311
1 INTRODUCTION
InEurope,forseveralyears,alargenumberofcoastal
statesaresignificantlyengagedinintroducingmarine
spatialplanninginstrumentsintotheirdomesticlaw‐
constantly improving them and by them perceiving
their contribution to long‐term marine spatial
planningasparticipationinsustainabledevelopment.
This tendency undoubtedly attests
to achieving a
higher degree of integration in the approach to
sustainablemarinegovernance[1].Insomecasesthe
developmentof marine spatialplanning instruments
for sustainable marine governance is based on the
individual experience of the coastal states resulting
fromtheintegratedcoastalzonemanagement[2].
The aim of
marine spatial planning isto prevent
and minimize conflicts between sea space
stakeholders.Thediverselegalstatusofmarineareas,
thedifferenttypes andeffectsof humanactivities in
the marine and coastal environment, multilevel
activities and measures aimed at protecting and
conservingmarineecosystems,aswellasmanyother
factors
associated with them, do not constitute an
easy planning field. In practice, the introduction of
maritime spatial planning is burdened with ballast
resulting from the sectoral approach and well‐
establishedhabitsintheareaofgrantingcompetences
to individual administrative authorities responsible
formaritimeaffairs[3,4].
The MSP Directive
establishes a framework for
maritime spatial planning aimed at promoting the
Implementation of Marine Spatial Planning Instruments
for Sustainable Marine Governance in Poland
D.Pyć
UniversityofGdańsk,Gdańsk,Poland
ABSTRACT: Marine spatial planning (MSP) is a process of managing human activities in the marine and
coastalenvironmentinordertoachievesustainabledevelopmentgoals.Amendmentsregardingmarinespatial
planningwithinthePolishmarineareasintroducedtoPolishlawin2015constitutegroundsfor
drawingup
maritime spatialplans formarine areas. Thispaper presents a fewgeneral comments onthe marine spatial
planninginPolandinthe contextof implementationof theDirectiveestablishinga framework formaritime
spatialplanning(MSPDirective)inEurope.TheMSPDirectiveplaysanimportantroleinthe
developmentof
marine spatial planning by promoting MSP instruments. Marine spatial plans are the basic instruments of
marine spatial planning. The MSP Directive requires all coastal Member States of the European Union to
preparecross‐sectoralmaritimespatialplansby2021.DevelopmentofthefirstmaritimespatialplanforPolish
marine
areas was startedin 2013. TheMSP legal basisare included inthe Marine Areasof the Republic of
Poland and Maritime AdministrationAct of 1991amended in 2015,which defines the legal situation of the
marineareasoftheRepublicofPoland,thecoastalarea,theseaportsand
harbours,andtherulesfortheuseof
theseareas,aswellasthemaritimeadministrationauthoritiesandtheircompetences.
http://www.transnav.eu
the International Journal
on Marine Navigation
and Safety of Sea Transportation
Volume 13
Number 2
June 2019
DOI:10.12716/1001.13.02.06
312
sustainable growth of maritime economies, the
sustainable development of marine areas and the
sustainableuseofmarineresources[5].Themaritime
spatialplanisaninstrumentthatistobeusedforthe
implementation of maritime spatial planning in the
long‐termperspectiveinEurope.InPoland,intensive
workiscurrently
underwaytodevelopthefirstPolish
maritimespatialplan[6].
2 THEESSENCEOFMARINESPATIAL
PLANNINGINSUSTAINABLEMARINE
GOVERNANCE
Marine spatial planning is an essential part of
sustainablemarine governance.Fromthe legalpoint
of view, sustainable marine governance should take
placeontwolevelsinparallel:legal
andinstitutional.
Thelegallevel(duetosecuringthevalueofmanaging
the sea space from the normative aspect in the
substantive and formal law dimension) is
characterized by the same significance as the
institutional level (i.e. the executive, which includes
all governmental and non‐governmental
organizationsandinternationalinstitutionsthat
carry
outactivitiesdirectedtoenvironmentalmanagement,
or whose activity has specific effects on the
environment) [7]. Sustainable marine governance
includes multilevel, integrated human‐based
planning, based on the most up‐to‐date scientific
knowledge of ecosystems and their dynamics, the
origin and impact of various other previously
occurring activities
that are essential to maintaining
the health of the marine ecosystem, as well as
ensuring sustainableuse of resources (i.e. ecosystem
goodsandmaintainingecosystemintegrity)[8].
