The Governance of the Mitigation of the Baltic Sea Eutrophication: Exploring the Challenges of the Formal Governing System

This article focuses on the governing system of the mitigation of eutrophication in the Baltic Sea. Policies and measures of the Baltic Sea coastal countries, the macro--regional (HELCOM) level, and the level of the European Union are described and governance challenges explicated. We found that the main challenges at different governance levels include: differences between coastal countries in terms of environmental conditions including environmental awareness, overlaps of policies between different levels, the lack of adequate spatial and temporal specification of policies, and the lack of policy integration. To help to meet these challenges, we suggest closer involvement of stakeholders and the public, the improvement of the interplay of institutions, and the introduction of a “primus motor” for the governance of the mitigation of eutrophication in the Baltic Sea.     

A New Phosphorus Paradigm for the Baltic Proper

The external phosphorus (P) loading has been halved, but the P content in the water column and the area of anoxic bottoms in Baltic proper has increased during the last 30 years. This can be explained by a temporary internal source of dissolved inorganic phosphorus (DIP) that is turned on when the water above the bottom sediment becomes anoxic. A load-response model, explaining the evolution from 1980 to 2005, suggests that the average specific DIP flux from anoxic bottoms in the Baltic proper is about 2.3 g P m⁻² year⁻¹. This is commensurable with fluxes estimated in situ from anoxic bottoms in the open Baltic proper and from hydrographic data in the deep part of Bornholm Basin. Oxygenation of anoxic bottoms, natural or manmade, may quickly turn off the internal P source from anoxic bottoms. This new P-paradigm should have far-reaching implications for abatement of eutrophication in the Baltic proper.

Electronic supplementary material

The online version of this article (doi:10.1007/s13280-013-0441-3) contains supplementary material, which is available to authorized users.     

Climate Change Impact on Riverine Nutrient Load and Land-Based Remedial Measures of the Baltic Sea Action Plan

To reduce eutrophication of the Baltic Sea, all nine surrounding countries have agreed upon reduction targets in the HELCOM Baltic Sea Action Plan (BSAP). Yet, monitoring sites and model concepts for decision support are few. To provide one more tool for analysis of water and nutrient fluxes in the Baltic Sea basin, the HYPE model has been applied to the region (called Balt-HYPE). It was used here for experimenting with land-based remedial measures and future climate projections to quantify the impacts of these on water and nutrient loads to the sea. The results suggest that there is a possibility to reach the BSAP nutrient reduction targets by 2100, and that climate change may both aggravate and help in some aspects. Uncertainties in the model results are large, mainly due to the spread of the climate model projections, but also due to the hydrological model.     

Baltic Sea hazardous substances management: results and challenges

The introduction into the Baltic Sea of hazardous substances that are persistent, bioaccumulate, and are toxic is an important environmental and human health problem. Multilateral efforts to address this problem have primarily been taken under the Helsinki Commission (HELCOM). This article examines past HELCOM efforts on hazardous substances, and discusses future challenges regarding their management. The article finds that past actions on hazardous substances have had a positive effect on improving Baltic environmental quality and reducing human health risks, although there are remaining issues and difficulties that need to be addressed. In particular, four related future challenges for HELCOM management of hazardous substances are identified and discussed: i) the need to engender further implementation and building public and private sector capacities; ii) the need to improve data availability, quality and comparability across the region and international fora; iii) the need to strengthen existing regulations and incorporate new issues; and iv) the need to effectively coordinate HELCOM activities with efforts on hazardous substances in other international fora.     

Long-term development of inorganic nutrients and chlorophyll alpha in the open northern Baltic Sea

Eutrophication is an ongoing process in most parts of the Baltic Sea. This article reports on the changes during recent decades of several eutrophication-related variables in the open sea areas surrounding Finland (wintertime nutrient concentrations, wintertime nutrient ratios, and summer time chlorophyll alpha concentrations at the surface). The sum of nitrate- and nitrite-nitrogen ([NO3+NO2]-N) was observed to increase nearly fourfold in the Northern Baltic Proper and the Gulf of Finland and almost double in the Bothnian Sea from the 1960s until the 1980s or 1990s. The increase was followed by a decrease, which was modest in the two former subregions. Phosphate-phosphorus (PO4-P) concentrations followed a similar pattern in the Northern Baltic Proper (threefold increase and subsequent slight decrease) and Bothnian Sea (30% increase and subsequent decrease), but increased throughout the study in the Gulf of Finland, with the present concentration being threefold to the measurements made in the early 1970s. The PO4-P concentration decreased throughout the study in the Bothnian Bay. Silicate-silicon (SiO4-Si) concentrations decreased 30-50% from the early 1970s to the late 1990s and increased 20-40% thereafter in the Northern Baltic Proper, the Gulf of Finland, and the Bothnian Sea. Chlorophyll alpha showed an increase of over 150% in the Northern Baltic Proper and the Gulf of Finland from the 1970s until the early 2000s. In the Bothnian Sea the chlorophyll alpha concentration increased more than 180% from the late 1970s until the late 1990s, and decreased thereafter. According to these long-term observations, the Gulf of Finland and Northern Baltic Proper show clear signs of eutrophication, which may be emphasized by hydrographical changes affecting the phytoplankton communities and thus the algal biomass.     

