the need to enhance
Resources of the High Seas. This was some recognition at last that
our knowledge of the marine environment. The Rio Conference
the fish resources of the oceans are not in inexhaustible supply
of 1992 and Agenda 21 set in motion a number of major devel-
and that some measures have to be taken for their conservation
opments in ocean governance and created a new impetus in
and management. Such measures, however, were left largely to
international efforts to manage the oceans and the impact of
the flag States to determine and enforce, although there was a
human activity related to the oceans in a more effective manner.
general exhortation for cooperation among all those who fish on
It is timely to reflect on the development of the norms for ocean
the high seas. The other significant development was the adop-
governance and to consider whether the legal framework for
tion of the exploitability criteria for determining the extent of the
ocean governance needs improvement.
continental shelf. While this recognized the sovereign rights to
The basis of the legal framework for ocean governance is con-
resources of coastal States on the adjacent continental shelf it did
tained in the 1982 United Nations Convention on the Law of the
not define precisely the limits of jurisdiction nor did it address in
Sea. The Convention provides the framework in which the juris-
any significant way the question of impact on marine environ-
dictional rights, benefits and obligations of States are to be
ment from the exploitation of those resources.
exercised, and their administrative and management policies for
Nevertheless, such attempts at resolving specific issues did not
the oceans will be developed. The purpose of this paper is to pro-
tackle the broader issue of ocean governance, with the result that
vide an analysis of the legal framework for ocean governance
with rapid developments in science and technology, States began
under the Convention and to examine the major trends that
to take their own unilateral actions with regard to the limits of
have emerged in recent years.
jurisdiction. Some of these were motivated by concerns for con-
Background to the Convention
servation of resources, such as fisheries resources; some were
The need for a new legal order for the oceans had become increas-
motivated by security concerns while others were simply reac-
ingly apparent from the early years of the twentieth century. The
tions to the escalation of claims. It was therefore inevitable that
old regime which had developed over four centuries was no longer
the only way the emerging conflicts in the oceans could be avoid-
adequate to meet present needs. By the 1960s, the rapid techno-
ed was through a Third United Nations Conference on the Law
logical developments since the Second World War rendered many
of the Sea, which would rationalize the competing claims in a
of the provisions of the 1958 Conventions relating to the juris-
manner that would address the issue of potential conflicts
diction of States obsolete and many of the newer post-colonial
between and among States as well as conflicts between compet-
States considered that the existing law did not respond adequate-
ing uses of the ocean and the impact of these activities on the
ly to the needs and interests of the new world community.
marine environment. The result was the 1982 Convention.
The predominating factor in the law making process was the
The 1982 United Nations Convention on the Law
economic interests of States. Thus, the Truman Proclamation of
of the Sea
1945, which extended the claim for jurisdiction over the conti-
The achievements of the 1982 Convention are many. It has
nental shelf, was motivated by U.S. economic interests in the
resolved a number of critical issues, some of which had eluded
petroleum resources and the shrimp fisheries of the continental
agreement for centuries. It reflects a delicate balance between
shelf. Other countries followed by also extending jurisdiction;
competing interests in the use of the ocean and its resources by
where a continental shelf did not exist by virtue of geology, they
taking a functional approach in establishing the various maritime
devised a compensatory mechanism by extending territorial
zones and the rights and duties of States in those zones, includ-
waters or fishery zones. No uniform set of practice or rules exist-
ing areas beyond national jurisdiction.
ed, nor was there any mechanism for overall management or
governance of the oceans.
81
Ministerial Perspectives on Oceans and Coasts at Rio+10
It is important to understand that the 1982 Convention is not a
Ocean Management at National Level
static instrument. While it contains norms which are precise, it
The extent of maritime jurisdiction over the territorial sea, the
also establishes principles which lend themselves to further
exclusive economic zone and the continental shelf claimed by
development of the law of the sea. In this sense, there is an in-
States is relatively uniform in State practice and consistent with
built flexibility which allows for the development of new norms
the Convention. However, the discharge of the responsibilities
within the framework of the Convention in response to evolving
imposed by the Convention in these zones is sorely lacking.
circumstances and increased awareness of the physical environ-
There are many provisions in the Convention which require
ment of the ocean and its resources.
States to take certain positive action in the zones claimed.
The norms for ocean governance go beyond the Convention and
Examples of these are to be found in the provisions on marine
are contained in many instruments, declarations and decisions
pollution which require states to adopt laws and regulations to
related to the regulation of uses of the oceans and the develop-
prevent, reduce and control pollution of the marine environ-
ment of their resources. These cover subjects as diverse as
ment from land-based sources, seabed activities, dumping at
navigation and overflight, fisheries, scientific research and the
sea, vessels and the atmosphere (articles 207 to 222). Similarly,
ocean environment in general. Such instruments may be catego-
the sovereign rights over the resources in the 200 nautical mile
rized as those which pre-existed the entry into force of the 1982
exclusive economic zone is conditioned by the obligation to
Convention, and are consistent with it, and those that have been
ensure proper management of the resources of that zone. For
adopted since in multilateral and regional or subregional arrange-
this purpose, the Convention requires certain actions by coastal
ments. Among these must also be counted a growing body of soft
States. For example, the coastal State must determine the total
law instruments that have been adopted.