Sustainablemarinegovernanceisbasedonmarine
spatialplanning.Thisprocessischaracterizedbythe
multilevel nature of the principles perceived in the
following
dimensions: doctrinal (sustainable
development principle), institutional (principle of
institutionalintegrationand cooperation), regulatory
(principle of prevention, precautionary principle),
executive (ecosystem approach) and functional
(stakeholder participation, adaptive management).
Analysis of the content of the principles and
approaches to the MSP leads to the conclusion that
notallofthemhavea
legalnormativeorientation.In
thecase of theMSP, legal standardsofconduct and
other standards of conduct do not constitute two
clearlydelimitedgroups.Itseemstobeacomplexity
dilemma. Marine spatial planning is based on
principlesonnormativeorientationsidentifiedas:(1)
leading or directional (but not all
of them are legal
principles);(2)notansweringalldogmaticquestions;
(3) indicating directions for solutions to potential
issues; (4) acting as a pattern of arguments in the
areas of responsibility; (5) oriented towards equity.
An ecosystem‐based approach is one of the MSP
principlesonanormativeorientation,but
notalegal
principle. The application of an ecosystem‐based
approach to decision‐making is a fundamental
frameworkforsustainabledevelopment[6,9].
The purpose of marine spatial planning is to
design sea space to achieve a balance in the use of
access to marine areas and their resources in
cooperation
withallstakeholders.
Thisprocessmayrequirerestrictionsoftheuseofsea
space(e.g.timeorarealimits),andinjustifiedcases,
to avoid conflicts between different users of the
environment and improve the management of their
activities involving the use of marine and coastal
resources,includingexclusions(e.g.
prohibitionsofa
particular proceeding). It is also important for
capacitybuildingofadministrationbodiesandother
entitiesinthefieldofsustainablemarinegovernance
[10].
3 DEVELOPMENTOFMARINESPATIAL
PLANNINGINPOLAND
Marine spatial planning is a process of achieving
spatial order at sea. In practice, spatial order
understood
asafunctionalorderofspaceisanalyzed
primarily in the field of planning and spatial
development on land. The term ‘marine spatial
planning’ is used in international law in functional
meaning (planning process), while MSP Directive
uses the term ‘maritime spatial planning’ mainly in
theinstrumentalsense(i.e.spatial
plan).
The concept of maritime spatial order does not
function in the Polish law. One of the directions of
Polish maritime policy is to improve maritime
management [11].Maritime spatial planning,
understood purely technically, is to act as an
“instrument serving the implementation of the
integrated maritime policy of the European
Union”.
The goal is to create an efficient maritime
management system. Among the activities aimed at
improvingmaritimemanagementisthedevelopment
of plans for the development of Polish sea areas,
takingintoaccounttheecosystemapproach.
Accordingto theMSP Directive, maritimespatial
planning means a process in which
the relevant
Member State’s authorities analyze and organize
humanactivitiesinmarineareastoachieveecological,
economic and social objectives taking into
consideration relevant interactions of activities, uses
and interests, inter alia: aquaculture areas; fishing
areas; installations and infrastructures for the
exploration,exploitationand extractionof oil,ofgas
and
other energy resources of minerals and
aggregates, and for the production of energy from
renewable sources; maritime transport routes and
traffic flows; military training areas; nature and
species conservation sites and protected areas; raw
material extraction areas; scientific research;
submarine cable and pipeline routes; tourism;
underwaterculturalheritage.
Takingintoaccount
theeffectivenessoftheworks,
it should be stated that inPoland the actual actions
aimedatimplementingtheMSPDirectiveweretaken
in 2013. The provisions of the ordinance of the
Minister of Transport, Construction and Maritime
EconomyandtheMinisterofRegional Development
ontheplansforspatial
developmentofPolishmarine
areasissuedonAugust5,2013havebeeninlinewith
the provisions of the MSP Directive. The minister
competent for the maritime economy in cooperation
with the Directors of Maritime Offices in Gdynia,
Słupsk and Szczecin prepared a schedule for the
313
development of maritime spatial plans for Polish
marine areas in autumn 2013. Then a significant
“Study of the conditions for spatial development of
Polish sea areas” was created together with spatial
analyzes that define spatial, legal, economic, social
and natural conditions for the purposes of drawing
upaspatialdevelopment
planforthe Polishmarine
areas[12]. It was also at that time that intensive
legislative works were initiated to adapt Polish
legislation to the provisions of the MSP Directive.
