Since 1992 the Helsinki Commission is assisting Poland in implementing Baltic Sea Joint Comprehensive Environmental Action Programme (JCP, the Baltic Programme). The 4^th element of the Programme deals with the protection of coastal zones. Estuaries and wetlands are especially important due to their biodiversity and productivity as well as creation of a buffer against various man-made pollutants, originating from numerous economic activities (harbors, fishery, chemical & petrochemical industries, mining, others). Parallel, another group of environmental conflicts deals just with human presence, both constant, linked with local municipalities, and changing with seasonal tourism and recreation.

To put into practice Element 4 of the JCP development and implementation of Integrated Zone Management Plan for 6 priority areas was recommended. Among them two were of bilateral interest of Poland – Vistula Lagoon and Gdansk Bay (managed with Russia) as well as Oder Lagoon and Pomerania Bay near Szczecin (shared with Germany).

The first versions of the ICZMP for these two areas were elaborated already in 1995 and it was found necessary to begin further activities within the Phase I B devoted to verify and actualize those draft plans. Several recommendations were pointed out to be completed in the Phase I B, among them such as: consulting of plans with local authorities, establishing of pilot projects, listing of decisions to be made by appropriate authorities to implement plans, introducing of appropriate measures to assess the sustainable development factors, reinforcement of local environmental administration and its professional training adequate to new managerial tasks, and others.

Numerous other problems affecting implementation of the Baltic Programme had to be solved, parallel, among them the most important international legal aspects and financial resources.

Polish experts prepared two independent plans covering two zones of national interest. The major ideology of both elaboration is the same and reflects general recommendation of the Helsinki Commission. Therefore, the case of Vistula Lagoon could be discussed as a representative example.

There are also several differences in such issues as: the role of a particular undertaking in the economy of partner countries (Poland - Russia, Polnad - Germany), the consciousness and social activity of population of the area, the tradition of an international environmental collaboration, current development and organization of environmental monitoring system and others.

At the conference of Prime Ministers of the Baltic Sea States, which was held in Ronneby, Sweden, in September 1990, the Baltic Sea Declaration was adopted which specified a number of fundamental principles and priorities necessary to improve the state of the marine environment of the Baltic Sea. The Declaration included also the decision concerning the development of the Baltic Sea Joint Comprehensive Environmental Action Programme, JCP, sc. the Baltic Programme.

The innovative contribution of the Ronneby conference consisted in the following:

• the Programme was formulated as a joint one - implementation priorities as regards particular elements of the Programme have been set for the whole area of interest rather than for particular country;
• the Programme was formulated so, that it would lay the foundation for assistance from international financial institutions - also within the framework of bilateral assistance. The Programme activities concentrated on so called hot-spots.

In 1992, Programme Implementation Task Force (HELCOM PITF) was created within the framework of the Helsinki Commission, with the aim of providing support for long-term implementation of the Programme. In addition to this, the HELCOM PITF is partly responsible for Programme co-ordination and monitoring. It was agreed that – beside its other functions – the Programme would provide assistance in strengthening political and legal institutions involved in the protection of the marine environment of the Baltic Sea, investment activities (focused on hot-spots), applied research, environmental education and the development of public awareness. Furthermore, it was decided that the first phase of the Programme would be focused on priority activities, whereas the second phase would consist in broadening and strengthening these activities.

The Baltic Programme consists of six elements. Element 4 "Management Plans for Coastal Lagoons and Wetlands" concerns environmental protection, management and planning with respect to coastal lagoons and wetlands.

The 1^st Phase of the Baltic Programme Implementation (1993-1997) was devoted to the development and implementation of management plans for five priority areas, those included in the list of hot-spots: the Matsalu Bay (Estonia), the Riga Bay (Estonia and Latvia), the Curonian Lagoon (Lithuania and Russia), the Vistula Lagoon (Poland and Russia), and the Oder Lagoon (Poland and Germany).

