Strengthening the policy framework to resolve lax implementation of the Baltic Sea Action Plan for agriculture

In this perspective article, we provide recommendations for strengthening the policy framework for protecting the Baltic Sea from agricultural nutrient pollution. The most striking weakness is the lax implementation of prescribed abatement measures, particularly concerning manure management, in most countries. Institutions of the EU should also be leveraged for achieving Baltic Sea Action Plan (BSAP) goals. In contrast to the Helsinki Convention, the European Union has economic, political and legal mandates to further implementation and compliance. Equally important is the need for strengthening of local institutions, particularly Water Boards and independent agricultural advisory services in the eastern Baltic Sea Region countries. There is also an urgent need for implementation of voluntary land-use measures where EU funding available to farmers is more broadly and effectively used by providing it on the basis of estimated abatement performance, which can be realized through modelling. The enormous potential for funding performance-based schemes, manure management infrastructure and advisory services through the EU’s Common Agricultural Policy are currently underutilized.Supplementary Informationhe online version contains supplementary material available at 10.1007/s13280-021-01573-3.     

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.     

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.     

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.     

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.     

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.     

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.     

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.     

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.     

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.     

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.     

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 €.     

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.     

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.     

Public perception of air pollution sources across Europe

Air pollution is one of the primary concerns of our society for its effect on human health and the environment. Among the policy measures that can be put in place to limit air pollutant emissions, end-of-pipe technologies and/or regulatory instruments may be implemented through legislative acts. Also, equally important are behavioural measures, requiring citizens’ active involvement. The success of any measure to limit pollutant emissions requires the acceptance by the citizens that, in turn, implies a correct perception of the main pollutant emission drivers. We present here the comparison between the public perception of air pollution sources and the real-world situation through a survey carried out in seven European countries and involving 16 101 respondents. Our study shows a dramatic underestimation of the contribution of the agri-food sector to air pollution. This result is common to all respondents in the seven countries examined and only to a small extent depends on gender, age and socio-economic status of the respondents.     

Assessment of semi-natural habitats and landscape features on Irish farmland: New insights to inform EU Common Agricultural Policy implementation

Concerns over the loss of biodiversity and ecosystem services in farmland have prompted the development of agri-environment policy measures aimed at reducing farming pressure and maintaining semi-natural habitats in farmed landscapes. However, further knowledge is needed to guarantee successful agri-environment measures implementation. The current study assessed the quantity and the quality of semi-natural habitats in farms across a gradient of farming intensities in two contrasting regions in Ireland. Policy protection seemed fundamental for semi-natural habitats preservation. Habitats not protected by agricultural policy relied on extensive farming and are in danger of disappearing if they are intensified or abandoned. Due to the lack of policy incentives for habitat quality, no correlations were found between farming intensity and share of semi-natural habitats with habitat quality. Therefore, extensive farming and retention of habitats alone may not reverse the decline of farmland quality and biodiverisity and, thus, measures incentivising the environmental quality may be more successful.Electronic supplementary materialThe online version of this article (10.1007/s13280-020-01344-6) contains supplementary material, which is available to authorized users.     

Bioaccumulation of mercury in the trophic chain of flatfish from the Baltic Sea

Mercury concentrations in three flatfish species - flounder (Platichtys flesus), plaice (Pleuronectes platessa), and Baltic turbot (Scophthalmus maximus), netted in the southern Baltic Sea were assessed and compared to concentrations of this metal in sediments, sea water, and flatfish food - bivalve Macoma balthica, isopod Saduria entomon, and sprat (Sprattus sprattus). Collected simultaneously with flatfish in 2009 and 2010. Different concentrations of mercury depending on species, tissue or organ, sex, individual length, kind of food, and region were determined. The muscle tissues of turbot had the highest concentrations of the metal. The bioaccumulation (BF) and biomagnification (BMF) factors has been counted showing that the muscle tissues of turbot have maximum affinity for mercury, and thus best reflected the metal contamination of the Baltic Sea environment. The data suggest that the common Baltic turbot (S. maximus) is an important model species, suitable and cost-effective to biomonitor environmental mercury pollution for ecological research.     

Baltic Sea management: Successes and failures

Severe environmental problems documented in the Baltic Sea in the 1960s led to the 1974 creation of the Helsinki Convention for the Protection of the Marine Environment of the Baltic Sea Area. We introduce this special issue by briefly summarizing successes and failures of Baltic environmental management in the following 40 years. The loads of many polluting substances have been greatly reduced, but legacy pollution slows recovery. Top predator populations have recovered, and human exposure to potential toxins has been reduced. The cod stock has partially recovered. Nutrient loads are decreasing, but deep-water anoxia and cyanobacterial blooms remain extensive, and climate change threatens the advances made. Ecosystem-based management is the agreed principle, but in practice the various environmental problems are still handled separately, since we still lack both basic ecological knowledge and appropriate governance structures for managing them together, in a true ecosystem approach.     

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.