Relationships between colored dissolved organic matter and dissolved organic carbon in different coastal gradients of the Baltic Sea

Due to high terrestrial runoff, the Baltic Sea is rich in dissolved organic carbon (DOC), the light-absorbing fraction of which is referred to as colored dissolved organic matter (CDOM). Inputs of DOC and CDOM are predicted to increase with climate change, affecting coastal ecosystems. We found that the relationships between DOC, CDOM, salinity, and Secchi depth all differed between the two coastal areas studied; the W Gulf of Bothnia with high terrestrial input and the NW Baltic Proper with relatively little terrestrial input. The CDOM:DOC ratio was higher in the Gulf of Bothnia, where CDOM had a greater influence on the Secchi depth, which is used as an indicator of eutrophication and hence important for Baltic Sea management. Based on the results of this study, we recommend regular CDOM measurements in monitoring programmes, to increase the value of concurrent Secchi depth measurements.     

The Effects of Hypoxia on Sediment Nitrogen Cycling in the Baltic Sea

Primary production in the eutrophic Baltic Sea is limited by nitrogen availability; hence denitrification (natural transformation of nitrate to gaseous N₂) in the sediments is crucial in mitigating the effects of eutrophication. This study shows that dissimilatory nitrate reduction to ammonium (DNRA) process, where nitrogen is not removed but instead recycled in the system, dominates nitrate reduction in low oxygen conditions (O₂ <110 μM), which have been persistent in the central Gulf of Finland during the past decade. The nitrogen removal rates measured in this study show that nitrogen removal has decreased in the Gulf of Finland compared to rates measured in mid-1990s and the decrease is most likely caused by the increased bottom water hypoxia.     

Impact of Climate Change on Ecological Quality Indicators and Biogeochemical Fluxes in the Baltic Sea: A Multi-Model Ensemble Study

Multi-model ensemble simulations using three coupled physical-biogeochemical models were performed to calculate the combined impact of projected future climate change and plausible nutrient load changes on biogeochemical cycles in the Baltic Sea. Climate projections for 1961-2099 were combined with four nutrient load scenarios ranging from a pessimistic business-as-usual to a more optimistic case following the Helsinki Commission's (HELCOM) Baltic Sea Action Plan (BSAP). The model results suggest that in a future climate, water quality, characterized by ecological quality indicators like winter nutrient, summer bottom oxygen, and annual mean phytoplankton concentrations as well as annual mean Secchi depth (water transparency), will be deteriorated compared to present conditions. In case of nutrient load reductions required by the BSAP, water quality is only slightly improved. Based on the analysis of biogeochemical fluxes, we find that in warmer and more anoxic waters, internal feedbacks could be reinforced. Increased phosphorus fluxes out of the sediments, reduced denitrification efficiency and increased nitrogen fixation may partly counteract nutrient load abatement strategies.     

Toward Integrative Management Advice of Water Quality, Oil Spills, and Fishery in the Gulf of Finland: A Bayesian Approach

Understanding and managing ecosystems affected by several anthropogenic stressors require methods that enable analyzing the joint effects of different factors in one framework. Further, as scientific knowledge about natural systems is loaded with uncertainty, it is essential that analyses are based on a probabilistic approach. We describe in this article about building a Bayesian decision model, which includes three stressors present in the Gulf of Finland. The outcome of the integrative model is a set of probability distributions for future nutrient concentrations, herring stock biomass, and achieving the water quality targets set by HELCOM Baltic Sea Action Plan. These distributions can then be used to derive the probability of reaching the management targets for each alternative combination of management actions.     

Impact of Climate Change on Fish Population Dynamics in the Baltic Sea: A Dynamical Downscaling Investigation

Understanding how climate change, exploitation and eutrophication will affect populations and ecosystems of the Baltic Sea can be facilitated with models which realistically combine these forcings into common frameworks. Here, we evaluate sensitivity of fish recruitment and population dynamics to past and future environmental forcings provided by three ocean-biogeochemical models of the Baltic Sea. Modeled temperature explained nearly as much variability in reproductive success of sprat (Sprattus sprattus; Clupeidae) as measured temperatures during 1973-2005, and both the spawner biomass and the temperature have influenced recruitment for at least 50 years. The three Baltic Sea models estimate relatively similar developments (increases) in biomass and fishery yield during twenty-first century climate change (ca. 28 % range among models). However, this uncertainty is exceeded by the one associated with the fish population model, and by the source of global climate data used by regional models. Knowledge of processes and biases could reduce these uncertainties.     