Following the decision by the Environment Ministers of the Baltic Sea States, in 1995, a revision of the Baltic Programme was carried out, and observations concerning Element 4 of the Programme were included in the Final Document of this revision. A relevant part of that Document, says: >Element 4 – New Phase for Management of Coastal Lagoons and Wetlands. In the first phase of the JCP, the HELCOM PITF Working Group on Coastal Lagoons and Wetlands prepared preliminary management plans. These plans will be further develop to fully integrate their objectives into national and local planning requirements. Activities in this area have been co-ordinated by the World Wide Fund for Nature (WWF) which has worked closely with national and local governments, local NGOs and local residents. These plans will provide the basis for implementation activities under the second phase of the JCP.<

The basis for the elaboration of plans was prepared by the WWF as a set of guidelines - "Technical Manual on Elaboration of Integrated Coastal Zone Management Plans for the Baltic Sea Task Area". The guidelines specified organisational aspects of Area Task Team (ATT) work and the development of plans, as well as the proposed subject structure and range of plans (demography; geology and topography; hydrology; climate; national and international policy, strategies and regulations; key ecosystems and species; sectoral planning and resource exploitation; pollutants and pollution changes trends; monitoring programmes and economic priorities). These issues were to be characterised with particular focus on: historical development and changes observed, the present state and anticipated changes. The basic ATT goal, of crucial importance for further work, was the delimitation of the task area. According to the WWF guidelines, the size of a task area should allow for consideration of all physical, biological and human factors which exert influence on ecological use and sustainable development of both the coastal zone and the adjoining lowlands and wetlands. Both administrative borders and functional (socio-economic) scope were taken into consideration while finally delimiting task areas for particular ATTs.

HELCOM PITF Working Group on Coastal Lagoons and Wetlands (HELCOM PITF MLW), created in 1993, has been designated to initiate and coordinate the development of integrated management plans for priority areas identified by the Baltic Programme and their implementation. Separate ATTs consisting of representatives from all administrative levels (central, regional and local), research institutions and NGOs were established for each of these areas situated within the territory of two states. It was agreed that actions taken in each of the transboundary areas would be jointly coordinated by the national ATT Chairman and his Secretary (acting as a co-chairman). In Poland, following the decision of the Ministry of Environment, the director of the Regional Board for Water Management in Gdansk was designated as the ATT Chairman for the Vistula Lagoon during the first phase of work. The elaboration of management plans was supervised by the World Wide Fund for Nature which performed the role of the Lead Party for Element 4 of the Baltic Programme, and has provided secretariat facilities to the HELCOM PITF MLW since the end of 1993.

ATTs were obliged to identify and consider all natural and anthropogenic factors and activities which influenced the task area. The objective of the plans was:

• to identify critical problems with regard to environmental protection and the conflicts between environmental protection and different industries, as well as between particular industries,
• to identify mechanisms required for closer coordination of efforts in the field of environmental protection and economic development;
• to elaborate guidelines for national, regional and local authorities with reference to sustainable and environmentally friendly development in the coastal areas included in plans.

In 1995 the first version of the document entitled „ICZM Plan for the Vistula Lagoon“ was prepared by Polish and Russian experts, simultaneously adopted by Polish and Russian ATTs, and subsequently passed on to the Working Group on Coastal Lagoons and Wetlands for decision.

The MLW Working Group expressed numerous reservations concerning all plans developed during the first phase of work, and assessed that extensive modifications were needed before the second phase aiming at plan implementation could be commenced. This opinion was subsequently shared by the HELCOM PITF which resolved about the introduction of phase 1B that would primarily consist in verification and institutional preparation for plan implementation.

Guidelines for such a process being implemented as phase 1B have been elaborated by the HELCOM PITF. Following its decision, actions to be taken during this phase would include:

• preparation of plans for implementation:
• plan consultation with a view to setting priority actions;
• development of proposals for pilot projects to be undertaken;
• listing the decisions which would enable plan implementation, to be made by authorities;
• negotiations with the representatives of potential implementation funding units;
• development of a set of Sustainable Development Indicators, which would not only help in assessing plan implementation in Phase 2, but also provide a useful tool for all managerial levels. Consequently, the indicators should meet certain requirements:
• be easily measurable on the basis of available data;
• reflect trends over time; and
• enable comparison of actual parameters to they reference values;
• institutional strengthening as regards environmental personnel, and education of natural resource users in areas under integrated management;
• development of guidelines for identification of important wetlands.