After about two years, the provisions of MSP
Directive have been implemented into Polish
domestic law by introducing changes to the
Act on
maritime areas of the Republic of Poland and
maritimeadministrationin2015,includingbymeans
of: revision of spatial development plans for Polish
seaareas;introductionofprovisionsregardingcross‐
border arrangements for the draft spatial
development plan for Polish sea areas and public
arrangementsfor thedraft spatial
development plan
forPolishseaareas[6,13].Themaritimespatialplan
of the Polish marine areas is being developed by
Maritime Institute in Gdańsk and National Marine
FisheriesResearchInstituteinGdynia.
Spatial planning and development covering the
marine internal waters, territorial sea and exclusive
economiczonemeans
theprocessthroughwhichthe
competentauthoritiesanalyzeandorganizetheuseof
marine areas to achieve ecological, economic and
social objectives [14]. The authorities competent for
the maritime spatial planning are the minister in
charge of the maritime economy and the director of
themaritimeoffice[15].Themaritimeadministration
authoritiesandtheircompetencesarespecifiedinthe
Act of March 21, 1991 on the maritime areas of the
Republic of Poland and maritime administration.
They are: the minister competent for the maritime
affairsas thesupreme organof maritime
administration, directors of maritime offices as local
maritime administration authorities
(Article 38 § 1).
Supervision over the activities of directors of
maritimeofficeswithinthescoperegulatedbytheAct
on Maritime Areas of the Republic of Poland and
MaritimeAdministrationandinseparateregulations
is exercised by the minister competent for the
maritimeeconomy.
Itshould benoted thatthe
Polish law definesan
ecosystem approach. The ecosystem‐based approach
is defined in the Act on Maritime Areas of the
RepublicofPolandandMaritimeAdministration,and
meansthatinthemanagementofhumanactivities,in
whichthethreefollowingconditionsmustbesatisfied
cumulatively: (1) an impact of the
planned human
activities on the ecosystem shall be maintained at a
level enabling to achieve and maintain a good
environmental status; (2)both the ability of the
ecosystemtofunctionproperly,aswellasresilienceto
environmental changes, arising from human
activities,shallbemaintained;(3)thesustainedandat
the
same time sustainable use of the marine goods
and services by the present and future generations
shallbeenabled(Article37b1a.)[16].
4 THESTATUSOFIMPLEMENTATIONOFTHE
POLISHMARITIMESPATIALPLAN
From2013,intenseeffortshavebeenmadetodrawup
amaritimespatialplanin
Poland.Thecurrentproject
ofthePolishmaritimespatialplan(draftplan)covers
internalwaters and territorialsea of the Republic of
PolandaswellasthePolishexclusiveeconomiczone,
but does not cover the Szczecin, Vistula and
Kamieński Lagoons and marine internal waters
withintheboundariesofports.
TheActonthemarine
areas of the Republic of Poland and the maritime
administration defines the legal situation of the
marine areas of the Republic of Poland, the coastal
area,theseaportsandharbours,andtherulesforthe
use of these areas, as well as the maritime
administrationauthoritiesandtheircompetences.The
marine areas of the Republic of Poland are: marine
internal waters; the territorial sea; contiguous zone
and exclusive economic zone. The marine internal
watersandtheterritorialseaarepartoftheterritory
oftheRepublicofPoland.Theterritorialsovereignty
oftheRepublicof
Polandovertheinternalwatersand
the territorial sea shall extend to the waters, to the
airspaceoversuchwatersaswellastotheseabedand
the subsoil of the internal waters and the territorial
sea.TheterritorialseaofPolandconsistsofamarine
area of 12 nautical
miles wide, measured from the
baselineofthatsea.Thebaselineoftheterritorialsea
isalineconnectingthecorrespondingpointsdefining
thelowestwaterlevelalongthecoastorotherpoints
designated inaccordance with the principles set out
intheUnitedNationsConventionontheLawofthe
Sea(UNCLOS)[17]. Theouterlimit ofthe territorial
seais theline, whereeachpointis 12nautical miles
fromthenearestpointofthebaseline,butroadsteads
which are normally used for the loading, unloading
and anchoring of ships and which are situated
entirelyorpartiallyoutsidethe
outerlimitofthesea
watersareas,areincludedintheterritorialsea.Polish
contiguouszone adjacentto the territorialsea of the
Republic of Poland, the outer limit of which is not
morethan24nauticalmilesfromthebaseline[18].In
the exclusive economic zone Poland is entitled
sovereign
rights to explore, manage and exploit the
natural resources, whether living or non‐living, the
seabedanditssubsoilandthewaterscoveringthem
as well as the right to conserve those resources, as
well as the sovereign rights with respect to other
economic undertakings in the zone; and jurisdiction
withregardto:theestablishmentanduseofartificial
islands, installations and other structures; marine
scientificresearch;theprotectionandpreservationof
the marine environment; as well as other rights
providedforunderinternationallaw[6,19].