Climate Warming and Pikeperch Year-Class Catches in the Baltic Sea

Climate change scenarios concerning the Baltic Sea predict increase in surface water temperatures. Pikeperch (Sander lucioperca (L.)) inhabits the coastal areas of the northern Baltic Sea and is an important fish species for the Finnish fisheries. The year-class strength of pikeperch varies strongly between years and significantly depends on water temperature. We aimed to study the effects of changing temperature conditions on pikeperch fisheries and distribution based on commercial catch data from the period 1980–2008 in the Finnish coastal areas of the Baltic Sea. The results indicated that warmer summers will produce stronger pikeperch year-classes that consequently contribute significantly to the future catches. The average temperature in June–July explained 40% of the variation in the year-class catches in the Gulf of Finland and 73% in July–August in the Archipelago Sea. During the study period, the distribution of pikeperch catches expanded toward north along the coasts of the Bothnian Sea.     

A Multivariate Baltic Sea Environmental Index

Since 2001/2002, the correlation between North Atlantic Oscillation index and biological variables in the North Sea and Baltic Sea fails, which might be addressed to a global climate regime shift. To understand inter-annual and inter-decadal variability in environmental variables, a new multivariate index for the Baltic Sea is developed and presented here. The multivariate Baltic Sea Environmental (BSE) index is defined as the 1st principal component score of four z-transformed time series: the Arctic Oscillation index, the salinity between 120 and 200 m in the Gotland Sea, the integrated river runoff of all rivers draining into the Baltic Sea, and the relative vorticity of geostrophic wind over the Baltic Sea area. A statistical downscaling technique has been applied to project different climate indices to the sea surface temperature in the Gotland, to the Landsort gauge, and the sea ice extent. The new BSE index shows a better performance than all other climate indices and is equivalent to the Chen index for physical properties. An application of the new index to zooplankton time series from the central Baltic Sea (Latvian EEZ) shows an excellent skill in potential predictability of environmental time series.     

Past,current and future Swedish freshwater monitoring from an authority perspective

The synthesis of the BONUS+ research is introduced. The HELCOM Baltic Sea Action Plan is examined as a case to illustrate the potentials and challenges in building the science–policymaking interface on a macroregional level. The projects address environmental challenges in the Baltic Sea as defined by the Baltic Sea Action Plan, or consider the environmental governance and decision making within the Baltic Sea context in general. Eutrophication, biodiversity, hazardous substances, maritime activities, and the environment governance are addressed, as are crosscutting issues, such as the impact of climate change, maritime spatial planning and impacts of future development on ecosystem services. The projects contributed to relevant policy developments: 37 consultations carried out at EU level, 49 modifications to policy documents and action plans, 153 suggestions for the efficacy of pertinent public policies and governance, and in 570 occasions, scientists working in BONUS+ projects served as members or observers in scientific and stakeholder committees.     

Seasonal variations in phosphorus species in the surface sediments of the Gulf of Riga, Baltic Sea.

The redox-dependent variations in concentrations of phosphorus at two different accumulation bottom areas were investigated in the Gulf of Riga (Baltic Sea) between December 1993 and January 1995. The sediment samples from nine sampling occasions were analyzed for phosphorus forms and redox potential. The average concentrations of total phosphorus measured in 0-1 cm (65 and 89 micromol P g(-1) for sites G5 and T3, respectively) were among the highest reported from the entire Baltic Sea. Redox-dependent "mobile" phosphorus (MP) contributed more than 50% of total in the uppermost-oxidized centimeter, whereas in reduced layers it was 16-18% throughout the year. The significant differences (ANOVA, P<0.01) among months of inorganic phosphorus (IP) concentration at 0-1 cm were observed at site G5 due to temporary accumulation of mobile phosphorus mediated by redox-dependent bacteria activity during summer. On the contrary no accumulation was observed at T3 probably as a result of low redox potential caused by high accumulation rates and low bioturbation. Although the water column above sediments remained oxic throughout the investigation period, the redox potential at site T3 was close to the redoxcline (i.e., +230 mV) during summer. Further increase of eutrophication might lead to development of anoxic conditions at sediment-water interface and that in turn will result in rapid release of redox-dependent phosphorus stored in surface sediments. The availability of excess phosphorus will further enhance eutrophication in partly phosphorus-limited Gulf of Riga.     

