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 North Sea and Baltic Sea Model Ensemble Eutrophication Assessment

A method to combine observations and an ensemble of ecological models is suggested to produce a eutrophication assessment. Using threshold values and methodology from the Oslo and Paris Commissions (OSPAR) and the Helsinki Commission (HELCOM), four models are combined to assess eutrophication for the Baltic and North Seas for the year 2006. The assessment indicates that the entire southeastern part of the North Sea, the Kattegat, the Danish Straits, the Gulf of Finland, and the Gulf of Riga as well as parts of the Arkona Basin, the Bornholm Basin, and the Baltic proper may be classified as problem areas. The Bothnian Bay and parts of the Baltic proper, the Bornholm Basin, and the Arkona Basin are classified as potential problem areas. This method is a useful tool for the classification of eutrophication; however, the results depend on the threshold values, and further work is needed within both OSPAR and HELCOM to harmonize these values.     

Coping with Complexity,Uncertainty and Ambiguity in Risk Governance: A Synthesis

The term governance describes the multitude of actors and processes that lead to collectively binding decisions. The term risk governance translates the core principles of governance to the context of risk-related policy making. We aim to delineate some basic lessons from the insights of the other articles in this special issue for our understanding of risk governance. Risk governance provides a conceptual as well as normative basis for how to cope with uncertain, complex and/or ambiguous risks. We propose to synthesize the breadth of the articles in this special issue by suggesting some changes to the risk governance framework proposed by the International Risk Governance Council (IRGC) and adding some insights to its analytical and normative implications.     

Accidental Versus Operational Oil Spills from Shipping in the Baltic Sea: Risk Governance and Management Strategies

Marine governance of oil transportation is complex. Due to difficulties in effectively monitoring procedures on vessels en voyage, incentives to save costs by not following established regulations on issues such as cleaning of tanks, crew size, and safe navigation may be substantial. The issue of problem structure is placed in focus, that is, to what degree the specific characteristics and complexity of intentional versus accidental oil spill risks affect institutional responses. It is shown that whereas the risk of accidental oil spills primarily has been met by technical requirements on the vessels in combination with Port State control, attempts have been made to curb intentional pollution by for example increased surveillance and smart governance mechanisms such as the No-Special-Fee system. It is suggested that environmental safety could be improved by increased use of smart governance mechanisms tightly adapted to key actors’ incentives to alter behavior in preferable directions.     

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.     

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.     

The Costs of Meeting the Environmental Objectives for the Baltic Sea: A Review of the Literature

The environmental targets of the recently agreed Baltic Sea Action Plan (BSAP) targets are likely associated with a considerable cost, which motivates a search for low-cost policies. The following review shows there is a substantial literature on cost-efficient nutrient reduction strategies, including suggestions regarding low-cost abatement, but actual policies at international and national scale tend to be considerably more expensive due to lack of instruments that ensure a cost-efficient allocation of abatement across countries and sectors. Economic research on the costs of reducing hazardous substances and oil spill damages in the Baltic Sea is not available, but lessons from the international literature suggest that resources could be used more efficiently if appropriate analysis is undertaken. Common to these pollution problems is the need to ensure that all countries in the region are provided with positive incentives to implement international agreements.     

Increasing nitrogen limitation in the Bothnian Sea,potentially caused by inflow of phosphate-rich water from the Baltic Proper

The study showed that the open water of the Bothnian Sea (BS) is likely to have shifted from altering nitrogen and phosphorous limitations of the spring bloom to more nitrogen-limited conditions during the last 20 years. This is affected by the by inflow of phosphate-rich and oxygen-depleted water from depths near the halocline in the northern Baltic Proper, where severe oxygen conditions currently cause extreme phosphate concentrations in the deep water. The change in relation between inorganic nitrogen and phosphorous in the BS occurs first in the deep water and then progresses to the surface water. The change can potentially cause increased production in the BS and more frequent cyanobacterial blooms. There does not appear to be any immediate concern in the short-term perspective for the state of the BS, but a progression of the processes may lead to a more eutrophic state of the BS.

Electronic supplementary material

The online version of this article (doi:10.1007/s13280-015-0675-3) contains supplementary material, which is available to authorized users.     

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.     

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.     

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.     

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.     

Extremes of Temperature, Oxygen and Blooms in the Baltic Sea in a Changing Climate

In the future, the Baltic Sea ecosystem will be impacted both by climate change and by riverine and atmospheric nutrient inputs. Multi-model ensemble simulations comprising one IPCC scenario (A1B), two global climate models, two regional climate models, and three Baltic Sea ecosystem models were performed to elucidate the combined effect of climate change and changes in nutrient inputs. This study focuses on the occurrence of extreme events in the projected future climate. Results suggest that the number of days favoring cyanobacteria blooms could increase, anoxic events may become more frequent and last longer, and salinity may tend to decrease. Nutrient load reductions following the Baltic Sea Action Plan can reduce the deterioration of oxygen conditions.     

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.     

