Co-financed by the European Regional Development Fund (ERDF)
NOTE: the responsibilities of DTLR is this area are now in the Office of the Deputy Prime Minister (ODPM)
Planning for Marine Ecotourism in the |
| A transnational study under the
Interreg IIc Atlantic Area Programme (Marine Ecotourism
in the Atlantic Area or META-) has confirmed that the
Atlantic Area, and the EU coastal regions generally, have
the potential to become a world class location for marine
ecotourism. Significant policy lessons and
recommendations for EU bodies, national and regional
governments, and other agencies with a stake in planning
and other policies for marine ecotourism have emerged
from the project and are listed in an attachment to this
executive summary. The conclusions of the META- project are set out in two public documents: Planning for Marine Ecotourism in the Atlantic Area: Good Practice Guidance and Genuinely Sustainable Marine Ecotourism in the EU Atlantic Area: a Blueprint for Responsible Marketing - both available online in English and Spanish at http://www.tourism-research.org. The META- project findings support the proposed EU strategy on integrated coastal zone management (ICZM) which recognises that 'integrated solutions to concrete problems can only be solved and implemented at the local and regional level'. To support local action on marine ecotourism, the META- project has prepared a model of good practice with six toolkits for local action and a blueprint for the responsible marketing of marine ecotourism activities. The META- project reinforces the view that local action is only possible if the higher levels of administration provide a supportive and integrated policy framework. It is particularly important that policies for spatial planning and territorial development give priority to and facilitate marine ecotourism developments. The OECD's Analytical Report on Sustainable Development (2001) notes that 'it is especially important to develop instruments that guide development toward more responsible medium-term outcomes'. Unfortunately, coastal tourism developments have tended to be made in pursuit of short-term economic gain with damaging consequences for medium-term social and environmental objectives. This is not to ignore market forces but rather to suggest that spatial planning and regional policy must manage and influence consumer demand towards more sustainable products. This includes tourism products. Many peripheral coastal regions face declining marine industries. While new urban development and tourism-based activities threaten environmental resources and ecosystems, marine ecotourism offers a means to implement policies for economic regeneration, job creation and sustainable development that respects, and even enhances, the natural environment in which it takes place. Simply put, ecotourism is tourism that is based on enabling people to experience the natural environment in a manner that is consistent with the principles of sustainable development. The term marine ecotourism is intended to denote ecotourism activities that take place in the coastal zone, in the marine environment or in both. The European Spatial Development Perspective (ESDP) (1999) notes that a key factor for the success of some rural and coastal regions in adapting to structural change has bee the maintenance of the quality of the natural and cultural heritage. The ESDP recommends that policy for nature protection and spatial and economic development is harmonised so as to exploit indigenous potential as fully as possible. Less sensitive areas should be the subject of economic uses in keeping with their ecological function. Thus, the ESDP proposes the 'exploitation of the development potential of environmentally friendly tourism', while also seeking to ensure 'the preservation and restoration of threatened ecosystems'. The META- project shows how these objectives can be met in coastal areas through the promotion of marine ecotourism. More intensive co-operation at the transnational level needs to be a priority. The marine and coastal environment is a shared transnational resource. More intensive co-operation among regions and countries on marine ecotourism would ensure that the environmental qualities on which such tourism depends are maintained and enhanced. The Sixth Environmental Action Programme, Environment 2010 (2001), has called for 'the development of networks across tourist destinations [for] the exchange of experience and good practice on sustainable forms of tourism.' Enhanced transnational co-operation on marine ecotourism would also assist in implementation of the Habitats Directive by demonstrating the local economic benefits of environmental protection and by linking the existing 'islands of designated areas' for visitors. For many declining fishing communities in the EU Atlantic Area, there is a congruence of potential for the development of marine ecotourism, as the infrastructure in terms of, for example, accommodation is largely already present in often declining seaside resorts, even in the most peripheral areas. One of the biggest challenges is the need for a change in the mindsets of policymakers and planners within the various sectors that impact upon marine ecotourism, as well as the communities with the potential to develop (or reconfigure existing) tourism in the form of genuinely sustainable marine ecotourism. EU / national policy should ensure that planning officials (and elected members who approve plans and issue permits) fully understand the nature and value of marine ecotourism. Formal planning systems at all levels should take account of local initiatives in their self-evaluation, with the aim of supporting, rather than impeding, the effectiveness of local actions. The attached list of transnational policy implications is grounded in the findings of the META- project, which synthesised experiences of marine ecotourism planning and marketing in three partner study areas - located in the UK, Spain and Ireland. The implications are relevant to the 'three tier hierarchy' of European spatial planning activity (Zetter, J, 2001, 'Evaluation of Interreg IIc Projects in the United Kingdom', DTLR, http://www.interregiiib.org.uk/downloads/JZEReport.pdf, p.7), firstly as a response to the ESDP (EU level), secondly within the EU Atlantic Area (regional level), and thirdly within the partner areas and areas similar to them (local level). At the European level, the implications address the three types of integration: between sectors, between different levels of administration, and territorial integration. At the EU Atlantic Area level, the implications address the question of common regional identity and hence cohesion. At the local and programme level, meanwhile, the implications address a number of substantive issues relevant to tourism and its spatial dimension. The attachment to this document sets out the strategic policy lessons as recommendations to emerge from the experiences of the META- Project. They are organised into EU, regional (EU Atlantic Area) and local / programme levels. While the recommendations are addressed towards different levels of government, effective collaboration will continue to be needed between these levels for the effective and genuinely sustainable development of marine ecotourism. META- Project 2002. |