Permanent seafloor anoxia in coastal basins of the northwestern Gulf of Finland, Baltic Sea

The Gulf of Finland is regularly affected by inflows of anoxic deep-water masses from the northern Baltic proper. These dense water masses advance over large areas with a decline of benthic life in affected areas as a result. Such events have been regularly repeated over decades and centuries. The archipelago, however, is well protected, because the inflows of anoxic deep waters do not enter such shallow waters. The situation could thus be better for benthic life in the archipelago, but in many areas this is not true. In areas where the bottoms are sheltered from storms and currents, permanent anoxia can persist for decades. Such areas were found in the western archipelago of the Gulf of Finland. Examination of surface cores revealed that many of these basins have been continuously anoxic for almost 40 years. A deeper coring showed that, at least locally, shallow water seafloor anoxia has been a fact in the area for thousands of years.     

Modeling Nutrient Transports and Exchanges of Nutrients Between Shallow Regions and the Open Baltic Sea in Present and Future Climate

We quantified horizontal transport patterns and the net exchange of nutrients between shallow regions and the open sea in the Baltic proper. A coupled biogeochemical-physical circulation model was used for transient simulations 1961-2100. The model was driven by regional downscaling of the IPCC climate change scenario A1B from two global General Circulation Models in combination with two nutrient load scenarios. Modeled nutrient transports followed mainly the large-scale internal water circulation and showed only small circulation changes in the future projections. The internal nutrient cycling and exchanges between shallow and deeper waters became intensified, and the internal removal of phosphorus became weaker in the warmer future climate. These effects counteracted the impact from nutrient load reductions according to the Baltic Sea Action Plan. The net effect of climate change and nutrient reductions was an increased net import of dissolved inorganic phosphorus to shallow areas in the Baltic proper.     

Framing Environmental Risks in the Baltic Sea: A News Media Analysis

Scientific complexity and uncertainty is a key challenge for environmental risk governance and to understand how risks are framed and communicated is of utmost importance. The Baltic Sea ecosystem is stressed and exposed to different risks like eutrophication, overfishing, and hazardous chemicals. Based on an analysis of the Swedish newspaper Dagens Nyheter, this study discusses media representations of these risks. The results show that the reporting on the Baltic Sea has been fairly stable since the beginning of the 1990s. Many articles acknowledge several risks, but eutrophication receives the most attention and is also considered the biggest threat. Authorities, experts, organizations, and politicians are the dominating actors, while citizens and industry representatives are more or less invisible. Eutrophication is not framed in terms of uncertainty concerning the risk and consequences, but rather in terms of main causes.     

Arsenic in sediments from the southeastern Baltic Sea

Arsenic occurs as a persistent constituent in many of the chemical weapons dumped into the Baltic Sea; it can be used as an indicator of leakage and dispersal of released munitions to the marine environment. Total arsenic was analysed in sediment samples taken from the Lithuanian economic zone in the Baltic Sea, which included samples from the chemical munitions dumpsite in the Gotland Basin and national monitoring stations in the southeastern Baltic Sea. Arsenic concentrations in sediments ranged from 1.1 to 19.0 mg kg(-1), with an average of 3.4 mg kg(-1). Although there was evidence of slightly elevated arsenic content in sediments near the weapons dumpsite, arsenic concentrations were nevertheless quite low relative to other investigations in the Baltic and North Seas.     

Development of Tools for Integrated Monitoring and Assessment of Hazardous Substances and Their Biological Effects in the Baltic Sea

The need to develop biological effects monitoring to facilitate a reliable assessment of hazardous substances has been emphasized in the Baltic Sea Action Plan of the Helsinki Commission. An integrated chemical–biological approach is vitally important for the understanding and proper assessment of anthropogenic pressures and their effects on the Baltic Sea. Such an approach is also necessary for prudent management aiming at safeguarding the sustainable use of ecosystem goods and Services. The BEAST project (Biological Effects of Anthropogenic Chemical Stress: Tools for the Assessment of Ecosystem Health) set out to address this topic within the BONUS Programme. BEAST generated a large amount of quality-assured data on several biological effects parameters (biomarkers) in various marine species in different sub-regions of the Baltic Sea. New indicators (biological response measurement methods) and management tools (integrated indices) with regard to the integrated monitoring approach were suggested.     

The Potential of Current- and Wind-Driven Transport for Environmental Management of the Baltic Sea

The ever increasing impact of the marine industry and transport on vulnerable sea areas puts the marine environment under exceptional pressure and calls for inspired methods for mitigating the impact of the related risks. We describe a method for preventive reduction of remote environmental risks caused by the shipping and maritime industry that are transported by surface currents and wind impact to the coasts. This method is based on characterizing systematically the damaging potential of the offshore areas in terms of potential transport to vulnerable regions of an oil spill or other pollution that has occurred in a particular area. The resulting maps of probabilities of pollution to be transported to the nearshore and the time it takes for the pollution to reach the nearshore are used to design environmentally optimized fairways for the Gulf of Finland, Baltic Proper, and south-western Baltic Sea.