Production and sedimentation of peptide toxins nodularin-R and microcystin-LR in the northern Baltic Sea

This seven-year survey was primarily targeted to quantification of production of nodularin-R (NOD-R), a cyclic pentapeptide hepatotoxin, in Baltic Sea cyanobacteria waterblooms. Additionally, NOD-R and microcystin-LR (MC-LR; a cyclic heptapeptide toxin) sedimentation rates and NOD-R sediment storage were estimated. NOD-R production (70-2450 μg m⁻³; ∼1 kg km⁻² per season) and sedimentation rates (particles; 0.03-5.7 μg m⁻² d⁻¹; ∼0.3 kg km⁻² per season) were highly variable over space and time. Cell numbers of Nodularia spumigena did not correlate with NOD-R quantities. Dissolved NOD-R comprised 57-100% of total NOD-R in the predominantly senescent, low-intensity phytoplankton blooms and seston. Unprecedentedly intensive MC-LR sedimentation (0.56 μg m⁻² d⁻¹) occurred in 2004. Hepatotoxin sedimentation rates highly exceeded those of anthropogenic xenobiotics. NOD-R storage in surficial sediments was 0.4-20 μg kg⁻¹ (∼0.1 kg km⁻²). Loss of NOD-R within the chain consisting of phytoplankton, seston and soft sediments seemed very effective.     

Climate Change in the Baltic Sea Region: A Cross-Country Analysis of Institutional Stakeholder Perceptions

Before climate change is considered in long-term coastal management, it is necessary to investigate how institutional stakeholders in coastal management conceptualize climate change, as their awareness will ultimately affect their actions. Using questionnaires in eight Baltic Sea riparian countries, this study examines environmental managers' awareness of climate change. Our results indicate that problems related to global warming are deemed secondary to short-term social and economic issues. Respondents agree that problems caused by global warming will become increasingly important, but pay little attention to adaptation and mitigation strategies. Current environmental problems are expected to continue to be urgent in the future. We conclude that an apparent gap exists between decision making, public concerns, and scientific consensus, resulting in a situation in which the latest evidence rarely influences commonly held opinions.     

Atmospheric Nutrient Input to the Baltic Sea from 1850 to 2006: A Reconstruction from Modeling Results and Historical Data

In this study, a consistent basin-wise monthly time series of the atmospheric nutrient load to the Baltic Sea during 1850-2006 was compiled. Due to the lack of a long time series (1850-1960) of nutrient deposition to the Baltic Sea, the data set was compiled by combining a time series of deposition data at the Baltic Nest Institute from 1970 to 2006, published historical monitoring data and deposition estimates, as well as recent modeled Representative Concentration Pathways (RCP) emission estimates. The procedure for nitrogen compounds included estimation of the deposition in a few intermediate reference years, linear interpolation between them, and the decomposition of annual deposition into a seasonal deposition pattern. As no reliable monitoring results were found for the atmospheric deposition of phosphorus during the early period of our study, we used published estimates for the temporal and spatial pattern of the phosphorus load.     

A Comprehensive Inventory of the Ship Traffic Exhaust Emissions in the Baltic Sea from 2006 to 2009

This study addresses the exhaust emissions of CO₂, NO_x, SO_x, CO, and PM_2.5 originated from Baltic Sea shipping in 2006–2009. Numerical results have been computed using the Ship Traffic Emissions Assessment Model. This model is based on the messages of the automatic identification system (AIS), which enable the positioning of ships with a high spatial resolution. The NO_x emissions in 2009 were approximately 7 % higher than in 2006, despite the economic recession. However, the SO_x emissions in 2009 were approximately 14 % lower, when compared to those in 2006, mainly caused by the fuel requirements of the SO_x emission control area (SECA) which became effective in May 2006, but affected also by changes in ship activity. Results are presented on the differential geographic distribution of shipping emissions before (Jan–April 2006) and after (Jan–April 2009) the SECA regulations. The predicted NO_x emissions in 2009 substantially exceeded the emissions in 2006 along major ship routes and at numerous harbors, mostly due to the continuous increase in the number of small vessels that use AIS transmitters. Although the SO_x emissions have been reduced in 2009 in most major ship routes, these have increased in the vicinity of some harbors and on some densely trafficked routes. A seasonal variation of emissions is also presented, as well as the distribution of emissions in terms of vessel flag state, type, and weight.     

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.     

Assessing the costs and environmental benefits of IMO regulations of ship-originated SOx and NOx emissions in the Baltic Sea

To assess the value of the environmental benefits of the Sulphur Emission regulation (SECA) that came into force in 2015, changes in depositions of SOx and NOx from ship exhaust gas emissions were modelled and monetized for the Baltic Sea region for the years 2014 and 2016. During this period, the total deposition of SOx in the study area decreased by 7.3%. The decrease in ship-originated SOx deposition from 38 kt to 3.4 kt (by over 88%) was translated into a monetary value for the ecosystem impacts of nearly 130 million USD, according to the EcoValue08 model. This is less than the modelled health benefits, but it is not insignificant. For NOx, there was no decreasing trend. The exceedance of the critical loads of SOx and NOx was also estimated. The effect of Baltic shipping on the exceedance of critical loads of acidification after SECA is very small, but Baltic shipping still has a considerable effect on the exceedance of critical loads for eutrophication.