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Co-financed by the European Regional Development Fund (ERDF) |
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NOTE: the responsibilities of DTLR is this area are now in the Office of the Deputy Prime Minister (ODPM) |
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Marine Ecotourism in the EU Atlantic Area: Transnational Policy Lessons (attachment to executive summary) (A) EU Level 1. The European Union requires the creation of policy measures specific to marine ecotourism. 2. The European Commission and Council of Ministers should ensure that funding related to the implementation of the ESDP pays sufficient attention to opportunities to develop marine ecotourism in ways that are genuinely sustainable 3. The European Commission should support a crossover of funding arrangements to ensure a dialogue between tourism specialists and ecologists/environmental managers, rather than giving funding priority to either environmental protection or tourism promotion initiatives 4. Measures to promote the development of networks of marine ecotourism destinations and providers should be included within the Sixth Environmental Action Programme 5. Within sectoral policies, such as the Common Fisheries Policy, different approaches to the exploitation of marine wildlife, such as marine ecotourism, should be explored and tried. 6. A 'joined-up' approach between different Directorates General, as between different National States, is demonstrably necessary to the protection of threatened marine species that are no respecters of transnational administrative and geographical boundaries 7. Whereas the First UN Conference on Environment and Development (the 1992 'Rio' Conference) mentioned tourism only incidentally, the second UN Conference ('Rio+10') acknowledges the growing positive and negative impacts of global tourism. The EU position should therefore reflect the significance of the concept of genuinely sustainable marine ecotourism 8. Furthermore, the declaration of 2002 as the UN International Year of Ecotourism reinforces the role of marine ecotourism as a powerful force for the economic regeneration of peripheral areas, provided that it is conducted in a manner that is properly consistent with the principles of sustainability 9. Given these opportunities, Europe can aspire in the medium term to become a world class destination for genuinely sustainable marine ecotourism, competing on its own terms with marine areas adjacent to other continents 10. Branding of marine ecotourism for marketing purposes should seek to move beyond the brand towards some form of certification of the product. In particular, eco-labels for the certification of genuinely sustainable marine ecotourism should be encouraged under the auspices of European Council Regulation (EEC) No 880/92: the Community Eco-label Award Scheme. 11. The transport impact of travel to marine ecotourism destinations needs to be highlighted to consumers from across the EU.The risk is that an otherwise low impact tourism activity may be rendered unsustainable by the participation of visitors who have travelled by air across the globe to remote peripheral locations. (B) Regional Level - the EU Atlantic Area 1. The market for marine ecotourism in the EU Atlantic Area is largely domestic to the territory of the EU, and has considerable scope for achieving 'import substitution' vis-à-vis longhaul outbound tourism. 2. Linked to the above, there is also scope for supplementing the European inbound tourism product with marine ecotourism experiences attractive to North American and other transcontinental tourists. 3. In the context of the ESDP's concern for global warming, support for tourism should recognise the need for minimising the transport intensity, and hence the carbon impacts, of marine ecotourism. 4. Taxation policy therefore needs to avoid 'perverse incentives' for tourists to travel further rather than to spend longer on holiday, particularly at destinations nearer to home. 5. Some parts of Trans-European Networks (TENs) can themselves be used for marine ecotourism; for example, whale watching takes place from ocean-going ferries in the EU Atlantic Area, implying an environmentally benign use of TENs. 6. The marketing of marine ecotourism needs to focus on demand management, rather than the exploitation of already fragile resources. Member states have a role to play in promoting this kind of responsible marketing to national tourist organisations and destination areas. 7. A critical tool of responsible marketing is the appropriate management of visitor expectations through effective education and interpretation. This implies that government-level support be given to suitable training schemes. 8. Consideration should further be given to the promotion of common training provision based on common EU-wide modules in ecotourism provision, guidance and management, with appropriate recognised qualifications at various levels. 9. There is a need for further research into the visitor experience and visitor preferences, especially the willingness of tourists to pay for genuinely sustainable marine ecotourism experiences. 