Promise and performance of agricultural nutrient management policy: Lessons from the Baltic Sea

Following decades of international collaboration to restore the Baltic Sea, we provide an assessment of the domestic implementation of measures agreed to limit diffuse agricultural pollution and the patterns of policy instruments applied. Despite the Helsinki Convention being unusually specific in detailing what measures countries should introduce, we find many shortcomings. These are most pronounced in the larger countries (Poland, Germany and Russia), while smaller countries perform better, notably Sweden and Estonia. The patterns of policy instruments applied differ, influenced by domestic politics. The limited use of complementary policy instruments suggests that other priorities overrule full and effective implementation, with engagement mirroring the advantages that a restored Baltic Sea can bring to countries. Using the European Agricultural Fund for Rural Development to support farmers in managing nutrients, particularly advisory services and investments in modern manure management technologies, represents a significant opportunity for reducing agricultural pollution in most countries.Supplementary InformationThe online version contains supplementary material available at 10.1007/s13280-021-01549-3.     

How unnecessarily high abatement costs and unresolved distributional issues undermine nutrient reductions to the Baltic Sea

This paper systematically reviews the literature on how to reduce nutrient emissions to the Baltic Sea cost-effectively and considerations for allocating these costs fairly among countries. The literature shows conclusively that the reduction targets of the Baltic Sea Action Plan (BSAP) could be achieved at considerably lower cost, if countries would cooperate to implement the least costly abatement plan. Focusing on phosphorus abatement could be prudent as the often recommended measures—wastewater treatment and wetlands—abate nitrogen too. An implication of our review is that the potential for restoring the Baltic Sea to good health is undermined by an abatement strategy that is more costly than necessary and likely to be perceived as unfair by several countries. Neither the BSAP nor the cost-effective solution meet the surveyed criteria for fairness, implying a need for side-payments.Supplementary InformationThe online version contains supplementary material available at 10.1007/s13280-021-01580-4.     

How effective are River Basin Management Plans in reaching the nutrient load reduction targets?

Riverine nutrient loads are among the major causes of eutrophication of the Baltic Sea. This study applied the Soil & Water Assessment Tool (SWAT) in three catchments flowing to the Baltic Sea, namely Vantaanjoki (Finland), Fyrisån (Sweden), and Słupia (Poland), to simulate the effectiveness of nutrient control measures included in the EU’s Water Framework Directive River Basin Management Plans (RBMPs). Moreover, we identified similar, coastal, middle-sized catchments to which conclusions from this study could be applicable. The first modelling scenario based on extrapolation of the existing trends affected the modelled nutrient loads by less than 5%. In the second scenario, measures included in RBMPs showed variable effectiveness, ranging from negligible for Słupia to 28% total P load reduction in Vantaanjoki. Adding spatially targeted measures to RBMPs (third scenario) would considerably improve their effectiveness in all three catchments for both total N and P, suggesting a need to adopt targeting more widely in the Baltic Sea countries.Electronic supplementary materialThe online version of this article (10.1007/s13280-020-01393-x) contains supplementary material, which is available to authorized users.     

Does Divergence of Nutrient Load Measurements Matter for Successful Mitigation of Marine Eutrophication?

Successful implementation of an international nutrient abatement agreement, such as the Baltic Sea Action Plan (BSAP), requires consistent understanding of the baseline nutrient loads, and a perception of acceptable costs and fairness in targeted reductions of these base line loads. This article presents a general framework for identifying the implications of divergence between different nutrient load quantification approaches, with regard to both cost and fairness criteria outcomes, for the international agreement to decrease nutrient loads into the Baltic Sea as presented in the BSAP. The results indicate that even relatively small divergence in the nutrient load quantification translates into relatively large differences in abatement cost for different Baltic Sea countries. A robust result, irrespective of differences in nutrient load assessments, is a conflict between abatement cost effectiveness and fairness, with relatively poor countries facing heavy abatement cost burdens for cost-effective international load abatement.     

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.     

Food web assessments in the Baltic Sea: Models bridging the gap between indicators and policy needs

Ecosystem-based management requires understanding of food webs. Consequently, assessment of food web status is mandatory according to the European Union’s Marine Strategy Framework Directive (MSFD) for EU Member States. However, how to best monitor and assess food webs in practise has proven a challenging question. Here, we review and assess the current status of food web indicators and food web models, and discuss whether the models can help addressing current shortcomings of indicator-based food web assessments, using the Baltic Sea as an example region. We show that although the MSFD food web assessment was designed to use food web indicators alone, they are currently poorly fit for the purpose, because they lack interconnectivity of trophic guilds. We then argue that the multiple food web models published for this region have a high potential to provide additional coherence to the definition of good environmental status, the evaluation of uncertainties, and estimates for unsampled indicator values, but we also identify current limitations that stand in the way of more formal implementation of this approach. We close with a discussion of which current models have the best capacity for this purpose in the Baltic Sea, and of the way forward towards the combination of measurable indicators and modelling approaches in food web assessments. Supplementary InformationThe online version contains supplementary material available at 10.1007/s13280-021-01692-x.     