The maritime spatial plan of the Polish maritime
areasdecidesonfivemainissues:
(1)thedestineduse
ofthemaritimeareas;(2)prohibitionsorlimitationin
theuseofthemaritimeareas,takingintoaccountthe
requirements of nature protection; (3) location of
public purpose investment; (4) directions of
developmentoftransportandtechnicalinfrastructure,
aswellas (5)areasand conditionsof
environmental
protection,culturalheritage,fisheryandaquaculture,
renewable energy production and exploration and
extractionofminerals[20].
314
The Polish legislator has distinguished two main
functions types of allocations of the marine area,
namely: the basic functions and the acceptable
functions. The basic functions mean the leading
allocationsoftheareaestablishedintheplan, which
cannot be interfered by any other acceptable
functions.Theacceptable functionsof
theareamean
thepossiblewaysofusingthearea,thecoexistenceof
whichdoes not adverselyaffect sustainable
developmentofthearea[2,21].
The draft plan is prepared by a territorially
competent director of the maritime office, using the
ecosystem‐based approach and taking into
consideration: (1) supporting
the sustainable
development in the maritime sector, taking into
account the economic, social and environmental
aspects, including the improvement of the
environment and the resilience to climate change
impacts; (2) defence and national security; (3)
coordination of actions by relevant parties and the
methodsofusingthesea[22].
ThePolish
maritimespatialplanswillbeadopted
by the minister in charge of maritime economy and
the minister in charge of the construction industry,
spatialplanninganddevelopmentaswellashousing
in cooperation with the ministers in charge of
environment, water management, culture and
protection of national heritage, agriculture, fisheries,
transport,internalaffairsandtheMinisterofNational
Defence(Article37a.§1).ThePolishmaritimespatial
plans covering the marine internal waters, the
territorialseaandtheexclusiveeconomiczonewillbe
adoptedbyaregulation.
Theministerinchargeofthemarineeconomyand
theministerinchargeof
constructionindustry,spatial
planning and development as well as housing in
cooperation with the minister in charge of fisheries
andtheministerinchargeofenvironmentdetermine,
by means of a regulation, the required range of the
planscontainedinthetextualandthegraphicalparts
drawn up in the
form of a digital chart study
developedonthebasisofthedatabasesspecifying,in
particular, the planning materials, the type of chart
studies, the scale of chart studies, the designations,
names, standards applied, and how to document
planning works, with regard to clarity and
transparency of the plans, as well
as the guidelines
adoptedbytheBalticMarineEnvironmentProtection
Commission (HELCOM) and the authorities of the
European Union in the field of maritime spatial
planning.
The plan may include the arrangements binding
upon the self‐governments of voivodeships and the
municipalities, within which there are the marine
internalwaters,
or the municipalitiesadjacent to the
plan area by the coastline or the maritime areas’
boundaries,correspondingtothatline,indrawingup,
respectively, the spatial development plans of
voivodeships,thestudiesofconditionsandthespatial
developmentdirectionsofthemunicipalities,aswell
asthelocalspatialdevelopmentplansin
thefieldof:
deployment of public purpose investments of the
national significance specified in the medium‐term
national development strategy and other
development strategies, the concepts of the national
spatial development and the programmes which
specify the tasks of the government [23], protected
areas, the manner of using of the
marine areas
(includingtherestrictionsandapprovals).