2) Adoption of the plan by the governments of respective Contracting Parties, and designation of organisational units responsible for that plan implementation and its supervision.

Following the decision of the HELCOM PITF, phase 1B should also include key actions to ensure better opportunities for gradual plan implementation; possible actions should be analysed from the point of view of the Polish and international legal system (regulations and/or agreements which secure integrated management), from organisational and institutional point of view (units and structures responsible for coordination and monitoring of the implementation process), and from the financial point of view (funding sources, principles and conditions, forms of funding; the possibility of partial implementation funding from foreign sources – implementation of pilot projects).

As a result of these general decisions, the ICZM Plan for the Vistula Lagoon had to be thoroughly analysed – with special consideration for the initiatives undertaken after plan elaboration, and the sources of information and data, which for various reasons were not available for the ATT. It was also concluded that the holistic approach to the issue of integrated management adopted by the Helsinki Commission was not sufficiently reflected in ICZM plans prepared hitherto (including the ICZM Plan for the Vistula Lagoon).

Finally, adequate attention should be paid to other initiatives at the national and international level (independent of actions taken by the Helsinki Commission), which are essential for the ICZM process, and which ought to be taken into account in subsequent phases. They include:

• VASAB 2010 – Visions and Strategies around the Baltic Sea – a set of priority objectives for spatial development in this region, agreed by all States of the Baltic Sea Region. According to the VASAB 2010 Document, the priorities refer to:
• environmentally, economically and socially sustainable development;
• conservation of cultural heritage and the potential of natural environment;
• strengthening the position of cities in the cooperation network of the Baltic Sea centers;
• cross-sectoral coordination of activities and the creation of synergy (e.g. in the field of transport and environment).

Owing to the VASAB 2010 Programme it was possible to develop a number of joint international operational projects as:

• BERNET - sea-water pollution monitoring and prevention (including bays and lagoons);
• PSSD - cross-sectoral planning and management as regards sustainable development;
• cooperation of regions and city networks (enhanced competitiveness/improved operation;
• restitution of areas’ natural value (unique landscape and cultural assets, tourism);
• SUPORTNET - development of a marina network (small ports, yachting);
• technological innovations (services and jobs; environmentally sustainable energy systems);
• development of transport (chains and infrastructure connecting ports with the hinterland).

VASAB 2010 has made a significant contribution to the elaboration of guidelines for spatial planning of the coastal zone in the Baltic Sea region - "Common Guidelines for the Spatial Planning in the Coastal Zone of the Baltic Sea Region", adopted during the Conference of Ministers for Spatial Planning. An important initiative put forward by VASAB 2010 together with HELCOM was a Seminar held in Gdansk, concerning so-called “Green Spots“, i.e. the possibilities of sustainable development in areas of high environmental value and, at the same time, characterised by numerous conflicting development objectives. Such areas would obviously include lagoons from ICZM plans.