Reduction of Baltic Sea Nutrient Inputs and Allocation of Abatement Costs Within the Baltic Sea Catchment

The Baltic Sea Action Plan (BSAP) requires tools to simulate effects and costs of various nutrient abatement strategies. Hierarchically connected databases and models of the entire catchment have been created to allow decision makers to view scenarios via the decision support system NEST. Increased intensity in agriculture in transient countries would result in increased nutrient loads to the Baltic Sea, particularly from Poland, the Baltic States, and Russia. Nutrient retentions are high, which means that the nutrient reduction goals of 135 000 tons N and 15 000 tons P, as formulated in the BSAP from 2007, correspond to a reduction in nutrient loadings to watersheds by 675 000 tons N and 158 000 tons P. A cost-minimization model was used to allocate nutrient reductions to measures and countries where the costs for reducing loads are low. The minimum annual cost to meet BSAP basin targets is estimated to 4.7 billion €.     

International river basin management under the EU water framework directive: an assessment of cooperation and water quality in the Baltic Sea Drainage Basin

We address issues connected with international river basin management and the EU Water Framework Directive (WFD). By creating a register of River Basin Districts established under the WFD, we show that the number and area of international River Basin Districts are significant. Further, we present an assessment of international cooperation and water quality in 14 international river basins in the Baltic Sea Drainage Basin. Our results indicate that the WFD is a push forward for international river basin management in the region. However the WFD in general, and the principle of river basin management in particular, may be hard to implement in river basins shared between EU Member States and countries outside the EU. According to the study, Vistula, Pregola, and Nemunas appear to be the international basins within the Baltic Sea Drainage Basin in greatest need of intensified cooperation with regard to the state of the water quality.     

Nutrient Abatement Potential and Abatement Costs of Waste Water Treatment Plants in the Baltic Sea Region

We assess the physical potential to reduce nutrient loads from waste water treatment plants in the Baltic Sea region and determine the costs of abating nutrients based on the estimated potential. We take a sample of waste water treatment plants of different size classes and generalize its properties to the whole population of waste water treatment plants. Based on a detailed investment and operational cost data on actual plants, we develop the total and marginal abatement cost functions for both nutrients. To our knowledge, our study is the first of its kind; there is no other study on this issue which would take advantage of detailed data on waste water treatment plants at this extent. We demonstrate that the reduction potential of nutrients is huge in waste water treatment plants. Increasing the abatement in waste water treatment plants can result in 70 % of the Baltic Sea Action Plan nitrogen reduction target and 80 % of the Baltic Sea Action Plan phosphorus reduction target. Another good finding is that the costs of reducing both nutrients are much lower than previously thought. The large reduction of nitrogen would cost 670 million euros and of phosphorus 150 million euros. We show that especially for phosphorus the abatement costs in agriculture would be much higher than in waste water treatment plants.

Electronic supplementary material

The online version of this article (doi:10.1007/s13280-013-0435-1) contains supplementary material, which is available to authorized users.     

Legal prerequisites for ecosystem-based management in the Baltic Sea area: The example of eutrophication

The purpose of this paper is to discuss the role of law in the management of the Baltic Sea, with focus on eutrophication. It aims to identify legal instruments or structures realizing an ecosystem approach. This also includes a discussion of the prerequisites of law as contributor to ecosystem-based management (EBM), as well as evaluation of current legal instruments. While ecosystem approach to environmental management is central to contemporary environmental management policy, it is still unclear what such an approach entails in concrete legal terms. The scope of the analysis stretches from international and EU legal regimes, to implementation and regulation within the national legal systems. A conclusion is that the management structures need further development to properly realize EBM, for example, through concretization of management measures, and clarification of duties and responsibilities for their realization.     