The minister in charge of the maritime economy
carries out the cross‐border cooperation within
maritimespatialplanningaswellasthecross‐border
exchangeinthefieldofspatialdatanecessaryinthe
processofmaritimespatialplanning.TheCouncil of
Ministersmay
specify,bymeansofaregulation,the
requiredscopeandmanner ofcross‐border
arrangements of the maritime spatial plan covering
themarineinternalwaters,theterritorialseaandthe
exclusiveeconomiczone,havingregard,inparticular,
to the recommendations adopted by the HELCOM
andtheauthoritiesoftheEU
inthefieldofmaritime
spatial planning. The director of the maritime office
collectsandstoresthematerialsrelatingtotheplans.
The maritime spatial plan should be reviewed from
time to time, at least every 10 years.The plan is
beingpreparedinaccordancewiththeRegulationof
May 2017
on the required scope of spatial
development plans of marine internal waters,
territorialseaandexclusiveeconomiczone[24].
In January 2019, the Director of the Maritime
Office in Gdynia acting on behalf of the Director of
the Maritime Office in Słupsk, the Director of the
Maritime Office in
Szczecin and his own informs
aboutthecompletionofthenextstageofworkonthe
project of maritime spatial plan for marine internal
waters, territorial sea and exclusive economic zone
(the draft plan) in scale 1: 200,000 together with the
environmental impact assessment. In June 2018, a
draftplanwith
anenvironmental impactassessment
was presented for public viewing. It ensured
stakeholderspossibilityofsubmittingcommentsand
requests.TheninJuly2018apublicdiscussiononthe
adoptedsolutionswasorganized.InDecember2018a
modifieddraftplanwasprepared,whichintroduced
changes resulting from the environmental impact
assessment and
the arrangements made, as well as
changes resulting from the opinions, remarks and
conclusionsconsidered.Themodifieddraftplan(v2)
together with the updated environmental impact
assessment were forwarded to the competent
authoritiesinordertoprocedureresultingfromthein
Article37e§1point8oftheActon
MarineAreasof
the Republicof Poland and maritime administration
[25]. The draft plan (v2) together with the updated
environmentalimpact assessmentis available onthe
website of the Director of the Maritime Office in
Gdynia[26].
5 CONCLUSIONS
Marinespatialplanningisaprogressiveprocesswith
high adaptation potential
in relation to changes as
well as one of the tools for sustainable marine
governanceoftheWorldOcean.TheMSPisbasedon
principles and approaches that originate from
international, global and regional law as well as
domesticlaw. TheMSP frameworkaims topromote
sustainablegrowthinthemaritime
economyaswell
as sustainable development of marine areas and
sustainable use of marine resources. In functional
terms,MSPisaprocessthatismeanttodynamically
315
separateseaspaceformanytypesofusebyhumans,
alsointroducingtimeconstraintsinitsuseand even
exclusion, also to avoid conflicts between various
environmental stakeholders and improving the
management of human activities. Public process of
recognizing and dividing sea space and temporal
distribution of human activities in
marine areas to
achieve economic, social and environmental goals
oughttobeincludedinstatepolicy.
Achieving sustainability is the overriding goal of
maritimespatialplan.Themaritimespatialplansets
out priorities relating to different uses of the sea
space. According to the assumptions of the MSP
Directive,the
maritime spatial plan is aimed at
balancing the interests of stakeholders using the
marineareas andis theframework forconduct. The
development of a good plan requires detailed
settlements in various related matters and correct
diagnosis for the resources of sea space. It should
covervarious conditions, includingeconomic,social,
ecological and legal ones. These conditions must be
analyzed in a multidimensional way in horizontal
andverticalperspective.
In Poland, the maritime spatial plan is under
development. In accordance with the principle of
sustainabledevelopment,inthescopeofdetermining
detailed decisions, both the activities resulting from
the need for
economic development and activities
aimed at environmental protection, in particular
maintainingandimprovingitscondition,weretaken
into account. These detailed decisions of the Polish
maritimespatialplan(draftplan)areinlinewiththe
precautionaryapproachinthecontextofconservation
andprotectionofnaturalvalues.Thiswasconfirmed
by:
the preparation ofseparate and specific for each
designated marine zone prohibitions and use
restrictions relating to the welfare of natural
resources,an issuenot regulatedin theNatura 2000
protectionplans;andrecommendationsregardingthe
useofmarinezonesinthefuture.
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[26]https://mapy.umgdy.gov.pl/pzp/apps/webappviewer/
index.html?id=3abee3cc798e499dbd165472425f2434