allowable catch in the zone and, taking into account the best
There are also a large number of technical regulatory measures
scientific evidence available to it, must ensure through proper
that have been established through global and regional organiza-
conservation and management measures that the maintenance
tions. Among these must be included the rules and guidelines
of the living resources in the zones is not endangered by over-
adopted by the International Maritime Organization in relation
exploitation. It is also required to determine its own catch
to maritime safety and prevention of pollution from ships, the
capacity and to give access to others to the surplus. Clearly
rules, codes and conventions adopted by the UN Food and
these and other provisions of the Convention require active
Agriculture Organization in relation to responsible fishing prac-
management of the zones and the development of national
tices, and the regional seas conventions adopted under the
marine policies in order to discharge the responsibilities of the
auspices of the United Nations Environment Programme. Other
coastal States. However, the complexity of the Convention and
important instruments, such as the London Dumping
the regime governed by it involves an interplay between rights
Convention, the Antarctic Treaty System, the Convention on
and duties and there is a need for a comprehensive and inte-
Biological Diversity and elements of the Framework Convention
grated approach to management objectives.
on Climate Change also impact upon the system of ocean gov-
The growth and expansion of the uses of ocean space and its
ernance. To these must be added the influence of declarations
resources have more often than not simply prompted govern-
such as the Stockholm Declaration on the Human Environment,
ments to assign new marine-related functions to existing
from which the basic principles for protection and preservation
ministries or departments. Typically, therefore, several different
of the marine environment were developed for inclusion in Part
ministries exercise varying levels of specific responsibility for ele-
XII of the 1982 Convention, and the Rio Conference on
ments of ocean management. The resultant dispersion among
Environment and Development, which produced Agenda 21, in
many ministries has led in many cases to a sectoral approach to
particular Chapter 17 on the seas and oceans, as well as the
development. One important consequence of this is that devel-
Global Programme of Action on the Protection of the Marine
opment in one sector frequently takes little or no account of
Environment from Land-Based Activities. While not having the
parallel developments in other sectors, making it increasingly dif-
status of treaty law, these instruments contain important princi-
ficult to pursue an overall oceans policy that optimizes the use of
ples which apply to the oceans and make an important
ocean space and its resources.
contribution to the overall system of ocean governance.
To benefit from the legal regime established by the Convention
With the near-universal acceptance of the Convention, the prob-
and the potential it offers for general development, it is necessary
lem is not that there is no legal framework for ocean governance
for governments to establish at a high governmental level an
but rather how States should act in the discharge of their respon-
appropriate policy and coordination mechanism to formulate
sibilities under the Convention and in the exercise of the rights
new policy, review marine-related legislation and make necessary
and duties ascribed to them for ocean governance. The major
administrative adjustments. Unfortunately, a review of the activ-
problem today is not so much with respect to the legal framework
ities of States will reveal that a majority of them have assumed
at the international level but effective discharge of duties and
jurisdiction over maritime zones but have not developed nation-
obligations for ocean governance in areas under national juris-
al policies to administer these zones in a manner consistent with
diction for which international law has provided states with
the sustainable use of the oceans and their resources as envisaged
extensive competence.
by the Convention.
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Toward the 2002 World Summit on Sustainable Development, Johannesburg
Marine resources development cannot be viewed independently
jurisdiction over marine pollution depends on the existence of
of the overall socio-economic development. The dimension
internationally agreed measures.
added by the marine sector must therefore be viewed in the over-
States also have a general obligation to promote, along with inter-
all context of national development priorities.
national organizations, international cooperation in marine
Governments need to better integrate their policies on marine
scientific research for peaceful purposes. The Convention also
development in their overall development strategies so as to
urges the establishment of regional marine scientific and techno-
ensure an appropriate allocation of resources between the marine
logical research centres in order to stimulate the conduct of
and other sectors. It is important, therefore, that any administra-
marine scientific research by developing states and to foster the
tive structure or mechanism for ocean management should
transfer of marine technology. The functions of such centres are
ensure adequate coordination at the national level. Such a struc-
indicated in the Convention.
ture should allow for the enunciation and implementation of
It is important, nevertheless, that the same principles of integra-
national ocean development objectives while at the same time
tion that are applied at the national level are also applied at the
facilitating the discharge of obligations relating to regional and
subregional, regional and global levels and that appropriate link-
global ocean management, especially those reflected in the
ages are established between the various levels of governance.
Convention. Such coordination at the national level will also
The principal merit of regional arrangements is that they reflect
ensure more effective collaboration bilaterally and multilaterally
the geographic scale of marine resources and ecosystems. They
with the various international and regional organizations and
also help to reflect regional priorities in global decision-making.
agencies that have been given a role to play in the system of glob-
Regional arrangements cannot, however, serve as a substitute for
al ocean governance.
effective action at the national level. While they facilitate infor-
Regional Cooperation
mation exchange and dialogue between States and offer
economies of scale, as well as provide a framework for the devel-
An important theme of the 1982 Convention is recognition of
opment of regional standards, such regional arrangements must
the desirability of cooperation where appropriate at the subre-
be backed up by the necessary national policies and actions, in
gional, regional, or global levels, while several key provisions of
order to produce harmonized goals and policies.
the Convention may be given effect to in conjunction with
organizations operating at those levels. Because "region" in not
The System of Ocean Governance in Practice
defined in the Convention and because a region is not limited to
The interaction between the global rules established by the
geographic criteria alone, and can encompass economic, political
Convention, which are implemented at the national level by
or cultural factors, the scope for sub-regional or regional cooper-
States through their ocean development policies, is well illustrat-
ation is potentially considerable.
ed by reference to the marine environment and fisheries. In both
Amongst the more important provisions on marine living
cases, the Convention and, in the case of fisheries, the new UN
resources, reference may be made to the following opportunities
Fish Stocks Agreement, establish global rules and norms and spec-
for subregional or regional cooperation: the formulation of con-
ify the national action to be taken by States. This action is
servation and management measures for marine living resources
supplemented by requirements of regional cooperation.