• BALTIC 21 – of an integrated, cross-sectoral action programme for the implementation of the sustainable development concept in the Baltic Sea Region. This is the first specific programme in Europe elaborated within the framework of Regional AGENDA 21. Apart from economic sectors it includes transport, spatial management and general measures.
• The >Euroregion Baltic< – a long-term cooperation programme for communes and regions of south-eastern part of the Baltic Sea. This collaboration encompasses northern Poland (Pomeranian and Varmian-Masurian provinces, respectively), southern Sweden, Bornholm, Lithuanian region of Klajpeda, Latvian region of Lipava, and Kaliningrad District of Russia. The Euroregion idea is composed of several aspects including an intensified cooperation between regional authorities, self-governmental bodies and chambers of commerce. These cross-border structures were primarily implemented among Germany and France and introduced in Poland through trilateral <Euroregion Neisse< among Germany, Poland and Czech Republic. A possibility of developing of such structure in the area of interest to promote social and economic cooperation with Kaliningrad District was tested. An agreement on the state of environment and spatial planning was considered relatively easy to achieve, and further initiatives concerning the development of tourism, promotion of economy and trade exchange would follow.
• “Poland 2000 plus“ – A Concept of National Spatial Management Policy, a binding document issued by the Polish government and adopted by the Council of Ministers in 1999. Together with socio-economic and environmental policy, the Concept is supposed to operate as a tool for indirect regulation of structural transition in Poland. The idea of sustainable development was adopted as a general principle of the Concept, so that development policy would be primarily a mean to improve the quality of environment and living conditions. The deteriorated quality of life and natural environment, as well as low functional efficiency of the settlement system constitute an obstacle to structural transition and the increase in economic efficiency. According to the document mentioned above, some parts of the Polish coast have been afflicted with civilisation-caused recession due to outdated infrastructure, sharp increase in unemployment as well as a relatively low level of education, especially as regards residents of villages and small towns. “Poland 2000 plus“ intends to apply a policy which will help „to overcome the recession“ in such areas on the basis of a more efficient use of economic resources, environmental and cultural assets as well as the introduction of innovative incentive tools (mainly with the help of public funds, including the international ones).
• A new State Environmental Policy – a draft guideline document for actions in the field of environmental protection and green (balanced and sustainable) development of Poland on the threshold of the 21^st century. Three stages of objectives implementation were distinguished:
• the stage of implementation of the short-term objectives, simultaneous to the pre-accession period to the EU (2000 – 2003);
• the stage of implementation of the medium-term objectives in the initial period of Poland’s membership of the EU, with transitional periods and the implementation of approximation programmes (approximately to the year 2012); and
• the stage of implementation of the long-term objectives set in the „Sustainable Development Strategy for Poland till the year 2025“ elaborated by the Polish government.

The coastal zone of the Vistula Lagoon has been delimited as the optimum management area by a group of experts in consultation with the ATT. According to the WWF guidelines, the size of a Task Area should allow for consideration of all physical, biological and human factors and activities which exert influence on space and resource use and the sustainable development of the Coastal Zone, including wetlands. The current state of natural environment, and the community which inhabits the delimited area and acts within its boundaries, are closely interrelated. All human activity and spatial management associated with it, takes place in the natural environment and makes use of its resources and assets.

In order to achieve an adequate delimitation, available information and data concerning the area was compiled, gaps in this respect were identified, and existing and anticipated problems and conflicts were outlined. Both administrative borders and functional (socio-economic) scope were taken into consideration while finally delimiting the Task Area as an eco-region for management, since these borders, though not necessarily overlapping with the borders of particular ecosystems, reflect the existing administrative structure which conditions plan implementation.

The basic unit of functional structure is referred to as a geo-system, that is a unit characterised by strong internal connections – in ecology called an ecosystem. It can be designated on different spatial levels. A material structure divided into components: atmosphere, hydrosphere, geosphere, pedosphere and biosphere, as well as internal processes characteristic of these components and the exchange between the components are essential for the operation of a geo-system.

Among these components a special role has been assigned to water, which provides most basic matter transport in the natural environment, and thus constitutes the main factor contributing to the mutual influence of environmental systems. In view of this, the Task Area encompasses all of the Vistula Lagoon catchment area both on the Polish and Russian side. This is an area sufficient to identify sources of potential negative anthropogenic impact on the Vistula Lagoon. However, it should be marked that the impact of human activity on the Vistula Lagoon differs according to the localisation of such an activity. Therefore areas of different degrees of influence on the lagoon have been distinguished:

1. In the broadest context, resource management area has been designated according to environmental criteria (geo-systems). The area roughly corresponds to the Vistula Lagoon catchment area created mainly by the river basins of the Pregola (together with its tributaries – the Lyna, the Wegorapa, the Dejma), and of the Nejma and the Prokhladnaya Rivers on the Russian side, and the Pasleka, the Nogat, the Szkarpawa, the Bauda and the Elblag Rivers on the Polish side.

2. In the narrow context, the influenced area encompasses the coastal belt designated on the administrative basis on the Polish side. The area consists of a technical belt and a buffer belt, both administered by marine authorities (special national administration).

