33
environment. In contrast, BSAP was in line with EAM and based on scientifi c
assessments of ecological indicators that relate to specifi c policy objectives associated with “good ecological status” (Backer 2008 ; HELCOM 2007a , 2010 ). The
actual forebearer to the agreed specifi c reduction targets and their division among
the countries was the decision support system Baltic Nest
8 created within a Swedish
research programme (MARE, 1999–2006) and run by the Baltic Nest Institute (BNI
2014 ). The Baltic Nest system integrates environmental data with economic parameters to build scenarios and generate advice to decision-makers in HELCOM. The
reason for including the economic dimension is the understanding among HELCOM
parties that a harmonised and collective approach to management is the best way
to reach positive environmental outcomes. One motive for this is the desire to
achieve as cost-effective nutrient reduction as possible (see, e.g. Elofsson 2002 ).
2.4.2 Analysis of Assessment-Management Challenges
The new holistic HELCOM assessment strategy (HOLAS) has in many respects
implied an improved integration of (mainly natural) science knowledge. For example, the strategy involves an improved spatial integration of knowledge of the entire
Baltic Sea area, and a wider span of measurements and data are now integrated (e.g.
nutrient concentrations, biota, water, oxygen levels). However, although the holistic
HELCOM strategy does include specifi c (albeit rather limited) sections discussing
social and economic aspects (HELCOM 2010 ), the integration of social and economic aspects is still rather limited in HELCOM activities. This is discernible at
both the assessment and management levels. However, there is a high awareness of
this lack of integrated interdisciplinary assessments among decision-makers and
scientists alike (as observed in our interviews), and recent efforts by the international research network BalticSTERN to develop, for example, cost-benefi t analyses of eutrophication management in the Baltic Sea have started to improve the
situation (BalticSTERN 2013 ). According to these estimates, the societal benefi ts
for reaching BSAP targets would exceed costs (amounting to 2300–2800 million
euro, depending on how cost-effective measures are) by 1000–1500 million euros
annually. More recent studies have estimated that the costs could be higher (Wulff
et al. 2014 ). Investigations like these are nevertheless important in order to provide
ground for better integration of social and natural parameters.
In spite of this, our interviewees underlined several remaining challenges for
achieving adequately integrated assessments of eutrophication. These challenges
relate to, for example, a substantial shortage of data from some geographic areas
and problems in reaching agreement among countries and stakeholders on target
levels and thresholds to base thematic assessments on (e.g. Haahti et al. 2010 ; Lundberg
2013 ). Consequently, we conclude that, despite recent efforts by HELCOM
and BalticSTERN to develop integrated assessments of eutrophication to support
8 See Baltic Nest at http://www.balticnest.org
2 Eutrophication and the Ecosystem Approach to Management: A Case Study…
environment. In contrast, BSAP was in line with EAM and based on scientifi c
assessments of ecological indicators that relate to specifi c policy objectives associated with “good ecological status” (Backer 2008 ; HELCOM 2007a , 2010 ). The
actual forebearer to the agreed specifi c reduction targets and their division among
the countries was the decision support system Baltic Nest
8 created within a Swedish
research programme (MARE, 1999–2006) and run by the Baltic Nest Institute (BNI
2014 ). The Baltic Nest system integrates environmental data with economic parameters to build scenarios and generate advice to decision-makers in HELCOM. The
reason for including the economic dimension is the understanding among HELCOM
parties that a harmonised and collective approach to management is the best way
to reach positive environmental outcomes. One motive for this is the desire to
achieve as cost-effective nutrient reduction as possible (see, e.g. Elofsson 2002 ).
2.4.2 Analysis of Assessment-Management Challenges
The new holistic HELCOM assessment strategy (HOLAS) has in many respects
implied an improved integration of (mainly natural) science knowledge. For example, the strategy involves an improved spatial integration of knowledge of the entire
Baltic Sea area, and a wider span of measurements and data are now integrated (e.g.
nutrient concentrations, biota, water, oxygen levels). However, although the holistic
HELCOM strategy does include specifi c (albeit rather limited) sections discussing
social and economic aspects (HELCOM 2010 ), the integration of social and economic aspects is still rather limited in HELCOM activities. This is discernible at
both the assessment and management levels. However, there is a high awareness of
this lack of integrated interdisciplinary assessments among decision-makers and
scientists alike (as observed in our interviews), and recent efforts by the international research network BalticSTERN to develop, for example, cost-benefi t analyses of eutrophication management in the Baltic Sea have started to improve the
situation (BalticSTERN 2013 ). According to these estimates, the societal benefi ts
for reaching BSAP targets would exceed costs (amounting to 2300–2800 million
euro, depending on how cost-effective measures are) by 1000–1500 million euros
annually. More recent studies have estimated that the costs could be higher (Wulff
et al. 2014 ). Investigations like these are nevertheless important in order to provide
ground for better integration of social and natural parameters.
In spite of this, our interviewees underlined several remaining challenges for
achieving adequately integrated assessments of eutrophication. These challenges
relate to, for example, a substantial shortage of data from some geographic areas
and problems in reaching agreement among countries and stakeholders on target
levels and thresholds to base thematic assessments on (e.g. Haahti et al. 2010 ; Lundberg
2013 ). Consequently, we conclude that, despite recent efforts by HELCOM
and BalticSTERN to develop integrated assessments of eutrophication to support
8 See Baltic Nest at http://www.balticnest.org
2 Eutrophication and the Ecosystem Approach to Management: A Case Study…