(both within the exclusive economic zone and on the high seas)
The Marine Environment
including the exchange of scientific information, conservation
and sustainable use of straddling stocks, conservation and pro-
Part XII of the Convention, dealing with the protection and
motion of optimum utilization of highly migratory species,
preservation of the marine environment, represented the first
conservation of anadromous stocks and access by land-locked
attempt to set out a general framework for a legal regime that
and geographically disadvantaged states to surpluses of the living
establishes the obligations, powers and functions of States with
resources of the exclusive economic zones in the same subregion
respect to the marine environment. The subject of marine pollu-
or region.
tion had not been addressed at all in the 1958 Conventions and,
although a series of multilateral treaties on dumping at sea, ves-
Where States border enclosed or semi-enclosed seas they are
sel-source pollution (MARPOL 73/78), intervention in cases of
exhorted, either directly or through an appropriate regional
maritime casualties and civil liability for oil pollution, had been
organization, to coordinate their activities with respect to man-
adopted in the 1960s and 70s, there was no comprehensive legal
agement, conservation, exploration and exploitation of the
regime. A number of other important areas remained unregulat-
marine living resources, measures regarding the protection and
ed, including pollution from deep seabed mining and the control
preservation of the marine environment, to coordinate their sci-
of land-based sources of marine pollution. The inadequacies of
entific research policies and to undertake where appropriate joint
the existing law were recognized in the Stockholm Declaration,
programmes of scientific research.
which called upon States to participate in new efforts to bring all
Provision is also made for cooperation both globally and region-
sources of marine pollution, including land-based sources, under
ally in formulating and elaborating international rules, standards
effective control.
and recommended practices for the protection and preservation
The Convention, in articles 192 and 194, establishes a basic duty
of the marine environment, taking into account characteristic
on all States to protect and preserve the marine environment and
regional features. In several instances, the exercise of coastal State
an obligation to take all measures necessary to prevent, reduce
83
Ministerial Perspectives on Oceans and Coasts at Rio+10
and control marine pollution as well as to ensure that activities
neither the coastal State nor the distant water fishing State, can
under their jurisdiction or control do not cause pollution damage
manage the stocks in isolation.
to other States and their environment, and that pollution does
The holistic approach to management cannot be left to coastal
not spread beyond the areas where they exercise sovereign rights
States or fishing States alone. There must be a framework through
under the Convention. These articles form the basis for a com-
which they can cooperate to establish management regimes and
plex web of powers and duties covering the adoption and
agree on problems of allocation and effort limitation. In this
enforcement of laws and regulations, global and regional cooper-
regard the provisions of the Convention have been elaborated
ation, monitoring and environmental assessment and state
upon. The roles and responsibilities of regional fisheries manage-
responsibility for pollution. For the first time, the Convention
ment organizations have been clarified and made more
requires States to cooperate on a global basis, and, as appropriate,
meaningful as a forum for management of shared resources. In
regionally in formulating international rules, standards and rec-
particular, not only have the requirements for flag State responsi-
ommended practices for the protection and preservation of the
bility been further developed and enumerated, but also they have
marine environment (article 197). In addition, States Parties are
been supplemented by the measures that can be taken by mem-
obliged to provide scientific and technical assistance, particularly
bers of regional organizations in cases where the flag State is
to developing States (article 202), to conduct monitoring and
unable or unwilling to take effective action itself. Thus, through
environmental assessment programmes (article 204) and to adopt
a combination of the mechanisms provided in the Agreement
laws and regulations to prevent, reduce and control pollution of
and the measures to be adopted through regional organizations,
the marine environment from land-based sources (article 207).
an important gap in the effective application of conservation and
These laws and regulations must, however, be based on rules and
management measures has been filled. This is an important
standards adopted by the international community acting
innovation and a major development in international law.
through competent international organizations. Such rules and
Already, the Fish Stocks Agreement has had a profound effect. It
standards thus provide an objective basis for measuring whether
has become the reference point for the review of fisheries man-
States have fulfilled their obligations under the Convention. The
agement organizations worldwide. It has been used as the basis
emphasis placed on the need to protect and preserve the marine
for the establishment of at least two important regional fisheries
environment as a whole also underlines the importance of
management organizations; in the Western and Central Pacific
regional cooperation in achieving the objectives of the
Ocean and in the South-East Atlantic Ocean. It has also been
Convention. To this end, the activities undertaken by UNEP with
used as the basis for review of the structure and mandates of sev-
regard to its Regional Seas programme, and the various protocols
eral existing regional fisheries management organizations,
and conventions adopted by the International Maritime
including some which were established before the adoption of
Organization are illustrative of the practical measures taken to
the 1982 Convention.
implement Part XII of the Convention.