Testing the Potential for Predictive Modeling and Mapping and Extending Its Use as a Tool for Evaluating Management Scenarios and Economic Valuation in the Baltic Sea (PREHAB)

We evaluated performance of species distribution models for predictive mapping, and how models can be used to integrate human pressures into ecological and economic assessments. A selection of 77 biological variables (species, groups of species, and measures of biodiversity) across the Baltic Sea were modeled. Differences among methods, areas, predictor, and response variables were evaluated. Several methods successfully predicted abundance and occurrence of vegetation, invertebrates, fish, and functional aspects of biodiversity. Depth and substrate were among the most important predictors. Models incorporating water clarity were used to predict increasing cover of the brown alga bladderwrack Fucus vesiculosus and increasing reproduction area of perch Perca fluviatilis, but decreasing reproduction areas for pikeperch Sander lucioperca following successful implementation of the Baltic Sea Action Plan. Despite variability in estimated non-market benefits among countries, such changes were highly valued by citizens in the three Baltic countries investigated. We conclude that predictive models are powerful and useful tools for science-based management of the Baltic Sea.     

Ecological connectivity of the marine protected area network in the Baltic Sea,Kattegat and Skagerrak: Current knowledge and management needs

Marine protected areas (MPAs) have become a key component of conservation and fisheries management to alleviate anthropogenic pressures. For MPA networks to efficiently promote persistence and recovery of populations, ecological connectivity, i.e. dispersal and movement of organisms and material across ecosystems, needs to be taken into account. To improve the ecological coherence of MPA networks, there is hence a need to evaluate the connectivity of species spreading through active migration and passive dispersal. We reviewed knowledge on ecological connectivity in the Baltic Sea, Kattegat and Skagerrak in the northeast Atlantic and present available information on species-specific dispersal and migration distances. Studies on genetic connectivity are summarised and discussed in relation to dispersal-based analyses. Threats to ecological connectivity, limiting dispersal of populations and lowering the resilience to environmental change, were examined. Additionally, a review of studies evaluating the ecological coherence of MPA networks in the Baltic Sea, Kattegat and Skagerrak was performed, and suggestions for future evaluations to meet management needs are presented.Supplementary InformationThe online version contains supplementary material available at 10.1007/s13280-021-01684-x.     

Modeling eelgrass spatial response to nutrient abatement measures in a changing climate

For many coastal areas including the Baltic Sea, ambitious nutrient abatement goals have been set to curb eutrophication, but benefits of such measures were normally not studied in light of anticipated climate change. To project the likely responses of nutrient abatement on eelgrass (Zostera marina), we coupled a species distribution model with a biogeochemical model, obtaining future water turbidity, and a wave model for predicting the future hydrodynamics in the coastal area. Using this, eelgrass distribution was modeled for different combinations of nutrient scenarios and future wind fields. We are the first to demonstrate that while under a business as usual scenario overall eelgrass area will not recover, nutrient reductions that fulfill the Helsinki Commission’s Baltic Sea Action Plan (BSAP) are likely to lead to a substantial areal expansion of eelgrass coverage, primarily at the current distribution’s lower depth limits, thereby overcompensating losses in shallow areas caused by a stormier climate.     

Cost–benefit analysis of beach-cast harvest: Closing land-marine nutrient loops in the Baltic Sea region

Harvesting beach-cast can help mitigate marine eutrophication by closing land-marine nutrient loops and provide a blue biomass raw material for the bioeconomy. Cost–benefit analysis was applied to harvest activities during 2009–2018 on the island of Gotland in the Baltic Sea, highlighting benefits such as nutrient removal from the marine system and improved recreational opportunities as well as costs of using inputs necessary for harvest. The results indicate that the activities entailed a net gain to society, lending substance to continued funding for harvests on Gotland and assessments of upscaling of harvest activities to other areas in Sweden and elsewhere. The lessons learnt from the considerable harvest experience on Gotland should be utilized for developing concrete guidelines for carrying out sustainable harvest practice, paying due attention to local conditions but also to what can be generalized to a wider national and international context.Supplementary InformationThe online version contains supplementary material available at 10.1007/s13280-021-01641-8.     

Echoes from the Past: A Healthy Baltic Sea Requires More Effort

Integrated sediment multiproxy studies and modeling were used to reconstruct past changes in the Baltic Sea ecosystem. Results of natural changes over the past 6000 years in the Baltic Sea ecosystem suggest that forecasted climate warming might enhance environmental problems of the Baltic Sea. Integrated modeling and sediment proxy studies reveal increased sea surface temperatures and expanded seafloor anoxia (in deep basins) during earlier natural warm climate phases, such as the Medieval Climate Anomaly. Under future IPCC scenarios of global warming, there is likely no improvement of bottom water conditions in the Baltic Sea. Thus, the measures already designed to produce a healthier Baltic Sea are insufficient in the long term. The interactions between climate change and anthropogenic impacts on the Baltic Sea should be considered in management, implementation of policy strategies in the Baltic Sea environmental issues, and adaptation to future climate change.     

