Policy and Science Implications of the Framing and Qualities of Uncertainty in Risks: Toxic and Beneficial Fish from the Baltic Sea

Policy and research issues in the framing and qualities of uncertainties in risks are analyzed, based on the assessments of dioxin-like compounds (DLCs) and other ingredients in Baltic Sea fish, a high-profile case of governance. Risks are framed broadly, to then focus on dioxins and beneficial fatty acids, fish consumption, human health, and science-management links. Hierarchies of uncertainty (data, model, decision rule, and epistemic) and ambiguity (of values) are used to identify issues of scientific and policy contestation and opportunities for resolving them. The associated complexity of risks is illustrated by risk–benefit analyses of fish consumption and by evaluations of guideline values, highlighting value contents and policy factors in presumably scientific decision criteria, and arguments used in multi-dimensional risk and benefit comparisons. These comparisons pose challenges to narrow assessments centered, for e.g., on toxicants or on food benefits, and to more many-sided and balanced risk communication and management. It is shown that structured and contextualized treatment of uncertainties and ambiguities in a reflexive approach can inform balances between wide and narrow focus, detail and generality, and evidence and precaution.     

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.     

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.     

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.     

Governance of Complex Socio-Environmental Risks: The Case of Hazardous Chemicals in the Baltic Sea

Complex socio-environmental risks challenge society. In response to scientific uncertainty and socio-political controversies, environmental governance, precaution, and the ecosystem approach to management are held forward as complements to governmental risk-based sector-restricted regulation. We analyze this development for hazardous substances in the Baltic Sea. Based on interviews and policy analysis, we study informal governance and, in particular, four central EU and international policies, and investigate how present governance relates to risks and objectives at hand. While showing emergence of broader governance approaches, we conclude that central objectives will not likely be met. Furthermore, we question the quest for broad environmental governance and emphasize the value of command and control regulation, if it implements precaution. These findings contribute to the theorizing on environmental (risk) governance. Finally, we provide some ideas that could help development and implementation of risk policies for hazardous chemicals in the Baltic Sea as well as other complex risks.     

The Regional Advisory Councils: What is Their Potential to Incorporate Stakeholder Knowledge into Fisheries Governance?

The protection of the Baltic Sea ecosystem is exacerbated by the social, environmental and economic complexities of governing European fisheries. Increased stakeholder participation and knowledge integration are suggested to improve the EU’s Common Fisheries Policy (CFP), suffering from legitimacy, credibility and compliance problems. As a result, the CFP was revised in 2002 to involve fisheries representatives, NGOs and other stakeholders through so called Regional Advisory Councils (RACs) in the policy process. We address the RAC’s task to incorporate stakeholder knowledge into the EU’s fisheries governance system in empirical and theoretical perspectives. Drawing on a four-stage governance concept we subsequently suggest that a basic problem is a mismatch between participation purpose (knowledge inclusion) and the governance stage at which RACs are formally positioned (evaluation of management proposals). We conclude that, if the aim is to broaden the knowledge base of fisheries management, stakeholders need to be included earlier in the governance process.     

Science–policy processes for transboundary water governance

In this policy perspective, we outline several conditions to support effective science–policy interaction, with a particular emphasis on improving water governance in transboundary basins. Key conditions include (1) recognizing that science is a crucial but bounded input into water resource decision-making processes; (2) establishing conditions for collaboration and shared commitment among actors; (3) understanding that social or group-learning processes linked to science–policy interaction are enhanced through greater collaboration; (4) accepting that the collaborative production of knowledge about hydrological issues and associated socioeconomic change and institutional responses is essential to build legitimate decision-making processes; and (5) engaging boundary organizations and informal networks of scientists, policy makers, and civil society. We elaborate on these conditions with a diverse set of international examples drawn from a synthesis of our collective experiences in assessing the opportunities and constraints (including the role of power relations) related to governance for water in transboundary settings.     

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.     

Closing a Loop: Substance Flow Analysis of Nitrogen and Phosphorus in the Rainbow Trout Production and Domestic Consumption System in Finland

Ongoing eutrophication is changing the Baltic Sea ecosystem. Aquaculture causes relatively small-scale nutrient emissions, but local environmental impact may be considerable. We used substance flow analysis (SFA) to identify and quantify the most significant flows and stocks of nitrogen (N) and phosphorus (P) related to rainbow trout aquaculture in Finland. In 2004–2007, the input of nutrients to the system in the form of fish feed was 829 t N year⁻¹ and 115 t P year⁻¹. Around one-fifth of these nutrients ended up as food for human consumption. Of the primary input, 70% ended up in the Baltic Sea, directly from aquaculture and indirectly through waste management. The nutrient cycle could be closed partially by using local fish instead of imported fish in rainbow trout feed, thus reducing the net load of N and P to a fraction.     

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.     

Urban Transitions: On Urban Resilience and Human-Dominated Ecosystems

Urbanization is a global multidimensional process paired with increasing uncertainty due to climate change, migration of people, and changes in the capacity to sustain ecosystem services. This article lays a foundation for discussing transitions in urban governance, which enable cities to navigate change, build capacity to withstand shocks, and use experimentation and innovation in face of uncertainty. Using the three concrete case cities—New Orleans, Cape Town, and Phoenix—the article analyzes thresholds and cross-scale interactions, and expands the scale at which urban resilience has been discussed by integrating the idea from geography that cities form part of “system of cities” (i.e., they cannot be seen as single entities). Based on this, the article argues that urban governance need to harness social networks of urban innovation to sustain ecosystem services, while nurturing discourses that situate the city as part of regional ecosystems. The article broadens the discussion on urban resilience while challenging resilience theory when addressing human-dominated ecosystems. Practical examples of harnessing urban innovation are presented, paired with an agenda for research and policy.     