Emerging trends
Fisheries
When we consider the way in which the legal framework for
In the area of fisheries, by the early 1990s it was widely recog-
ocean governance has developed, four broad trends emerge:
nized that the legal regime for the high seas set out in the Geneva
Conventions of 1958, and largely incorporated in the 1982
· The first such trend was towards enclosure of the oceans, in the
Convention, was inadequate to safeguard the fisheries resources
sense of national control and jurisdiction over large areas of
of the high seas, particularly those classed as straddling fish stocks
ocean space.
and highly migratory fish stocks. It was therefore not surprising
· The second broad trend was towards an accommodation of
that the Rio Conference called for a conference to address the
competing interests in the oceans, or an appropriate balance
problems of high seas fisheries. Such a conference was convened
between the rights and duties of States on one hand and the
by the United Nations in 1993 and completed its work in 1995
need to ensure sustainable use of the resources of the oceans
with the adoption of the UN Fish Stocks Agreement.
and to protect and preserve the marine environment on the
In the context of straddling fish stocks and highly migratory fish
other hand.
stocks, the Fish Stocks Agreement establishes principles for man-
· The third major trend that has emerged as our knowledge and
agement which are of general application. In this respect, the
understanding of the oceans has improved is towards a more
Agreement is a blueprint for fisheries conservation and manage-
integrated, ecosystem-based, approach to ocean management.
ment in general and the future of fisheries depends on how this
While this approach is latent in the provisions of the 1982
very important Agreement will be applied and implemented by
Convention, it has emerged since the 1990s as the dominant
States.
consideration in the implementation of many of the provisions
The Agreement recognizes the importance of a cooperative
of the Convention. This concept was first articulated in the
approach to fisheries management and calls for compatible con-
1980 Convention on the Conservation of Antarctic Marine
servation and management measures. While the Agreement does
Living Resources, but is also perhaps most clearly reflected in
not in any way affect the concept of sovereign rights of States as
the UN Fish Stocks Agreement. In particular, we have seen the
found in the Convention it nevertheless emphasizes the interde-
precautionary approach emerge as a guiding principle.
pendency of stocks and recognizes that, in the final analysis,
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Toward the 2002 World Summit on Sustainable Development, Johannesburg
· The fourth major trend, as the complexity of ocean governance
At the same time, it must be recalled, however, that the
has increased and the relationship between multiple uses of the
Convention deals with a broad spectrum of issues, and the inter-
ocean have become more intricate, is an increased recognition
relationship of the various parts of the Convention is premised
of the need for international cooperation and better coordina-
on the fundamental principle that the problems of ocean space
tion. This has been exemplified by the work of the UN General
are closely inter-related and need to be considered as a whole.
Assembly in recent years in its efforts to promote better imple-
This principle is restated in no uncertain terms in Chapter 17 of
mentation of the Convention and related instruments.
Agenda 21. It is therefore only logical that this integrated
The first two of these trends are illustrated by the developments
approach to the different uses of the oceans and the development
leading to the adoption of the 1982 Convention, while the latter
of their resources is adopted in the implementation of the
two may be considered as emerging trends since the adoption of
Convention. It is only through such an approach that the deli-
the Convention.
cate balance, between the conflicting interests and activities in
the oceans achieved in the Convention, which was seen as a sine
In the last few years, as international attention has focused more
qua non for its general and widespread acceptance, can be main-
on sustainable use of the oceans, there has been concern at the
tained.
apparent proliferation of organizations and bodies with overlap-
ping responsibilities for oceans affairs and the prospects for
The signs that we are moving towards an effective global system
fragmentation in approaches to ocean management at the
of ocean governance are encouraging. Further progress is needed,
national, regional and global levels. There is concern that with-
however, and should include the following elements:
out proper coordination and an integrated approach, there is a
· A revitalization of the General Assembly debate on the Law of
risk of ineffective and inefficient policy-making based on sectoral
the Sea to draw together economic, legal, social, environmental
considerations which may not accord with the overall balance
and political aspects and to better monitor progress and per-
achieved in the Convention on the different uses of the ocean.
formance in implementation at the national and regional level
This in turn may lead to inconsistent implementation of the
as well as to identify any gaps in regional and international
Convention itself.
agreements.
As a result of these concerns, the General Assembly adopted in
· An increased emphasis on capacity building and better coordi-
1999 a resolution establishing an open-ended consultative
nation of oceans affairs at the national level is critical to avoid
process intended to identify the main issues for consideration by
a diffused, fragmented and sectoral approach, especially in the
the General Assembly in its annual consideration of law of the
case of developing countries.
sea issues and make recommendations for better coordination
· There needs to be a continued emphasis on regional coopera-
and cooperation between the various organizations and bodies
tion as it becomes apparent that management across
involved in oceans affairs. To date, two meetings have taken place
jurisdictional and political boundaries cannot succeed without
under the new informal consultative process, with the participa-
cooperative and coordinated action by States within that
tion of a broad cross-section of representatives from a number of
region. At the same time, decision-making mechanisms within
the specialized agencies and other international organizations
regional organizations need to be strengthened.
and bodies, as well as representatives of the non-governmental
organizations. Many important subject areas have been addressed
· National, regional and global efforts need to be informed and
constructively in considerable detail and, although the process is
guided by the concept of ecosystem-based management. We
to be reviewed in 2002, it does appear to have been of assistance
need to improve our knowledge of marine ecosystems, increase
to the General Assembly in clarifying the issues to be considered
our understanding of the relationship between ecosystems and
in its annual debate on law of the sea and ocean affairs.
multiple uses of the oceans and take these factors into account
in making decisions.
