97
© The Author(s) 2016
M. Gilek et al. (eds.), Environmental Governance of the Baltic Sea,
MARE Publication Series 10, DOI 10.1007/978-3-319-27006-7_5
Chapter 5
Governance of Chemicals in the Baltic Sea
Region: A Study of Three Generations
of Hazardous Substances
Mikael Karlsson and Michael Gilek
Abstract This study zooms in on public governance in the Baltic Sea region of
three generations of notorious hazardous substances, namely, PCBs, PBDEs and
PFOS/PFOA. Following regulation, PCB concentrations in the Baltic Sea have
decreased substantially although they are still above pre-industrial levels. PBDE
levels have also decreased in some places, but they too are well above targeted levels, whereas the situation for PFOS and in particular for PFOA has hardly improved
at all. In the case of PCBs, while comprehensive measures took long to implement,
initial preventive measures were taken early based on the precautionary principle.
This contrasts with the cases of PBDEs, PFOS and PFOA, where the burden of
proof on policy-makers has been high and hence caused severe delays in policymaking. There has, however, generally been a positive interplay in all three cases
between the EU, which has legislated, and HELCOM, which has taken the role of
concept and agenda setting. While environment-oriented policies, such as the
Ecosystem Approach to Management under MSFD and BSAP, have grown in
importance over time, polluter-oriented chemical legislation has been more important when it comes to fi nal decision-making. Nevertheless, the general response has
been reactive rather than proactive, and there is no indication that society responds
faster today than in the past, at least not given the fact that awareness, experience
and knowledge are greater today than a few decades back. Based on that insight, the
article discusses various options for improving governance.
Keywords PCB • Brominated fl ame retardants • Fluorinated substances •
Ecosystem approach to management • Precaution
M. Karlsson (*) • M. Gilek
School of Natural Sciences, Technology and Environmental Studies , Södertörn University ,
14189 Huddinge , Sweden
e-mail: mikael.karlsson@2050.se; michael.gilek@sh.se
© The Author(s) 2016
M. Gilek et al. (eds.), Environmental Governance of the Baltic Sea,
MARE Publication Series 10, DOI 10.1007/978-3-319-27006-7_5
Chapter 5
Governance of Chemicals in the Baltic Sea
Region: A Study of Three Generations
of Hazardous Substances
Mikael Karlsson and Michael Gilek
Abstract This study zooms in on public governance in the Baltic Sea region of
three generations of notorious hazardous substances, namely, PCBs, PBDEs and
PFOS/PFOA. Following regulation, PCB concentrations in the Baltic Sea have
decreased substantially although they are still above pre-industrial levels. PBDE
levels have also decreased in some places, but they too are well above targeted levels, whereas the situation for PFOS and in particular for PFOA has hardly improved
at all. In the case of PCBs, while comprehensive measures took long to implement,
initial preventive measures were taken early based on the precautionary principle.
This contrasts with the cases of PBDEs, PFOS and PFOA, where the burden of
proof on policy-makers has been high and hence caused severe delays in policymaking. There has, however, generally been a positive interplay in all three cases
between the EU, which has legislated, and HELCOM, which has taken the role of
concept and agenda setting. While environment-oriented policies, such as the
Ecosystem Approach to Management under MSFD and BSAP, have grown in
importance over time, polluter-oriented chemical legislation has been more important when it comes to fi nal decision-making. Nevertheless, the general response has
been reactive rather than proactive, and there is no indication that society responds
faster today than in the past, at least not given the fact that awareness, experience
and knowledge are greater today than a few decades back. Based on that insight, the
article discusses various options for improving governance.
Keywords PCB • Brominated fl ame retardants • Fluorinated substances •
Ecosystem approach to management • Precaution
M. Karlsson (*) • M. Gilek
School of Natural Sciences, Technology and Environmental Studies , Södertörn University ,
14189 Huddinge , Sweden
e-mail: mikael.karlsson@2050.se; michael.gilek@sh.se