Actors and arenas in hybrid networks: implications for environmental policymaking in the Baltic Sea region

Policymaking within and among states is under pressure for change. One feature of this change is empirically observed as an activation of different network structures in the Baltic Sea Region, especially since the collapse of the Iron Curtain, the initiation of the Rio process, and the enlargement of the European Union. The contemporary theoretical debates about governance highlight the changing conditions for policymaking and implementation on all societal levels. This process of change, especially evident concerning environmental policies, includes new types of networks crossing state borders both at the supranational and the subnational levels. This article illuminates this process of change with empirical data from the project "Governing a Common Sea" (GOVCOM) within the Baltic Sea Research Program (BIREME).     

Saving the Baltic Sea,the Inland Waters of Its Drainage Basin,or Both? Spatial Perspectives on Reducing P-Loads in Eastern Sweden

Nutrient loads from inland sources to the Baltic Sea and adjacent inland waters need to be reduced in order to prevent eutrophication and meet requirements of the European Water Framework Directive (WFD) and the Baltic Sea Action Plan (BSAP). We here investigate the spatial implications of using different possible criteria for reducing water-borne phosphorous (P) loads in the Northern Baltic Sea River Basin District (NBS-RBD) in Sweden. Results show that most catchments that have a high degree of internal eutrophication do not express high export of P from their outlets. Furthermore, due to lake retention, lake catchments with high P-loads per agricultural area (which is potentially of concern for the WFD) did not considerably contribute to the P-loading of the Baltic Sea. Spatially uniform water quality goals may, therefore, not be effective in NBS-RBD, emphasizing more generally the need for regional adaptation of WFD and BSAP-related goals.

Electronic supplementary material

The online version of this article (doi:10.1007/s13280-014-0523-x) contains supplementary material, which is available to authorized users.     

The Swedish monitoring of surface waters: 50 years of adaptive monitoring

For more than 50 years, scientific insights from surface water monitoring have supported Swedish evidence-based environmental management. Efforts to understand and control eutrophication in the 1960s led to construction of wastewater treatment plants with phosphorus retention, while acid rain research in the 1970s contributed to international legislation curbing emissions. By the 1990s, long-time series were being used to infer climate effects on surface water chemistry and biology. Monitoring data play a key role in implementing the EU Water Framework Directive and other legislation and have been used to show beneficial effects of agricultural management on Baltic Sea eutrophication. The Swedish experience demonstrates that well-designed and financially supported surface water monitoring can be used to understand and manage a range of stressors and societal concerns. Using scientifically sound adaptive monitoring principles to balance continuity and change has ensured long-time series and the capability to address new questions over time.     

Baltic Sea ecosystem-based management under climate change: Synthesis and future challenges

Ecosystem-based management (EBM) has emerged as the generally agreed strategy for managing ecosystems, with humans as integral parts of the managed system. Human activities have substantial effects on marine ecosystems, through overfishing, eutrophication, toxic pollution, habitat destruction, and climate change. It is important to advance the scientific knowledge of the cumulative, integrative, and interacting effects of these diverse activities, to support effective implementation of EBM. Based on contributions to this special issue of AMBIO, we synthesize the scientific findings into four components: pollution and legal frameworks, ecosystem processes, scale-dependent effects, and innovative tools and methods. We conclude with challenges for the future, and identify the next steps needed for successful implementation of EBM in general and specifically for the Baltic Sea.     

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.     

Governance of Water Resources in the Phase of Change: A Case Study of the Implementation of the EU Water Framework Directive in Sweden

In this article, focusing on the ongoing implementation of the EU Water Framework Directive, we analyze some of the opportunities and challenges for a sustainable governance of water resources from an ecosystem management perspective. In the face of uncertainty and change, the ecosystem approach as a holistic and integrated management framework is increasingly recognized. The ongoing implementation of the Water Framework Directive (WFD) could be viewed as a reorganization phase in the process of change in institutional arrangements and ecosystems. In this case study from the Northern Baltic Sea River Basin District, Sweden, we focus in particular on data and information management from a multi-level governance perspective from the local stakeholder to the River Basin level. We apply a document analysis, hydrological mapping, and GIS models to analyze some of the institutional framework created for the implementation of the WFD. The study underlines the importance of institutional arrangements that can handle variability of local situations and trade-offs between solutions and priorities on different hierarchical levels.     

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.     

On the uncertainty and confidence in decision support tools (DSTs) with insights from the Baltic Sea ecosystem

Ecosystems around the world are increasingly exposed to multiple, often interacting human activities, leading to pressures and possibly environmental state changes. Decision support tools (DSTs) can assist environmental managers and policy makers to evaluate the current status of ecosystems (i.e. assessment tools) and the consequences of alternative policies or management scenarios (i.e. planning tools) to make the best possible decision based on prevailing knowledge and uncertainties. However, to be confident in DST outcomes it is imperative that known sources of uncertainty such as sampling and measurement error, model structure, and parameter use are quantified, documented, and addressed throughout the DST set-up, calibration, and validation processes. Here we provide a brief overview of the main sources of uncertainty and methods currently available to quantify uncertainty in DST input and output. We then review 42 existing DSTs that were designed to manage anthropogenic pressures in the Baltic Sea to summarise how and what sources of uncertainties were addressed within planning and assessment tools. Based on our findings, we recommend future DST development to adhere to good modelling practise principles, and to better document and communicate uncertainty among stakeholders.Electronic supplementary materialThe online version of this article (doi:10.1007/s13280-020-01385-x) contains supplementary material, which is available to authorized users.     

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.