As we seek to manage the oceans and their resources in the face
of increasing pressure from rapid technological development,
It is encouraging to note that these themes, as well as others, are
increased scientific research and growing concern for the marine
reflected in the most recent General Assembly resolution on
environment, sound policies for ocean governance at the nation-
Oceans and the Law of the Sea (A/56/L.17) adopted on 28
al, regional and global level will become even more urgent if we
November 2001. However, Agenda 21 prescribed a detailed plan
are to maintain the health of the oceans.
of action in six specific programme areas, setting out not only the
basis for action in each programme area, but also the objectives
It is clear that the foundation for effective ocean governance
to be achieved and activities to be carried out by States and the
must remain the 1982 Convention and its implementing agree-
means of implementation in each area. It is equally important,
ments, supported by the detailed provisions of Agenda 21 and
therefore, that the international community takes the time to
other global programmes and agreements. As the Independent
review the progress that has been made towards implementation
World Commission on the Oceans concluded in its report, The
and to identify any barriers to good ocean governance. In partic-
Ocean: Our Future, efforts to build a more effective system of
ular, strong emphasis needs to be placed on the importance of
ocean governance must start with the implementation of the
capacity-building. Agenda 21 itself recognizes that the imple-
Convention as well as the other existing legal instruments relat-
mentation by developing countries of the activities set forth in
ing to the sea.
Chapter 17 shall be commensurate with their individual techno-
85
Ministerial Perspectives on Oceans and Coasts at Rio+10
logical and financial capabilities and priorities in allocating
in identifying issues, as well as in promoting more effective,
resources for development needs and ultimately depends on the
transparent and coordinated collaboration between States and
technology transfer and financial resources required and avail-
international organizations and institutions. We have also seen
able to them.
an increased level of activity at the regional level in such areas as
In conclusion, I believe that, since Agenda 21 was adopted, there
fisheries and marine pollution. Greater emphasis is needed, how-
has developed an increased awareness of the need to synthesize
ever, on the implementation of global initiatives at the national
and integrate policy relating to the use of oceans resources and
level and on the integration of national oceans policies with over-
protection of the marine environment at all levels. At the global
all development strategies.
level, significant progress has been made in raising awareness and
86
Toward the 2002 World Summit on Sustainable Development, Johannesburg
CONCLUDING REMARKS TO OCEANS AND COASTS AT RIO+10:
TOWARD THE 2002 WORLD SUMMIT ON SUSTAINABLE
DEVELOPMENT, JOHANNESBURG
South Africa
Honorable Rejoice Mabudafhasi,
Member of Parliament of the Republic of South Africa, Deputy Minister of
Environmental Affairs and Tourism,
Chairperson of the Preparatory Committee for the Partnership Conference,
Vice-president of ACOPS from South Africa
Excellencies, Secretary-General of UNESCO, Secretariat of this
development. The challenge for the next ten years will be to
conference, distinguished participants and let me not forget my
integrate the priorities of these sectors, and eliminate percep-
neighbours from Africa and the many friends I have met here
tions that these priorities compete with each other.
but also the new friends that I have made during the conference,
Other issues that perpetuate this Rio legacy are:
I want to extend a word of thanks to each and everyone of you
for your role not just in this conference, but ultimately in the
· The plethora, fragmentation and lack of co-ordination of con-
World Summit on Sustainable Development. It is through your
ventions & institutions;
participation here and events such as this that you are making
·The development initiatives are under funded and
your contribution not only to the World Summit on Sustainable
ineffective;
Development, but to sustainable development in general.
· Complex ocean and coastal governance systems hinder devel-
I am indeed honoured to deliver this closing address. Let me take
oping country participation and co-ownership;
this opportunity to thank the organising committee and the Co-
· Donor funds are limited and not necessarily in line with coun-
Chairs for having the foresight to hold this meeting at this
try priorities;
opportune time. You will agree with me that it is through con-
ferences such as this that we are well on our journey to
· Poor implementation of development targets; and
Johannesburg - a journey that we ought to take beyond
· Shortcomings in international conventions.
Johannesburg in a practical and implementable way for all par-
Returning to the second area of discussion, the issues to be
ticipating partners to influence not just the environment but
addressed to achieve the noble objectives of Agenda 21 are:
directly the quality of life of so many people.
· Environmental Protection;
Through initiatives like this and the GPA Intergovernmental
Review I attended last week, we are able to determine a mean-
· Resource Conservation and Sustainable Use;
ingful Agenda for Johannesburg.
· Socio-Economic and Resource Development;
It is at fora such as this that we are able to deliberate the many
· Ocean and Coastal Governance;
challenging issues that we as a global community face. This con-
· Data Management and Information Sharing.
ference provided us with a platform to not just create awareness
of the challenges in our respective environments, oceans and
· Environmental Protection
coasts in our countries and regions, but also with an opportuni-
Future sustainable development or management of ocean and
ty to come up with a collective approach to address some of
coastal resources depends on achieving a level of environmental
these challenges.
protection, sufficient to ensure public health and food security.
During the deliberations this week two distinct areas of infor-
This is especially relevant to developing States where marine
mation emerged: Accomplishments since the Rio Summit and
industries often dominate coastal economies. It is therefore
Issues to be addressed to achieve the noble objectives of Agenda
important that ocean and coastal environments, with their asso-
21. Together with this, five overarching themes crystallized.
ciated biodiversity, be protected from potential threats posed by
anthropogenic activities at all scales. On a global scale, climate
Before getting into the overarching issues let me briefly describe
change impacts on Coastal States in general, and on Island States
the Legacy of the 1992 Rio Summit.
in particular, a result of rising sea-level (which compounds
The many international agreements promoting sustainable
coastal erosion) and rising sea temperatures (which causes coral
development have been unable to reverse or halt the effects of
bleaching in the tropics). At the local level, pollution and habi-
the globalisation process, which has effectively reinforced glob-
tat degradation resulting from industrial, agricultural and coastal
al inequality, deepening and widening the rift between the rich
urban development may cause irreversible damage to coastal
and poor.