10. Governments have a responsibility to make expertise and/or facilitators available to support grassroots initiative in the practical development of marine ecotourism, thus enabling capacity in this critical area to be built at the community level. (C) Local and Programme Level 1. There are seven core principles that are seen as fundamental for achieving genuinely sustainable marine ecotourism at a local level. They are: Local Participation: there is a need for measures that should be interpreted in the local context and with the local stakeholders, without whose active support and participation, no marine ecotourism would be genuinely sustainable. Marine ecotourism initiatives should be encouraged to evolve at the local community level, rather than be imposed from above. Full participation of both local stakeholders and public agencies should help to ensure that there is long-term commitment on the part of everyone concerned to developing genuinely sustainable marine ecotourism. One of the basic justifications for the development of marine ecotourism, rather than other more conventional forms of tourism, is that the ecotourism approach recognises that taking proper care of the resource base is the key to maintaining its wider benefits. Linking the benefits of ecotourism to conservation helps to ensure that this interdependency is properly acknowledged and taken into account in the planning and management of marine ecotourism. Environmental Protection as a Priority: The activity of marine ecotourism depends directly on the continued availability of a high quality marine environment in which to operate. Ultimately, it is the marine environment that attracts tourists and provides them with ecotourism experiences for which they are willing to pay. If the marine environment becomes damaged or degraded, tourists may no longer wish to visit the area concerned, seeking marine ecotourism experiences of better quality elsewhere. Marine ecotourism therefore has a strong incentive to look after the marine ecosystem upon which it relies, and it is imperative to recognise this in the development, planning and management of such activities at a local level A Balance of Statutory and Voluntary Approaches: Existing statutory and other formal mechanisms have a critical role to play in planning and managing for genuinely sustainable marine ecotourism. However, it is important to recognise that these will often need to be supplemented by a range of informal and voluntary measures in order to achieve a balance between top-down and bottom-up approaches. Supplementing the statutory approach with voluntary regulations can address the shortcomings that formal regulatory structures tend to exhibit in respect of the unique problems inherent in planning for genuinely sustainable marine ecotourism. Education and Interpretation: The ecotourism philosophy confers a special responsibility on ecotourism experience providers to ensure that they include suitable and effective interpretation of the marine environment. They should also educate visitors about their potential impacts on the environment, both in the course of the ecotourism experience and when they have completed it. Public authorities are responsible for ensuring that marine ecotourism providers are appropriately trained, while efforts should be made to ensure that local level policy makers, planners and other stakeholders fully understand the concept and benefits of marine ecotourism. A Collaborative Approach: The fundamental issues involved in the development, planning and management of genuinely sustainable marine ecotourism occupy a problem domain that requires collaboration, rather than simple co-operation. Such problems are sufficiently complex that is beyond the capability of any single individual or organisation to resolve them, necessitating collaboration between stakeholders. Responsible Marketing: Marketing that does not prioritise environmental protection can serve to compromise even the most well planned and meticulously managed marine ecotourism activity. Responsible marketing of marine ecotourism at the local level should embrace the notion of environmental and socio-cultural stewardship, as well as local participation and control of marketing activities. In all respects, the marketing of marine ecotourism should be consistent with the principles of sustainability. Continual Monitoring and Evaluation Against the Principles of Genuinely Sustainable Marine Ecotourism: Assessing whether or not marine ecotourism is being effectively planned and managed requires monitoring, in the short, medium and long-term. This should be conducted with regard to the effectiveness and appropriateness of the regulatory and voluntary structures in place, the marine ecotourism resource base, the quality of the product and importantly, the benefits to communities. 2. Local policy makers involved in marine ecotourism should seek to understand and work within the context of relevant existing frameworks in order to avoid any replication of baseline effort and to draw lessons from previous actions at local level. This includes local mechanisms stemming from international and EU policy (such as Local Agenda 21, Integrated Coastal Zone Management and the EU Habitats Directive), as well as local manifestations of formal designations in related sectors such as conservation (for example, Marine Protected Areas). Specific local initiatives and mechanisms that hold relevance should also be considered (for example, existing stakeholder groups and local networks previously convened for other related purposes). 3. The re-use of resources emphasising existing infrastructure and locally resident people is recommended. For example, redundant buildings, ships, piers and other facilities can be reused as visitor centres / sea life interpretation centres etc. while the retraining of community members to take a role in marine ecotourism (for example, as certified operators or guides) is a possible strategy for re-deploying soft resources at a community level. Funding mechanisms to achieve these kinds of goals could include, grant schemes and development corporation funding and even lottery money. 4. Where there are gaps and weaknesses in formal planning and policy mechanisms at a local level, voluntary structures should be developed in working towards a judicious mix of formal and informal measures. Such actions can also help move voluntary structures towards formal recognition, thus lending them weight. This can be achieved through, for example, licensing schemes and income generating fees. 5. At the destination level, marine ecotourism should be developed as a product complementing existing holiday activities as a marine ecotourism element can be introduced to most 'seaside' holidays if the resources and mechanisms are present. This type of action may also reduce the overall global warming impact as people take fewer but longer holidays. It may have a further the advantage in reducing the seasonality of more traditional forms of tourism activity in cooler destinations. |