3. In view of legislative conditions concerning administrative decisions, an area corresponding to the administrative division of communes on the Polish side, and districts on the Russian side, has been designated. This area consists of communes adjoining the Vistula Lagoon and communes which exert direct influence on its waters, or else are heavily influenced by the Lagoon.

In order to identify diversified principles of the coastal zone management, basic structural units of the Task Area were distinguished.

The coastal zone of the Vistula Lagoon - the TA is a very sensitive and valuable natural and cultural ecosystem, with highly diversified biological structure and considerable biodiversity. The zone is included in a number of law-protected areas, both on national (Polish and Russian), and international level. It is an element of the ECONET network and a part of the European system of wildlife reserves. It is also one of the BSPAs designated by HELCOM, and a part of areas specified in various international conventions, such as the Ramsar Convention.

At the same time, it is a densely populated area of ca. 750 thousand inhabitants, including almost 450 thousand people in the city of Kaliningrad and 130 thousand in the city of Elblag. There is little urban development in the remaining part of the area, where economic activity associated with coastal location and water bodies is concentrated. Commercial sea ports in Kaliningrad and Elblag, marine industry, and industries which benefit from the vicinity of ports (mainly in the Kaliningrad region), sea fishing (on the Russian side) and fishing in the Vistula Lagoon (on the Polish side) or intensified tourism in the Polish part of the Vistula Spit, could be mentioned as examples. Thus, the environmental function in the whole area is under strong pressure from economic activity which, to a different extent, affects the environment: either disturbing it in a way which affects economic foundations as well (tourism, fishery, agriculture), or exerting destructive influence (e.g. industry in the Kaliningrad region).

However, it should be noted that there are a number of areas, which indicate a currently or potentially significant range of positive synergy of resources and functions. For instance, the coastal zone of the Vistula Lagoon has got numerous attractive climatic features (e.g. a large number of sunny days, breeze circulation with stimulating and inhaling properties), which can be conducive to health improvement, if appropriately enjoyed. Additionally, the coastal zone of the Vistula Lagoon abounds in valuable groundwater resources which so far have been exploited to a very limited extent for medical purposes. The function of a health resort, based on these natural resources and features, could develop in harmony with the environment.

Another example is provided by agrotourism and wildlife tourism (wildlife observation, holiday stay connected with environmental education), which is being gradually developed, as well as by restructured agriculture in the areas where the principles of environmental (organic, biodynamic) management, or at least integrated management are being introduced. Agricultural land use, especially as regards meadows and wetlands, should be in agreement with the environmental function and development objectives in the area.

It should be noted that a quick achievement of sustainable development is threatened by natural factors, partly modified and regulated by man-made ones, as well as by typically socio-economic factors. Some of the threats are particularly pronounced in the coastal zone of the Vistula Lagoon. Obviously, they cannot be eliminated, but their impact can be limited or adequately directed so that it becomes a positive component of development. It can be best exemplified by the natural forces of the hydrosphere, traditionally treated as inimical and destructive. However, these phenomena can be treated as factors which influence the environment and enhance environmental and landscape assets of the area, and which can thus be useful for the promotion of the area, especially with respect to tourism. Consequently, human roles and tasks will have to be changed – these forces will no longer be opposed, but rather adjusted to and co-operated with the area development policy.

Information dissemination will constitute a prominent element of such a strategy: it will be necessary to build awareness and shape the attitudes of resource users, especially those who face the hazards, as well as to develop and promote an appropriate image of the area.

4. BIBLIOGRAPHY

1. Integrated Coastal Zone Management, vol. I and II – Selected materials from the World Coast Conference, the Hague, 1-5 November, 1993;
2. Polish-Dutch Workshops „Integrated Coastal Zone Management, 21-24 October 1996“ – post-conference materials;
3. Interactive Landscape System of the Coastal Zone in Poland, Przewozniak M., the University of Gdansk, Gdansk, 1991;
4. Integrated Coastal Zone Management Plan for the Vistula Lagoon Area, (edited by T. Parteka), Gdansk, 1996;
5. Integrated Coastal Zone Management Plan for the Vistula Lagoon - verification - Talaga A., Bochenski J., Olech S., Dekanska M., 1998.

Bled, Hotel Park 19 - 22 October 2000, Slovenia