environments, so threatening the life-support systems of both
The root cause of much of the discussion during the week cen-
ocean and coastal species. Counters to such threats must focus
tred around the failure to integrate international systems for
on precautionary measures for pollution prevention and reduc-
trade, finance and investment with the goals of sustainable
tion of habitat degradation. In specific cases, designated projects
87
Ministerial Perspectives on Oceans and Coasts at Rio+10
to enhance environmental rehabilitation are required, not least
ability and to ensure global political stability by removing
in reversing past losses to key ocean and coastal resources
sources of conflict (economic or otherwise). There has been con-
through the recovery of associated biodiversity.
sensus this week, that the complexity and scope of agreements
has often prejudiced their implementation. This is especially
Resource Conservation and Sustainable Use
true for developing countries, who, due to a general lack of
The world's ocean and coastal environments exhibit wide biodi-
capacity or through excessive duplication of function cannot
versity and ecological potential, thereby necessitating the
participate fully in these initiatives. This has tended to favour
greatest possible protection. Such protection is essential for
developed states. Furthermore, the economic benefits flowing
ensuring that a genetically diverse fauna and flora are preserved
from a general lack of standards for international governance or
so as to maximise the potential for sustainable resource develop-
resource exploitation (especially on the high seas) has tended to
ment, thereby contributing to alleviating poverty.
favour developed states. There are some current and planned
Long-term sustainable utilisation of ocean and coastal resources
projects to develop capacity. However I wish to urge current
necessitates the preservation of a balance between biological sus-
negotiations and those to take place over the next few years to
tainability of the resources concerned, equitable access to such
appreciate the current levels of capacity, so as to not marginalise
resources and economic stability.
developing states further.
To date, the need for economic stability has largely been driven
Data Management and Information Sharing
by developed States, which seems to lead to exploitation of the
A message to take forward to the WSSD, is that the success of
ocean and coastal resources in the developing world. This has
global, regional and national actions likely to emanate from the
both limited access to these resources for developing States and
WSSD will be critically dependent on a reliable system of infor-
has also compromised resource sustainability by encouraging
mation exchange. This requires recognition of the importance
profit-orientated exploitation at the expense of conservatory
of, and commitment to, information exchange to facilitate
practices.
appropriate partner initiatives and co-ordination of activities.
Solutions to this issue require development of equitable partner-
In identifying the above five issues, I have tried to comment on
ships between the developed and developing world.
the larger, over-arching issues. I am sure that in the fine print
A key principle to be carried forward is that long-term econom-
there are many more issues, the result of the deliberations of a
ic sustainability in the ocean and coastal sectors play a major
combination of experts from diverse fields of expertise.
role in ensuring food security and political stability in coastal
What should be the focus of WSSD?
states in general, and in coastal communities in the developing
world in particular.
We must understand that WSSD is about sustainable develop-
ment, equity, alleviation of poverty and ensuring economic and
Socio-Economic and Resource Development
food security and all the underlying aspects that underpin this
Several presentations throughout the week emphasized the link
concept.
between socio-economic development and the environment.
So many times this week as well as at the GPA Intergovernmental
The underlying theme here was finding mechanisms to integrate
Review last week, we heard that interventions at the regional
management in real ways and to strengthen the examples that
level should be encouraged. In many parts of the world, regional
have begun to show some results. A key constraint in the sus-
initiatives have proved to be successful. Some examples include
tainable development of ocean and coastal resources has been
the Cartagena Convention, the Mediterranean Action Plan and
the extent of prevailing poverty. This has forced many poor
the Russian Federation Arctic Programme. Closer to home African
developing States to sacrifice their natural environments and
countries have embarked on the African Process for the
resources to provide for some level of health, food and political
Development and Protection of the Coastal and Marine
security. Consequently the sustainable development of ocean
Environment, particularly in Sub-Saharan Africa.
and coastal resources, along with the development and optimi-
sation of attached socio-economic benefits, requires increased
This regional initiative, like the other Oceans and Coasts issues
support from developed States. This support is necessary to build
feed into the outcomes of WSSD. On this point, as Chair of the
capacity in developing States so that they benefit from sustain-
"African Process," I acknowledge and thank Minister Okopido of
able management, development and utilisation of ocean and
Nigeria, as the Presidency of the African Ministerial Conference
coastal resources.
on the Environment (AMCEN), for illustrating the vision and
functioning of the "African Process" on Monday during the
Ultimately, as a result of the tremendous pressure on our limited
Ministerial Perspectives Session. I also acknowledge the leader-
resources, there is a need to investigate alternative sustainable
ship of the Vice-Chair, Minister Kachamila of Mozambique. The
livelihood options to sustain our coastal communities.
`African Process" also represents the marine and coastal thrust
Ocean and Coastal Governance
within the larger African Development Programme, the "New
Partnership for Africa's Development" (NEPAD). It is for this rea-
The expressed purpose of many international marine, fisheries
son that Heads of State at the Lusaka OAU Summit in July 2001
or coastal agreements is to promote long-term resource sustain-
and African Environment Ministers at the recent African WSSD
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Toward the 2002 World Summit on Sustainable Development, Johannesburg
Preparatory Committee Meeting in Nairobi endorsed the resolu-
What would be the achievements of WSSD next year?
tion to convene the Partnership Conference at the level of Heads
A renewed commitment to Agenda 21. This renewed commit-
of State during WSSD. The President of South Africa, President
ment must take the form of setting in motion definite and
Thabo Mbeki and other African Heads of State met with the G8
practical implementing mechanisms.
leaders in July of 2001 to discuss the NEPAD initiative and the
next meeting is scheduled for July 2002.