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.     

Management options and effects on a marine ecosystem: assessing the future of the Baltic

We are using the coupled models in a decision support system, Nest, to evaluate the response of the marine ecosystem to changes in external loads through various management options. The models address all the seven major marine basins and the entire drainage basin of the Baltic Sea. A series of future scenarios have been developed, in close collaboration with the Helsinki Commission, to see the possible effects of improved wastewater treatment and manure handling, phosphorus-free detergents, and less intensive land use and live stocks. Improved wastewater treatment and the use of phosphorus-free detergents in the entire region would drastically decrease phosphorus loads and improve the marine environment, particularly the occurrence of cyanobacterial blooms. However, the Baltic Sea will remain eutrophic, and to reduce other effects, a substantial reduction of nitrogen emissions must be implemented. This can only be obtained in these scenarios by drastically changing land use. In a final scenario, we have turned 50% of all agricultural lands into grasslands, together with efficient wastewater treatments and a ban of phosphorus in detergents. This scenario will substantially reduce primary production and the extension of hypoxic bottoms, increase water transparency in the most eutrophied basins, and virtually eliminate extensive cyanobacterial blooms.     

Managing ammonia emissions from livestock production in Europe

Around 75% of European ammonia (NH(3)) emissions come from livestock production. Emissions occur at all stages of manure management: from buildings housing livestock; during manure storage; following manure application to land; and from urine deposited by livestock on pastures during grazing. Ammoniacal nitrogen (total ammoniacal-nitrogen, TAN) in livestock excreta is the main source of NH(3). At each stage of manure management TAN may be lost, mainly as NH(3), and the remainder passed to the next stage. Hence, measures to reduce NH(3) emissions at the various stages of manure management are interdependent, and the accumulative reduction achieved by combinations of measures is not simply additive. This TAN-flow concept enables rapid and easy estimation of the consequences of NH(3) abatement at one stage of manure management (upstream) on NH(3) emissions at later stages (downstream), and gives unbiased assessment of the most cost-effective measures. We conclude that rapid incorporation of manures into arable land is one of the most cost-effective measures to reduce NH(3) emissions, while covering manure stores and applying slurry by band spreader or injection are more cost-effective than measures to reduce emissions from buildings. These measures are likely to rank highly in most European countries.     

Guiding restoration of riparian ecosystems degraded by plant invasions: Insights from a complex social-ecological system in the Global South

Restoring riparian ecosystems in human-dominated landscapes requires attention to complexity, and consideration of diverse drivers, social actors, and contexts. Addressing a Global North bias, this case study uses a mixed-method approach, integrating historical data, remote sensing techniques and stakeholder perceptions to guide restoration of a river in the Western Cape, South Africa. An analysis of aerial photographs of the riparian zone from 1953 to 2016 revealed that although anthropogenic land conversion happened primarily before the 1950s, several land use and land cover classes showed marked increases in area, including: waterbodies (+ 1074%), urban areas (+ 316%), alien weeds (+ 311%) and terrestrial alien trees (+ 79%). These changes have likely been driven by land fragmentation, disturbance, and agricultural intensification. Stakeholder interviews revealed that despite the clear need for restoration, several barriers exist to successful implementation; these stem from inadequate financial resources, inappropriate funding models, institutional challenges, and a lack of techno-scientific knowledge. We give several recommendations to overcome these barriers.Supplementary InformationThe online version contains supplementary material available at 10.1007/s13280-021-01691-y.     

Plant–pollinator interactions in urban ecosystems worldwide: A comprehensive review including research funding and policy actions

Urbanization has rapidly increased in recent decades and the negative effects on biodiversity have been widely reported. Urban green areas can contribute to improving human well-being, maintaining biodiversity, and ecosystem services (e.g. pollination). Here we examine the evolution of studies on plant–pollinator interactions in urban ecosystems worldwide, reviewing also research funding and policy actions. We documented a significant increase in the scientific production on the theme in recent years, especially in the temperate region; tropical urban ecosystems are still neglected. Plant–pollinator interactions are threatened by urbanization in complex ways, depending on the studied group (plant or pollinator [generalist or specialist]) and landscape characteristics. Several research opportunities emerge from our review. Research funding and policy actions to pollination/pollinator in urban ecosystems are still scarce and concentrated in developed countries/temperate regions. To make urban green spaces contribute to the maintenance of biodiversity and the provision of ecosystem services, transdisciplinary approaches (ecological–social–economic–cultural) are needed.Electronic supplementary materialThe online version of this article (10.1007/s13280-020-01410-z) contains supplementary material, which is available to authorized users.