We must find ways of implementing a global commitment to
eradicate poverty for sustainable development.
The NEPAD process is underpinned by the philosophy of re-
negotiating the North-South Relationships into effective and
WSSD must also find ways to impact on the economic factors
efficient partnerships, based on a true sense of partnership.
that underpin the marginalisation of the developing world, with
special reference to trade, finance and investment.
As we converge on Johannesburg next year, let me take a few
minutes and be the true tourist guide to our beautiful country.
Ultimately the WSSD must produce a Johannesburg Programme
of Action with clear commitments, deliverable targets, monitor-
Worth noting is that the Summit is to be held in Johannesburg
ing mechanisms, definite time frames and resources, which are
which is the largest metropolis and situated in the heart of our
readily accessible.
land mass, and certainly not close to any coast or ocean.
We should not forget that sustainable development rests on
I do encourage those of you attending the WSSD to spend some
three related pillars:
time visiting our coastal regions. I guarantee you will not be dis-
appointed, we certainly do have the big five: Great White Sharks,
· Economic Development;
Sword Fishes, Large populations of Anchovies and Sardines,
· Social Development; and
Whales and of course great numbers of Seabirds.
· Environment.
South Africa, with its fragile coastline of more than 3000 km, is
Of course, each of the pillars has subcomponents as the slide
situated at the tip of Africa and serves not only as the gateway to
illustrates. Oceans and coasts fit into the Environment Pillar.
Africa but also as the gateway to Antarctica. Flanked by the
Agulhas and Benguela currents on the east and west coasts
In conclusion, let us ensure that WSSD will not be just like any
respectively, our coast offers enormous economic opportunities
other resolution-generating conference, but that concrete deliv-
in terms of fisheries and tourism. Threatened by the fact that
erable actions with suitable timeframes and achievable
80% of the maritime traffic passes the Cape, South Africa,
objectives will be the outcome of this major global event.
through extensive consultative processes, put in place policies
Distinguished participants, there is no doubt that the ocean
and laws to address fisheries and sustainable coastal develop-
unites the peoples of the world. We need to be united in our
ment in South Africa. South Africa also has two Antarctic
actions and act in unity, so significantly reflected in the theme
interests, the Prince Edward and Marion Islands. Of course this
of the Summit:
unique location has considerable responsibilities in that South
"People, Planet, and Prosperity"
Africa has to service the South East Atlantic Fisheries
Organisation (SEAFO), the impending South West Indian Ocean
I thank you.
Fisheries Organisation (SWIFO) and the Convention for the
Conservation of Antarctic Marine Living Resources (CCAMLR).
Poverty and inequality are the greatest threats to global sustain-
able development in the twenty first century. I think that all
participants would agree, but we would emphasise that this be
consciously acknowledged in planning a strategy for this century.
To make serious inroads in addressing inequalities, there must be
serious interventions, even paradigm shifts in terms of trade,
investment and debt relief.
Governments alone cannot address the myriad - partnerships
with business, industry and civil society are critical.
National and regional projects should serve as the delivery
agents for such partnerships, so as to encourage ownership. The
point that ownership produces the best results has been made
several times this week and must not be ignored. The "African
Process" and the "New Partnership for Africa's Development"
serve as models of such delivery agents.
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Global Conference on Oceans and Coasts at Rio+10
Organizing Committee
NGOs/scientists
Ms. Evelia Rivera Arriaga, EPOMEX, University of Campeche,
Mexico
Chair: Dr. Biliana Cicin-Sain, Director, Center for the Study of
Marine Policy, University of Delaware, USA
Dr. Mario Ruivo, Portuguese Committee for IOC, Lisbon, Portugal
Dr. Tundi Agardy, Consultant
Dr. Albert Salman, European Union for Coastal Conservation
(EUCC), The Netherlands
Mr. Tim Bagley, Global Legislator's Organization for a
Balanced Environment
Dr. Hance Smith, Cardiff University, United Kingdom
Dr. Paula Caballero, Advisory Committee on Protection
Mr. Victor Sebek, Advisory Committee on Protection
of the Sea
of the Sea (ACOPS)
Dr. Aldo Chircop, Coordinator, Marine Affairs Program,
Dr. G. Robin South, University of South Pacific, Fiji
Dalhousie University, Canada
Dr. Juan Luis Suárez de Vivero, University of Sevilla, Spain
Dr. Chua Thia-Eng, GEF/UNDP/IMO Regional Programme on
Dr. Phiphat Tangsubkul, Southeast Asia Programme in
Building Partnerships in Environmental Management for the Seas of
Ocean Law, Policy and Management (SEAPOL)
East Asia, Philippines
Mr. Hiroshi Terashima, The Nippon Foundation, Japan
Dr. Harry Cocossis, University of the Aegean, Greece
Dr. Adalberto Vallega, International Geographical Union and
Dr. Charlotte de Fontaubert, Greenpeace, USA
International Centre for Coastal and Ocean Policy Studies, Italy
Mr. Richard Delaney, Director, Urban Harbors Institute,
Prof. Jon M. Van Dyke, Ocean Governance Study Group,
University of Massachusetts-Boston, USA
William S. Richardson School of Law, University of Hawaii, USA
Dr. Enir Girondi Reis, Fundaçao Universidade
Dr. Jentje van der Weide, Delft Hydraulics, The Netherlands
do Rio Grande, Brazil
Dr. Geoffrey Wescott, Deakin University, Melbourne, Australia
Mr. Moritaka Hayashi, Waseda University School of Law, Japan
(member of the Australian National Oceans Advisory Group)
Dr. Tim Hennessey, Marine Affairs and Policy Association
International Organizations
Dr. Yves Hénocque, IFREMER, France
Chair: Dr. Patricio Bernal, Executive Secretary, Intergovernmental
Dr. Douglas Johnston, University of Victoria, Canada
Oceanographic Commission (IOC), UNESCO, France
Dr. Richard Kenchington, RAC Marine Pty Ltd., Australia
Dr. Chris Crossland, Land-Ocean Interactions in the Coastal Zone
Dr. Barbara Kwiatkowska, Netherlands Institute of Law of the Sea,
(LOICZ), The Netherlands
The Netherlands
Mr. Michael Z. Cutajar, United Nations Framework Convention
Dr. Gunnar Kullenberg, International Ocean Institute, Malta
on Climate Change, Germany
Dr. Gerard Mangone, Editor, International Journal of Marine and
Dr. David Freestone, Legal Advisor, World Bank, Washington
Coastal Law, University of Delaware, USA
Mr. Serge Garcia, Food and Agriculture Organization (FAO), Italy
Dr. Elisabeth Mann Borgese, International Ocean Institute, Canada
Dr. Marea Hatziolos, Senior Coastal and Marine Resource
Mr. Sebastian Mathew, International Collective in Support of
Specialist, Environment Department, World Bank
Fish Workers, India
Dr. Indumathie Hewawasam, Africa Region, World Bank
Prof. Alain Miossec, University of Nantes and International
Dr. Geoffrey Holland, Canada, Former Chairman, IOC, UNESCO
Geographical Union, France
Mr. Andy Hooten, AJH, Environmental Services
Prof. John Morrison, Ocean and Coastal Research Centre,
University of Wollongong, Australia
Dr. Su Jilan, China, Chairman, IOC, UNESCO
Dr. Hiroyuki Nakahara, Research Institute for Ocean Economics,
Mr. Phil Reynolds, United Nations Development Program
Japan
Consultant and Former Chief, Water Program, UNDP
Mr. Steve Olsen, Coastal Resources Center, Rhode Island, USA
Dr. Will Steffen, Executive Director, International Geosphere-
Biosphere Programme (IGBP), Sweden
Dr. Erdal Özhan, MEDCOAST, Middle East Technical University,
Ankara, Turkey
Dr. Narasimhan Sundararaman, Secretary, Intergovernmental
Panel on Climate Change (IPCC), Switzerland
Mr. Pietro Parravano, World Forum of Fish-Harvesters &
Fishworkers
Mr. Dirk Troost, Environment and Development in Coastal Regions
and in Small Islands (CSI), UNESCO, France
Dr. Sian Pullen, World Wildlife Fund, United Kingdom
Mr. Ivica Trumbic, Regional Activity Centre for Priority Actions
Dr. R. Rajagopalan, International Ocean Insitute, India
Programme, Croatia
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Ministerial Perspectives on Oceans and Coasts at Rio+10
Mr. Tamari'i Tutangata, Director, South Pacific Regional
Mr. Victor I. Kalyuzhnyi, Deputy Minister of Foreign Affairs, Russian
Environment Programme
Federation
Dr. Veerle Vandeweerd, Coordinator UNEP/GPA Coordination
Prof. Vladimir A. Knyazhev, Deputy Minister of Industry,
Office, The Hague, Netherlands
Science and Technology, Russian Federation
Dr. Clive Wilkinson, Global Coral Reef Monitoring Network,
Mr. Tom Laughlin, U.S. National Oceanic and Atmospheric
The Australian Institute of Marine Science, Australia
Administration
H. Rokhmin Dahuri, Minister, Ministry of Marine Affairs and
Government Sector
Fisheries, Indonesia
Chair: Dr. Seoung Yong Hong, Vice-Minister, Ministry of Maritime
Dr. Yuriy Mikhaylichenko, Ministry of Industry, Science and
Affairs and Fisheries, Korea
Technology, Russian Federation
Mr. Daniel Basta, National Marine Sanctuary System, U.S. National
Mr. Haiqing Li, State Oceanic Administration, China
Oceanic and Atmospheric Administration
H. Francisco Mabjaia, Vice Minister, Ministry for the
H. Victor Lichtinger, Minister, Ministry of Environment, Natural
Environment, Mozambique
Resources, Mexico
Ms. Camille Mageau, Department of Fisheries and Oceans,
H. Herb Dhaliwal, Minister, Department of Fisheries and Oceans,
Ottawa, Canada
Canada
Ms. Evelyne Meltzer, Department of Fisheries and Oceans, Halifax,
H. Rawle C. Eastmond, Minister, Ministry of Environment,
Canada
Energy and Natural Resources, Barbados
Dr. Magnus Ngoile, Director-General, Natural Resources
Mr. Charles Ehler, National Ocean Service, U.S. National Oceanic
Management Council, Tanzania
and Atmospheric Administration
H. Ambassador Tuiloma Neroni Slade, Chairman, Alliance for
Mr. Lennox Hinds, Canadian International Development Agency
Small Island States and Ambassador/Permanent Representative
H. Robert Hill, Minister, Ministry for the Environment, Australia
of Samoa
H. Diane James, Chair, Victorian Coastal Council, Australia
H. Jose Sarney Filho, Minister, Ministry for Environment, Brazil
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